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Involvemet in Decision Making Is Really Like at the Local Level. I (rf-- DOCUNENT4ESO-NE ED 144 218 EP 009 919,.. AUTHOR . .415ogulof, Netvin B. TITLE- Citizen ParticipatiCn:he Local Perspective. INSTITUTION Urban Inst., Washington,. DC,. SPONS- AGEWCY.1--7Z' Department of Helling aneUrban Development, Washington, D.C. T PUB DATE 193p.; For 4-related document; se 6 EAk009'920 AVAILABLE FROM The Urban Itstitute, -2100 N Street, N.W.,ilashingtOii., D.C. 20037 (Order \No. URI-80002, $3.00) ERRS PRICE NF-$0.83 Plus, Postage'. DESCRIPTORS *Citizen Participation; *Community Agencies .(Public); *Co munity Role; Decisionflaking; *Federal Programs; *Pub ic Policy. .I ABSTRACT- This report is intended:r to coXplement. a related publication that examines citizen participation fro.6the* perspective of federal policy and the managers Cf that policy,-In contrast to that' approach, this report examines citizen participationfrom the local perspective in order to provide a feel fox what citizen involvemet in decision making is really like at the local level. Seven 'federally sponsored City or cCunty-based'public agencieswere selected for observation, including 1)a. Neighborhood Health Services Center, '2)a Community Action Agency, 3) a Legal S'ervices Center, 4) a Model City Agency, 5) a Tenant's 'Council .in a public housing - project; 61 'an Urban Renewal Prbject 'tree Committee, and 7)a community .Nental Health' Cedter. These local agencies represent programs sponsored by .the same four major federal agencies examihed in the related report. Rather than presenting separatecase histories of each local agency, the, report analyzes theseven agencies according to common categories of interest, including representation, aspects of.participatiOri, decision making, relationships with other agencies, aspects of Minority community developmept, and fedal-. relation sq. ps.(Author/JG) 44*******44**************************;p******************************.** . * Documents acquiied by ERIC include Many informal unpublished * * materials not available from other sources. ERIC makes.every effort * * to obtain the best copy -aVailable. Nevertheless, items of marginal. * * reproducibility are often encountered and this, affects thpquality * * of the microfiche and hardcopy reproductions ERIC makes available * .* via. the* ERIt Document Reproduction Service (EDRS). EDRS is note *resPonsible for 4.the quality of the original document. Reproductions ** Supplied by EDRS are the- best that can be made from the original.,* *****************************.****************************************: . I, U S DEPARTMENT OF HEALTH, EDUCATION &WELFARE NATIONAL INSTITUTE OF EDUCATION - THIS DO'CUMEN'THAS BEEN REPRO DUCED EXACTLY AS RECEIVED FROM THE PERSON OR ORGANIZATION ORIGIN. MIN(' IT POIrS OF VIEW 0,3,-OPINIONS STATED DO NOT NECESSARILY RtP14E SENT OF FILIAL NATIONAL INSTITUTE OF EDUCATION POSIT IOMOR.POLiCY =. r BOA'1143' O_F TRU EES Arjay Miller,-Chairman Robe McNamara Jean Fairfax. J. Irw Miller : ,Eugene Fran D-Murphy William Gorham _Herber Scarf ='( Katharine Graham ChailleL. SchUltze ' . Robert V. Hansberger Willie W. SCranton, Vice-Chairman Vernon E. Jcirdan, Jr. -Fratlid n A. ThOmas , Edward Hirsch Levi Cyrus. Vance Bayless 4. Manning Johii .Venernan Stanley Marcus Jame Vorenberg ,,.. , INSTITUTE OF ICERS- .. -4, Witliim Gorham, President Robert Harris. Senior Vice-PreStden Harold W. Guthrie, Vice - President for Research Herman T. Boland; jr., Vice-President for Administration EdmardE. Wallace, Controlier, f I ...The Urban tristitute is a nonprofit research corporatiOn established in 1968 to st*Ody, problems of the 'natiion's urban icommu:nities.' Independent and non- partisan, the ,Institute responds to' current needs for disigterested .analyses and basit.informatiopa6ii atterriptsitoacilitate theapplication.ofthis knowl- edge. As' part Of this'effort,; it Cooperas with federal agencies, states, cities, associations-of pdblic-offici4ls, the' emic community aild other, sectors of the general.publicf, , . i,rhe InStiti4te's research findings a a bro ritfge of inielpretN,e-view- points arepu.bliSlied a S' an:educatioal seri/1i CO'n'CluSicinS -expreLssed_ in- firs.' titute pUblicationS, are ;those of theikthors;., nd do :tot, necessarily reflect the,VieWs., ofotherStaffrnemberi, Offi ustee. of the Institute, or. of.; . pilianiz,atic3hswhich provide` funds.iOivardi-supor,toOnstitutOtOilies. These:!reiearch stare made ,ayaiiablir< three' serigt, of,;;Publica-- trans:" toOks a'nda,iReP cifilent.;publicatib is... 'available on =request 4 - - SA' o . PbblicaricihS-Off (Ce TheUrbanibititute: ° --,Washfiltton; pk.'200370,77' - ,r; The research and Studieslforming the basis for this publication were conducted with financial support from the Department of HOusing and Urban Development. The views expressgd are those of the authoi and do not necessarily represent the views of the spoisof-of.the research or of The Urban4nititute. -1 , REFER TO URI-80002 WHEN ORDERING. \ UI 138-5 '\ ISBN 87766-0654 L Available from Publications-Office 'The_Urban Institute 2100 M Street, N.W. Washington,,D.C. 20037 List price: -43A0 'C/73/500 0 CITIZEN PARTICIPATION: THE LOCAL PERSPECTIVE CONTENTS Page/ .I. 'INTRODUCTION . f 1 ' , 0?' II. LOCAL STRUCTURES FOR PARTICIPATIOJ'1 AND POTENTrALSFOR INFLUENCE ON DECISION MAKING=2" . 0 0 0 , 8 - III . REPRESENTATION ,. -I A. Election and Selection'.. °- a .. s . B. The Use of a Constituency .1.8 C. Organizing the Community::: ...... 2,6 Multiple Serviceon Community' Boards 35" E. Profile of theietikesentative ... 41 ti IV. ASPFCTS OF PARTVIP.ATION- . 47 , .... A. The Quality of the Experience 47- 0' 0 0 B. The -Road to Jobs 0 : .. A C. Stipends and :Allowandes . 59' . , 4. a , /61 D. Board Composition 0. °..... .. .. 61 ' . - - D E. Training 1r x 4 .. ck, c -to ' 68 e 4. 0 V. DECISION MAKING . .'-, . -':.'.........,- . .:, .. , .0'. 0 A , ....14 A. The CharacterofDecisions. Influenced' ;by' . L"-t- ' CoMMUnity 'Representatives. .11 ..- .,.,,,- ,---- -... -, .... ..., ..... B. Relationship's.BbtweenFactions. in' Faking' .',-. -: - -DecisIons, , .. ....,,. 4 . .-- .s., e , - O t. ,e O to C Caucutiiing-land Bloc Vo.,ting . D. AkviCe or,ConiintTheElusive--Diffsrence- . c. E. Technical Assistan0 for Decision Making .107 VI. RELATIONSHIPS WITH OTHER.AGENCIES v,- ,Y t.A.. Influence on the Etablished Agency Consupity 0. --z, 13.: Relationship's Between Agencies HavingCitizen- ... Pift.tdipation . -123: 12f1, VII. ASPECTS OF MINORITY COMMUNITY DEVELOPMENT, . : . .,. - . VIII. FEDERAL RELATIONSHIPS '1141 IX. SUMMARY AND CONCLUSIONS 147 - A. Character of the Minority Population 152 13; Advocacy' Behavior on the Part, of Local and Federal-Staff 157 o. , 1. ,..Representation . ... 164 -2. Participation . .3. Decisipn Making 171 RepresentativesandaConstituency '4173- 12. '.,Access .. ....... 175 . TeOhnicalsAasiSfance . 177 4..S4pends Miximpm Stiiiiiarfr. 178 .. ....... 179 . 181° '-ncluding Note . , Q -iv- 0 20 217r. 6 II It h .4 n7: . CITIZEN PARTICIPATION:- THE LOCAL PERSPECTIVE -,INTRODUCTION In anearlier Institute report,we examined citizen participation . '' ,Opm,the vantage point of Federallpdlicyand the managers of that pOlicy.* 4' , . :. Iltietever the meritsi,ofthis previousreport, it lacked a "feel" for what , = s ,e cittzen,involvement in decision makingwas "really" like: at the-local llvel This later report,,isjen attemptto fill in the local perspective on citizen, participation. Seven city or tounty-basedagencies, located in the farWest;--were al.,. ,:eelected,foi observation. These seven agencies were: 1) aineighborhood , = , Health'Seivices Center, 2)a Community Action Agency, 3) an Otd-supported 4' 4' Vlegal :Sericee Center, 4) Model City Agency, 5) a Tenants' Coudtil in a a PUblic housing -,project, 6) Urban Renewal Projeceltee. Committee, and , ) it community Marital Healt These aeven_local'efforts represent programs sponsordaby.threemajor ederal agencies: . The Department of . ., ..-- -',Horsing 'and-Ilrban-Developmeni, The Office,of Econgiic Opportunity and the 0 -7. -,.".;.! Departmeni_Of Nealth, Education and Welfare. One Of the seven agencies, . .t. , . , Model Cities4 wasalso -the of a Concenrated-Bmglciymeht. Program, .4.-., "t and ishat way a Department of Labor supported . effort was also observed. ti . I . In effect, all four Of the agencies whose policieswere previously analyzed . ' . from the Federal vantage poini,are now being at in the person of their .1 ally supported constituents. C *Melvin B. Nogulof, Citizen Partic ipation:,' A Review andCommentary on- 'Federal Policies and..Pradtices,-The Urban.InstituteWashington; 11. 6 . P :7 ^ ' Ara:, . , . _ Two of the seven-pibgrams ,observed ope ate on acountyLwide basis _ (die Community Abtion Agency and Legal Services); the othei five7 , . .., ... 4 than! . agencies are all concerned' with a population having a-smaller - -----.-- . , . - . A . city base:These remaining the agencies are .located in tgo different , . , ; :'s . The Community Action,Agency and counties and :fteurdifferent, cities. , . f - 1 ' the-Legal Services -RrOgram'are specifically concerned with poor peoples, . within their counties, and tie otherfive programs are allselective of their ,target populations withinasuii!-area of a city or an unincor- 411 orated area of a. 40unty. In each of these five sub-areas theprogram's target population is substantially orpredaminaritly black. In the 41 . c) 'tables which follovadditional background material. is indicated about . each of the seven communities'and agencies in which.observations , took,place.: (See Tables I and 'II.,) , o' The
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