Some Techniques for Evaluating merits by our hosts. In one day, a staff We selectively invited 14 immigrants to at­ member was offered three lunches by three tend an informational and educational meet­ Planned Community Change in an Israeli Development Town families and the time of day was of no ing about the Cleveland Jewish Welfare Fund B. HAROLD CHETKOW (YANOOV), D.S.W. consequence. We all gained a better under­ Drive. The meeting was held at a lay leader's and standing of the warmth and openness of the home and all of those invited came to the Russians as people. meeting. After much active discussion about HAROLD GREENBERG, Ed.D The most positive aspect of our experience community services and how Jewish com­ Associate Professors, School of Social Work, Bar-Ilan University, Ramat-Gan, was observing and hearing about the desire of munity funds were utilized, the participants these families to become part of the Jewish wanted to continue with how they could be . . . if a planning unit is to be initiated in any local community, it is excellent policy that the community. Many of the families had brought helpful. One individual surprised us all by activity be subject to independent evaluation at regular periods. It is equally vital that some form with them from the Soviet Union some sense suggesting that they (the Russians) should of baseline measurement of conditions be established before the project is activated . . . of Jewish identity and a desire, whether expli­ reach out to their friends and other Russians to cit or submerged, to be recognized as . participate in the community's efforts to raise Introduction funds for Jewish needs. After this meeting, This could only aid in their resettlement. Evaluating community development pro­ At the invitation of the Ministry of Social three more parlor meetings were planned by Dr. Maria Pfister-Ammende of the World jects is one of the most difficult aspects of Welfare and as part of a United Nations the people themselves and a total of 47 Soviet Mental Health Association points out: social research. The problems involve such consultation program in community develop­ individuals were contacted for the Jewish Wel­ There are always two poles involved in any basics as identifying agreed upon project goals, ment, Dr. Meyer Schwartz of the University of

fare Fund Drive. For a group who had little or 1 process of resettlement, and the manner in developing measurable criteria for change, Pittsburgh studied conditions in Or-Yehuda. no experience with voluntary fund-raising by which they come together will have a decisive defining what is in fact to be measured, and His report of August 1968, recommending a an organized Jewish community, they reacted effect upon the relations of the parties con­ demonstrating causality. Furthermore, such demonstration community development pro­ cerned. The success of resettlement therefore, with a desire to be involved and to help. These evaluation must be undertaken within realistic ject, was approved by an inter-ministry will depend on whether the new settlers and meetings came at the end of the campaign and time, budgetary, and manpower limitations. committee for social services. In August 1969, the inhabitants of the country clash in a will lead to more planning for next year. Also, Despite these difficulties, no reasonable it was decided to establish a Social Planning violent impact, embittered, mute and tense, further efforts will be planned on a community approach to community planning can have any Service in the community. It was to formulate, or whether they meet in a spirit of friendli­ level to offer opportunities to Soviet families 2 justification without objective evaluation. as well as to implement and coordinate, ness.' for community involvement and responsi­ In this paper, we shall present a number of short-term and long-term programs and Our experience seems to confirm Dr. bility. techniques developed and implemented by the policies. Pfister-Ammende's statement. We have been We have only touched the surface of trying authors to evaluate planned community able to resettle large numbers of Soviet Jews to understand the motivations, goals, and atti­ change in an Israeli development town. A few Background based on our understanding of their needs and tudes of the Russian population. Our experi­ findings, primarily in footnotes, are used to their desire to become part of the Cleveland When attempting to evaluate the impact of a ence has shown us the need for deeper and illustrate these techniques. Jewish community. Their move toward inte­ four-year social planning effort in Or-Yehuda, more systematic research into the adjustment the researchers had to take a number of factors gration rather than isolation reflects the com­ The Community Setting and attitudes of the Soviet immigrants. into account. Five such factors are described monality of Jewish identity which this group Who can say what amount of time the re­ Or-Yehuda, the community under discuss­ below: of Soviets brings with them to a community settlement process takes? There will always be ion, is a town of over 12,000 population. It with its own Jewish identity. Although there individuals who adjust and are absorbed grew out of five transit camps for new The Planning Model in Or- Yehuda was an initial clash of cultures, there are quickly and those who are at the lower end of immigrants, in three abandoned Arab villages, healthy signs that this immigrant population Susan and Norman Fainstein, in their article the spectrum. The Russians have shown us to which some of Israel's early immigrants longs for a deeper involvement in the Jewish "City Planning and Political Values," cate­ their hopes and frustrations, and have given us were directed. It became a "" in community. They see themselves as Jews. gorize a number of planning activities which encouragement for the future. This group of 1955. It is located in what today is the greater Have we hopefully imagined this or is it true? are helpful in understanding what took place people is not lost to the Cleveland Jewish Tel-Aviv Metropolitan Area, not distant from in Or-Yehuda. Among their various types,

12 Dr. Maria Pfister-Ammende, "Uprooting and 2 community. They want to be part of the main­ suburbs, satellite cities, and other towns and they identify traditional planning. Based on Resettlement as a Sociological Problem" in Up­ stream of Jewish life. villages. Like many development towns, 1 rooting and Resettlement, London: World Federa­ Meyer Schwartz, Or-Yehuda—A New Imm­ Or-Yehuda has long had to contend with tion for Mental Health, 1960, p. 22. igrant Development Satellite Town in the Conurban- severe social and communal problems. It has ization of -Yafo (: Ministry of also been plagued with a persistent difficulty in Social Welfare, Aug. 20, 1968), Mimeo. attracting professional personnel to staff its 2 Susan S. Fainstein and Norman I. Fainstein, services. "City Planning and Political Values," Urban Affairs Quarterly, 6 (March 1971), 341-362.

68 69 the theories of technocracy, traditional plan­ Schwartz, worked through the local political the mayor of Or-Yehuda during the project dominated by party-ethnic political ward- ners "engineer" changes from the top down. authority. This approach was undertaken with period was an active, socially-concerned healers. For their part, ethnic politicians were The planner, responsible both for goals and the explicit assumption that "it will take individual who placed complete confidence in unwilling to tolerate independent citizen means, comes to the job with special interest official political intervention to deal with the the recommendations of his social planner. He organizations. They preferred to run things in biases, being based on scientifically derived or basic problems of the community." These are was also known as a "solo operator" who classic patriarchal and personal style. Local objective standards and a sense of public good two points of view that run through much of not only handled everything himself but department heads, like most Israeli officials, which are translated finally into legislation.3 the literature. 5 enjoyed this patriarchal role within the saw themselves as experts for whom citizen Such an approach, based as it often is on a The evidence from our analysis points to the dominant Iraqi ethnic group. In fact, he often input was inconsequential. They did not distrust of the lower classes or the populace, existence of traditional planning in Or- governed through his ethnic position and believe in this "artificial" or imported takes the form of a paternalistic (scientific Yehuda. Furthermore, the indications are that connections, not on the basis of rationally American idea, and were convinced that it managerial) elite. such traditional (technocratic or deductive) conceived social planning. He seemed to have could not work in Israel generally or with The Fainsteins identify another category, planning was well done. However, a distancing little patience for committee process (the "low-level" Or-Yehuda residents specifically. user-oriented planning. In this instance, users, of the planning from what the general public backbone of planning and coordination), and The planner himself, starting as a political clients, or "the people" provide the goals, was aware of, or seemed to prefer, also often saw himself as the local champion who scientist rather than a social work planner, while the planner executes the plan and occurred. had to do battle with the unresponsive national initially had little patience for citizen involve­ implements it. This is derived from democratic ment. Ethnic Politics bureaucracies. theory. It favors citizen participation or public The close interrelationship between com­ involvement in goal setting through delegate This type of paternalistic planning fits well munity social planning and the local political National and Public Initiative bodies, activist leadership, referenda and the the ethnic nature of Israeli politics, especially system seems, especially in Israel which lacks a Although the mayor was quick to realize like.4 In theory, the planner is the servant of on the local level. Deshen has described this tradition of voluntarism, eminently sensible. A that an experimental planning program could an informed citizenry. He strives for balance process quite extensively.Israeli society is strong and interested mayor can fight the bring to his community resources hitherto among the conflicting interest groups in any composed of a series of ethnic groups based on entrenched bureaucrats of public services, and unavailable, the initiative for the program community as well as for some sense of the country of origin and order of arrival. Ethnic is irreplaceable in many implementation came essentially from the national level. public interest. A more extreme form of this identification has undergone considerable situations. A sophisticated politician would Funding was from the Ministry of Social approach is categorized advocacy planning. In modification over the years. From minority agree with the mayor that such planning in no Welfare. Committees largely involved admin­ this instance the planner actually functions as identification as Jews overseas, country of way interfered with his work. In some cases, istrators who represented regional or even the advocate for the views of his clients, the origin and particular traditions became the planning took on beneficial political impli­ country-wide public sectors. The subjective poor, or the lower-class. significant identifying factors for the new cations for the party or coalition in power at initial impression that few local citizens or These differences are also reflected in immigrant in the land of the Jews. As he and the same time it promoted the program. even local officials were involved in the Gurin's terms. In 1969, at an Interdisciplinary particularly his children acclimated, the old Certainly, his personal interest and backing planning project was confirmed in the course symposium at Bar-Ilan University, Arnold ways began to lose their significance. The account for the ultimate progress of the of the evaluation. Gurin identified two models for municipal group, however, continued to retain signif­ program in the area of education. social planning. One type, exemplified in Beit icance through family attachments which It is obvious that in a development town Underdeveloped Local Social Shemesh and Netivot, concentrated on the became important elements in the social dominated by one ethnic group for many Service Resources mechanism of "Voluntary Development structure. In the political arena, groupings years, things get moving if the mayor is from The planner, and other informants, pointed Councils", composed of local volunteers and became blocs of voters over whom the various the dominant group, and if his personal out repeatedly that Or-Yehuda may have been community leaders aided by professional staff. political parties have vied on the national and commitment is behind the program. If he (or an unfortunate choice as a demonstration The second model, the Pilot Project initiated especially the local level. Thus, party loyalties the deputy in charge) is distracted by community because of its very limited social in Or-Yehuda in consultation with Meyer have been based largely on ethnic group re-election demands, poor health, obligations service resources. Like many development attachments rather than ideology. 3 In his "Policy Planning Models . . . ," Journal as a member of Knesset (Parliament), trips to towns, the personnel of its various services not Europe or America, etc. the local planning of Education for Social Work, 8 (Fall 1972), 30-39, The Mayor only had minimal professional qualifications M. Gruber identifies Technocratic and Techno- process suffers. Such political leaders are but were also inadequate in number.7 It Political planning rationalities which are similar to There seems to be general agreement that seldom amenable to social work programs of follows that local staff of Immigration, or what the Fainsteins call traditional planning. 5 A. Gurin, "Prospects for Social Planning in widespread citizen involvement. Furthermore, Recreation-informal education, and of the 4 Israel," Social Problems in Urban Renewal, Ed. William Petersen makes a useful, and similar, the public, primarily of Iraqi origin, was more Department of Education were quite limited in Dan Soan (: Bar-Ilan University School distinction between deductive planning and "plan­ used to paternalistic political leaders and ning as process" in his article "On Some Meanings of Social Work, 1969), pp. 1-12. 7 Three department heads were replaced during officials than to democratic participation. If of Planning," Journal of the American Institute of 6 Shlomo Deshen, Immigrant Voters in Israel, the project period (one as a direct result of planning there was a public committee, it was usually Planners, 32 (May 1966), 130-142. (Manchester University Press, 1970), pp. 172-199. efforts).

70 71 their ability to follow through. Even after a that intended mid-point evaluation. Unfor­ precision in the area of goal determination or communities and with national standards program plan was evolved and approved, there tunately, four years passed before it was goal operationalization. (where available). This included recreation and park areas per population unit, community was seldom anyone to implement it. If undertaken. The Lack of Baseline Measurements implementation did take place, the planner and youth centers, school rooms, number of Operationalizing Project Goals himself had to do it, leaving him with less time Equally distressing to the evaluators was the children per class, etc. Indicators chosen were for plan-making and coordination. The second difficulty faced by the research­ fact that no baseline measurements had been broadly related to various project goals. The planner was further frustrated by the ers was to determine what had been the made of community or service conditions 2) Indices of Pathology and School Prob­ lack of local community-work staff. Although objectives of the Or-Yehuda planning project before the special planning interventions were lems: some 30 community-work students from a when it was initiated, four years prior to their initiated. Lacking such documentation, it was Again relying on existing data sources, nearby University had done their field work in involvement in evaluating its progress. Efforts difficult to indicate with any certainty the this measure was to compare present rates of Or-Yehuda since 1969, only one chose to take were made to read all early documents, and to extent of changes brought about by the social pathology with those before the project employment with the local welfare office, and interview key persons who had been involved project—or to pinpoint those changes which began—both in Or-Yehuda and in other this for less than a one-year period. Little help from the project's inception, before specifying had taken place since the project got communities. These rates included welfare was forthcoming from the Amidar housing the first tentative list of goals. It was necessary underway. Various alternative procedures cases, school drop-outs, juvenile and adult worker. Social work students, placed for a to exert care to ensure that these decision­ were devised to assess the extent of community crime, incidence of selected diseases, over­ period of one academic year, may have makers were not now influenced by selective change, as is documented below. crowding in housing units, out-migration, etc. accomplished many important things, but they memories, or that project goals were not The proposal called for comparison of Evaluation Procedures Used could not substitute for permanent local staff. distorted by current developments. The fol­ facilities and indices of social need related to This lack of professional workers no doubt lowing goals were identified: In recognition of the limitations of any the various programs of the project, based on limited the kind and number of things which single baseline measurements for evaluating secondary data. The plan was to compare 1) Setting up a social-service planning office the planning office could undertake. the Or-Yehuda project, the researchers pro­ Or-Yehuda, before initiation of the planning 2) Conducting a survey of current community posed a four-level investigation, utilizing project and since, with several similar develop­ services; Is Or-Yehuda Representative? existing as well as newly generated data.8 ment towns, and wherever possible with 3) Setting up a representative citizen advisory Some of these measures could provide a national averages or standards. The towns In comparing Or-Yehuda with other devel­ committee; "self-control," comparing the current situa­ selected were Shderot, and Kiryat opment towns, there is little to indicate the 4) Expanding local health services; tion in Or-Yehuda with the one prior to Ono, the latter having been included in the peculiar needs of this community which 5) Public housing for large families; initiation of the project. Outside controls original survey of Or-Yehuda services (done in justified a unique program here rather than in 6) Recreation service for youth; 7) Services for the aged; could be introduced by other procedures; e.g. 1970). another community. There is reason to believe 8) Services for immigrants; comparisons with national standards and/or that conditions in Or-Yehuda are typical of Extensive investigation of available data Comprehensive program of community edu­ with similar non-project communities, as revealed the shortcomings of this approach. development towns with large (young) families, cation: available. Year-by-year comparisons are usually imposs­ a relatively unskilled labor force, and limited 9) Family life education Specifically, this four-level proposal for ible because of the lack of ongoing data community facilities. All of these features are 10) Programs at well-baby clinic evaluation of developments in Or-Yehuda collection. What one typically finds is a present in other towns of similar background. 11) A toy and games library included: onetime survey of a particular community with Furthermore, the problems posed to the 12) Special program for school dropouts regard to some variable, but no reexami­ researchers by these circumstances are no 13) Mental health service for youth. A. Use of Secondary Data: nation. It is also difficult to find comparable doubt typical of problems faced in commu­ These specific program recommendations were data from one community to the next .9 nities in many parts of the world. taken to represent the initial goals set forth for 1) Community Facilities: Thus, from an extensive search and large the planning project. The researchers therefore Available community facilities were to be Specific Research Complications number of variables originally proposed, only undertook to evaluate the stage of advance­ compared with the pre-1967 situation in Delay of the Evaluation a small number could be located, and these did ment of each specific program, as well as of Or-Yehuda, as well as with other similar not necessarily provide a clear cut picture. The The Schwartz proposal recognized that per­ the overall planning thrust. 8 Such use of multiple controls is described by H. Israeli government maintains social statistics iodic evaluation must be an integral part of the Once these goals were described in terms Hyman, C. Wright, and T. Hopkins, "Principles of systematically through registration (vital planning process. In line with this, the which gained universal agreement, they had to Evaluation," Applications of Methods of Eval­ statistics), enumeration (last census was con- planner's Survey of Community Services was be translated into operational or measurable uation (University of California Press, 1962), pp. issued in October 1970. Dr. Schwartz himself terms. Again the danger of current impact or 3-86; D.T. Campbell, "From Description to 9 This problem is not unique to the Israeli returned for an on-the-spot field visit in June retrospective distortion was taken into ac­ Experimentation: Interpreting Trends as Quasi- situation. See Handbook of Vital Statistics Methods, 1971. A more formal evaluation was anti­ count, since these procedures had to be Experiments," Problems in Measuring Change, (Studies in Methods . . . , Series F no. 7, New York: C.W. Harris, Editor, (University of Wisconsin cipated at about the mid-point in the five year devised ex-post facto. The original planning Statistical office of the United Nations, Dept. of Press, 1967), pp. 212-242. demonstration project. This report is based on project did not include any research-oriented Economics and Social Affairs, April 1955), pp. 5-7.

72 73 Level of Planning Actors Actors in Municipal ducted in 1972) and periodic surveys of sample Community programs were analyzed accord­ Actors in Other Participation Services Politics populations. However, since the data needed is ing to two sets of criteria. The first was sometimes not available on a local level, and indicated on a Scale of Program Progress Local Citizen Local volunteer Neighborhood party data is often not current, internal compar­ (SoPP) for each goal-related planning pro­ contact ability is fragmentary at best. In addition, gram. These levels were defined as: Community Workers or Local Staff person Party secretariate many of the data on characteristics needed in 1. Description of the initial (problematic) situa­ university students community evaluation are simply not available tion. to the researcher. Thus, it becomes necessary 2. Definition of needs. Field Instructor of Local Supervisor Member of to generate original data through survey 3. Identification of key decision-makers. university students (within the local or City Administration sampling if a baseline for objective evaluation 4. Initiation of planning processes for the service or agency) is to be established. program. 5. Arrival at policy, goal, or strategy decisions. Or-Yehuda's Planner Director of local Mayor B. Content Analysis of Correspondence and 6. Creation of an implementation system. services or agency 7. Earmarking of resources to the program. Minutes 8. Activation of volunteers. Consultants or Supervisor Regional Supervisor 9. The actual giving of service. from Ministry of Welfare or Consultant Minutes and correspondence for years 10. The existence of specific numbers of regular 1971-73, on file in the planning office, were service-users. National-office personnel Person from national Member of Knesset analyzed for each specific planning program. 11. Prediction of prospects for the future of the from Ministry of Welfare office of various services In each case, the data were coded for initiator program. of the document, number and administrative It was argued that these eleven steps were International personality International personality rank of participants, number of social services essentially sequential, so that the attainment of involved, frequency of communication, and any one of them included all the previous ones. With such an analytic model, it was possible to additional interviews were held with the program's attained stage of advancement Although this model was created for the summarize the over-all involvement pattern of planner. (initial planning through implementation). quantification of the content of written 658 participants, and to determine the modal Each correspondent was asked to comment Various nominal and ordinal scales were then documents, it proved amenable for evaluating type of persons involved in the total planning on items from a prepared list of programs developed in order to shed light on the data from all other sources, too. It enabled the project as well as in each of its sub-prob­ (central to the over-all project goals during the coordination functions of the planning office. researchers to judge the state of progress of the lems. 11 preceding four years) in which he may have From central documents and files supplied over-all community project, as well as to been active or about which he was know­ by the planner, we found 23 minutes (of compare each individual planning program C. Interviews of Key Participants ledgeable. Respondents were specifically asked meetings) and 144 letters for the period under with the others. 10 to detail the progress of programs in which study. Of the minutes, 16 were prepared by the The second analytic criterion used to Over a period of eight months, intensive they had been key actors. Although interviews planning office, 7 by other sources; of the analyze the planning projects was the admini­ interviews were conducted with 12 actors who were based on a schedule, they were open- letters, 52 were from the planning office, 92 strative level of the decision-makers who had been intimately involved with the Or- ended enough to include appropriate probes. were sent to the office by other initiators. represented the 17 different services involved Yehuda planning project (e.g. members of Researchers strove as much as possible to Granting that these records may not encom­ in the meetings or in the letters. These were various planning committees, the mayor, capture the richness of the planning process pass the entire scope of activity, the re­ categorized on a Decision-Makers Involve­ university faculty members, special consult­ for each of the programs outlined in the searchers were impressed by the volume of ment Scale (DMIS), as follows: ants, professionals in the Ministry of Social research goals. Most interviews lasted 1 Vi to 2 correspondence and minutes on file. These 10 Using this analytic tool (S.O.P.P.), the re­ Welfare, and staff persons from various hours. Besides providing additional factual records were seen to indicate the attention searchers were able to determine that, of the 13 Or-Yehuda services) since its inception. Six information, the interviews supplemented given to the various planning programs in planning programs in the Or-Yehuda project, six official documents through experiential mate­ " By using this analytic tool (D.M.I.S.), the Or-Yehuda during the study period. Other were executed fully to stage 11, and one other rial, provided insight into the personalities and researchers determined that of 658 person-contacts sources such as interviews confirmed this reached stage 10. Of the remaining six programs, perceptions of key participants, and clarified during the study period, only 10% were from levels assumption. two bogged down at level 7, three at level 5, and one precise matters not fully explained in the 0-1, 7% were from level 2,61% were from levels 3-4, at level 3. 21% from level 5, and 1% from level 6. These written records. findings confirm that traditional or technocratic Data obtained from these interviews were planning was typical of the Or-Yehuda project. organized around crucial themes which Similar analyses of persons involved was done for emerged from a look at the totality. Under each of the thirteen programs within the over-all each theme, illustrations were taken from planning project.

74 75 specific community planning programs which Community-wide planning is important, but who participated in it. but it can also provide a replicable baseline for were part of the Or-Yehuda project. Delib­ a community the size of Or-Yehuda is rarely a 4) Community Survey — a neighborhood future evaluation of the program and its erate efforts had to be devoted to protecting single homogeneous population group. It by neighborhood sample was selected in order impact. In this way, one can expect to move the identity of the respondents. follows that "needs" might be more acc­ to achieve community feedback regarding the beyond good intentions, practice knowledge, urately determined on a neighborhood basis. planning topics stressed by the project in or intuition regarding a planning process. D. Community Survey Since neighborhood communities often have particular, and regarding citizens' attitudes With periodic objective assessment of the particular ethnic and demographic character­ towards community issues in general. 12 effectiveness of an investment of limited In order to find an indicator of how the istics, such information is also useful for the The four-fold approach to evaluating the community resources, based on measurable project's various outputs were reflected in the planner and the implementor who are inter­ Or-Yehuda Community Planning Project has criteria instead of impression, we can make lives of Or-Yehuda citizens, a stratified ested that their services be properly used by the many potential advantages. Multiple measures effective use of the remaining project years, as probability sample of the population was various parts of the community. can yield an assessment of the progress of a well as plan creatively for the future. interviewed. A total of 258 households were Such a survey should actually have been community program which would be unattain­ Another advantage related particularly to selected from the water-tax lists of each of undertaken at the start of the program to able through any single measure. Not only is neighborhood by neighborhood feedback seven neighborhoods into which the com­ provide a baseline for comparison, but it was this multiple-measure approach important in through a community survey is the possibility munity is divided. This constituted almost a not. While no comparisons could be made to monitoring the current status of a program, of tailoring future development of a large- 10% sample of most neighborhoods, and 20% previous findings, the results of this opinion scale program to specific population groups. of the one neighborhood with a very small survey are of immense value as a baseline for 12 Survey findings confirmed that there were great This could be the springboard for demon­ differences from neighborhood to neighborhood, population. Each family on the list was visited any future evaluation of the project or of the strating research-related social planning in a both in characteristics and attitudes. It can be said by a local interviewer who spoke with the community generally. way which has rarely been possible in the that Or-Yehuda residents had a number of concerns head of the household or his spouse. In cases which were related to the programs in the project community. Even within the framework of Summary where the selected family could not be generally, but some substantial differences turned elitist planning, these tools can have value in interviewed after two attempts, a predeter­ In this paper, the authors have described a up in concerns regarding sanitation, streets, parks enabling the genuinely concerned public mined alternative was selected. number of instruments which they applied to and transportation. In fact, a recent unpublished official to keep his finger on the community After much deliberation, the researchers the problem of evaluating the course of survey of 15 development towns confirms public pulse. decided that local high-school student inter­ community planning in an Israeli development concern about such items as Sanitation and In general terms, if a planning unit is to be employment in Or-Yehuda as well as other towns. It views could best attain rapport with potential town. Given the realities typical of such initiated in any local community, it is excellent also confirms great public confidence in the respondents. They were used despite the settings, it was necessary for the researchers to policy that the activity be subject to inde­ Well-Baby Clinics, dissatisfaction with Kupat greater possible skill of outsiders. Thus the develop a multiplicity of tools by which to pendent evaluation at regular periods. It is Cholim, and a general interest in recreation Centers measure the progress made. In fact, the interviews had to be highly structured. for all age groups (see M. Lissak, Emdat equally vital that some form of baseline Because of these conditions, interviewers authors used four instruments for such HaUchlusiah Halronit DeYisrael Klapei Maarechet measurement of conditions be established received a precise orientation before they set purposes: Sherutei HaRivacha, Tel Aviv: HaHistadrut before the project is activated, so that out, and careful follow-up was maintained on 1) Secondary Data - Comparisons were Haklalit, 1973, Mimeo). Within such over-all evaluation of results at a later date makes the interviewers' activities. made horizontally, with other communities aspects, neighborhood differences were so great that possible accurate measurements of change. Included in the interviews were questions and with objective (national) standards, as one could easily pinpoint small target populations This paper suggests some ways in which this for specific programs related to those neighborhood about respondents' over-all satisfaction with well as vertically, at a time prior to the project can be effectively accomplished in less than needs. Or-Yehuda, the priority they attached to and at subsequent points in time during ideal conditions. various community programs, their awareness implementation. of and involvement in the social-service 2) Analysis of Documents — content agencies now available in their community, analysis was done of minutes and correspond­ and their awareness of the existence of the ence, in order to determine the stages of planning project. development on the Scale of Project Progress Using computer analysis, the results were and the Decision-Makers' Involvement Scale. related to such independent variables as Both these instruments enabled the evaluators neighborhood, occupation, size of family unit, to quantify their findings regarding the Western-Eastern background, and years in planning process' impact. Or-Yehuda. In this way, we sought the 3) Interviews of Key Actors — interviews differential impact of the program on the were used to complete the picture of planning various segments of the population. process, from the viewpoint of various persons

76 77