Citizen Participation in Child Welfare
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Bell & Honndl Information and Leaming 300 North Zeeb Road, Ann AM,MI 481061346 USA ûûG52T110600 CITIZEN PARTICIPATION IN CHILD WELFARE: TOWARD 'REAL CITIZEN POWER' by Cindy Knott A THESIS SUBMITTED TO THE FACULTY OF GRADUATE STUDIES IN PARTLAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF MASTER OF PUBLIC ADMINISTRATION DEPARTMENT OF POLITICAL STUDIES UNIVERSïîï OF MANITOBA/UNIVERSITY OF WINNIPEG AUGUST 1999 National Library Bibliothèque nationale l*l of Canada du Canada Acquisitions and Acquisitions et Bibliographie Services services bibliographiques 395 Wellington Street 395, rue Wellington Ottawa ON K1A ON4 Ottawa ON KIA ON4 Canada Canada Yoirr& votr. rs- Our fi& Norre reYrenw The author has granted a non- L'auteur a accordé une licence non exclusive licence dowing the exclusive permettant à la National Library of Canada to Bibliothèque nationale du Canada de reproduce, loan, distribute or sel1 reproduire, prêter, distribuer ou copies of this thesis in microfom, vendre des copies de cette thése sous paper or electronic formats. la forme de microfichelfilm, de reproduction sur papier ou sur format électronique. 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THE UNIVERSITY OF MANITOBA FACULTY OF GRADUATE STUDIES +++** COPYRIGHT PERMISSION PAGE CITIZEN PARTICIPATION IN CIiILD mLFARE: TOWARD 'REAL CITIZEN POWER' by Cindy Knott A Thesi~cticumsubmitted to the Ficulty of Graduate Studies of The University of Manitoba in partial NAllment of the requirements of the degree of Master of Public Administration Cindy Knott 8 1999 Permission has been granted to the Libnry of The Univenity of Manitoba to lend or se1 copies of thlr thesidpricticum, to the National Library of Canada to microfilm this thesislpracticum and to lend or seii copies of the mm, and to Dissertations Abstncts Internation8l to publish riibstract of us thesidpmcticum. The iuthor reserves other publication rights, and oeither this thesislpracticum nor ertcnsive extracts fkom it miy be printed or othernisc reproduced without the author's rsritten permission. TABLE OF CONTENTS CHAPTER 1 PURPOSE AND ORGANIZATION ........................ 1 Introduction ....................................* 1 Statement ofthe Problem ........................... 2 Background of the Problem .........................4 Organization of the Thesis ..........................6 CHAPTER 2 REVIEW OF THE LITERATURE ......................... 10 CITIZEN PARTICIPATION .............................. 10 DeMgCitizen Participation ....................... 10 THE CHILD WELFARE FIELD .......................... 13 Definhg Child Welfare ............................ 13 The Historical Context ............................. 14 Child Welfare Legislation .......................... 17 Sûuchual Arrangement ............................ 19 The Role of the Child Protection Agency .............. 21 SUMMARY ........................................... 25 CHAPTER 3 THEORETICAL REVIEW ............................... 26 Citizen Participation and Democratic Theory ........... 26 Participatory Democracy ........................... 27 MODELS OF CITIZEN PARTICIPATION .................. 30 A Ladder of Citizen Participation .................... 30 Limitations of the Typology ........................ 31 Represmtation Versus Direct Participation ............. 32 Instrumental and Consummative Participation .... 33 Limitations of the Models .......................... 34 The Dialectical Organization ........................35 Dimension 1: Client Relations ................. 35 Dimension II: Administrative Stmcture .......... 37 Dimension III: Orghtional Ideology ......... 37 Dimension IV: Organizational Mentality ........ 38 Limitations of the Dialectical Organization .............39 THEORETICAL FRAMEWORK ..........................41 SUMMARY ...........................................44 CHAPTER 4 THE PROVINCIAL CO- ...........................45 Citizen Participation in the Legislative Process ..........46 Public Hearings ............................ 48 Citizen Participation through Advocacy ............... 55 The Children's Advocate ..................... 55 SUMMARY .........................................*.59 CHAPTER 5 TKE ORGANEATIONAL CONTEXT .....................61 Decentralization .................................. 62 Centralization .................................... 72 Citizen Participation in the Community ......... 74 Area Councils ....................... 74 Community Relations Cornmittee ........ 85 Agency Renewal Process ........................... 86 Workplace Participation .....................-90 Stakeholder Participation ..................... 91 Citizen Participation in Agency Renewal ........ 92 SUMMARY ..*.........*..*...........................97 CHAPTER 6 SERVICE DELIVERY CONTEXT ...................*.... 100 Family Group Decision Making ..................... 102 Background ............................... 102 Philosophical Base ..........................103 The Conference ............................ 106 Evaluating Family Group Decision Making ...... 111 Citizen Participation through Family Group Decision Making .........113 SUMMARY .........................................120 SUMlMARY AND CONCLUSIONS ....................... 122 LIST OF REFERENCES ................................. 128 LIST OF FIGURES FIGURE 1 Eight Rungs on a Ladder of Citizen Participation .................... 31 FlGURE 2 Dimensions of a Traditional Bureaucracy and a Dialectically Opposite ûrganization ................................................. 42 FIGURE 3 Decentralized Administrative Structure............................. 63 FIGURE 4 Centralized Administration: Geographically-Bad Model of Service Deliv ery .................................................... 73 FIGURE 5 Schematic for Area Councils .................................... 79 FIGURE 6 Program-Based Mode1 of Service Delivery ......................... 88 FIGURE 7 Partnerships in the Winnipeg Family Group Decision Making Mode1 .... 104 FIGURE 8 Examples of Family Group Conference Participants ..................109 FIGURE 9 Family Group Conference Process ................................ 110 FIGURE 10 Results and Outcornes of Family Group Decision Making ............. 113 FIGURE 11 Cooperation ................................................ 118 ACKNOWLEDGEMENTS A number of individuals contributed to my ability to complete this thesis. 1 would like to express my sincere thanks to the following: In addition to my advisor Rofessor R. Adie, 1would like to thank my cornmittee members, Professor K. Gibbons, Professor B. McKenzie, and Professor M. Debicki. In addition, 1would like to extend my appreciation to those employees of Winnipeg Child and Family SeMces and The Child Welfare and Family Support Branch for participating in interviews and contributhg a great deal through their experience, opinions, and knowledge. I would also like to thank Winnipeg Child and Farnily Services for supporting my efforts by providing some very beneficial information. 1 am also grateful to Andrew Maxwell for his assistance and expertise in editing the fht draft of this thesis. 1 have a number of fnends and family to thank for their encouragement, support, and enthusiasm throughout the entire project. Knowing you were al1 behind me made completing this work possible. Also, to al1 of you who said "you'll do just fine", 1 would like to note that your confidence in my ability helped me through the final stage. Finally, 1 am most appreciative of my good fiiend Mike. This thesis would not be what it is without your technical expertise. More importantly, your encouragement got me started, while your support and patience helped me through. 1 am most grateful for your fiiendship and help throughout the past two years. There is not enough ways to thank you. PREFACE This thesis assembles not only information obtained hmthe literature on citizen participation and the child welfan