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INFORMATION to USERS Xerox University Microfilms INFORMATION TO USERS This material was produced from a microfilm copy of the original document. While the most advanced technological means to photograph and reproduce this document have been used, the quality is heavily dependent upon the quality of the original submitted. The following explanation of techniques is provided to help you understand markings or patterns which may appear on this reproduction. 1.The sign or "target" for pages apparently lacking from the document photographed is "Missing Page(s)". If it was possible to obtain the missing page(s) or section, they are spliced into the film along with adjacent pages. This may have necessitated cutting thru an image and duplicating adjacent pages to insure you complete continuity. 2. When an image on the film is obliterated with a large round black mark, it is an indication that the photographer suspected that the copy may have moved during exposure and thus cause a blurred image. You will find a good image of the page in the adjacent frame. 3. When a map, drawing or chart, etc., was part of the material b«>ing photographed the photographer followed a definite method in "sectioning" the material. It is customary to begin photoing at the upper left hand corner of a large sheet and to continue photoing from left to right in equal sections with a small overlap. If necessary, sectioning is continued again — beginning below the first row and continuing on until complete. 4. The majority of users indicate that the textual content is of greatest value, however, a somewhat higher quality reproduction could be made from "photographs" if essential to the understanding of the dissertation. Silver prints of "photographs" may be ordered at additional charge by writing the Order Department, giving the catalog number, title, author and specific pages you wish reproduced. 5. PLEASE NOTE: Some pages may have indistinct print. Filmed as received. Xerox University Microfilms 300 North Zeeb Road Ann Arbor, Michigan 48106 76-15,824 STARR, Gerald Alan, 1943- ORGANIZATIONAL FUNCTIONS AND CONFLICT IN A REGIONAL COUNCIL OF GOVERNMENTS: AN APPLICATION OF PARSONIAN THEORY. The University of Oklahoma, Ph.D., 1975 Political Science, public administration Xerox University Microfilms, Ann Arbor,Michigan4sio6 THIS DISSERTATION HAS BEEN MICROFILMED EXACTLY AS RECEIVED. THE UNIVERSITY OP OKLAHOMA GRADUATE COLLEGE ORGANIZATIONAL FUNCTIONS AND CONFLICT IN A REGIONAL COUNCIL OF GOVERNMENTS: AN APPLICATION OF PARSONIAN THEORY A DISSERTATION SUBMITTED TO THE GRADUATE FACULTY in partial fulfillment of the requirements for the degree of DOCTOR OF PHILOSOPHY BY GERALD ALAN STARR Norman, Oklahoma 1975 ORGANIZATIONAL FUNCTIONS AND CONFLICT IN A REGIONAL COUNCIL OF GOVERNMENTS; AN APPLICATION OF PARSONIAN THEORY APPROVED BY DISSERTATION COMMITTEE ACKNOWLEDGEMENTS Only one name appears as author on this dissertation, but in a real sense many people have participated in its creation. I wish here to acknowledge the debts I owe to those who assisted, counseled and encouraged me in my research and writing. It should be made clear, however, that any errors or omissions are entirely my responsibility. Special thanks are due Dr. David Morgan, chairman of my disser­ tation committee, for the guidance he gave me in formulating and carry­ ing out the study. His painstaking review of the manuscript was especially helpful. I am also grateful to the other members of the committee—Dr. Hugh NacNiven, Dr. Walter Scheffer, Dr. Samuel Kirkpatrick and Dr. Ted Hebert—for the generous contribution of their time on ny behalf. Indeed, I should like to express my appreciation to a ll the members of the Depart­ ment of Political Science at the University of Oklahoma. It has been by their teaching and example that I have been enabled to make the study of politics my vocation. Mention must be made of a ll those connected with the Association of Central Oklahoma Governments who gave so freely of their time during ny research on the organization. Executive Director Larry Goodman, his staff, former employees of AGOG, and a ll the mayors, councilmen and commissioners interviewed in the course of the study have my sincerest appreciation. One cannot help but admire their dedication to the public i i i interest after having had the opportunity, as I had, to learn first­ hand th e ir contributions to public a f fa ir s in c e n tra l Oklahoma. Finally, I wish to acknowledge some more personal intellectual debts. One is owed my parents, who shared with me their faith in the value of education and interest in political matters. The other is owed my wife, Linda, to whom this work is dedicated. As loving critic and as an incredibly uncomplaining and indefatigable typist, she contributed so very much in bringing this thesis to fruition. iv CF Chapter 1 . SEKLQBLÜl O0ÜIICILS: HEB O BGA M ZATIim i, SSSTTBIE.......................... 1 OOGs: A Wdhmbaxj %prcaic& to lietæopolitan CoorôîDatiioii ipparent BnoMasme in the COG Device Ih i^ ri4 » l E v id e n c e of COG ^m deqpad^ H . PABSDHÏA3Î AID -CG05CÎLS OF GOmmKEBTS.......................... 2$ Some Aspects of Barsoniaa fbeczy %reonian Theory in delation to ComcilB of Gcmemments Some Brohlems in Applying Barsonian Theory to Oonncils of Governments Design of the Bes^nrch H I . THE ASSOCIATION OF CMTBAL (XLAHCHA GOTEBIOCSTS................. 83 The O rigins of ACOG ACOG‘8 Development: 1966-1972 The F irst Six Tears in Farsonian Terms 17. THE HEOHGAHIZATIDH OF ACOG . ..................................................... IliO A Rupture of the Association The Appearance of CACOG The Hew ACOG Agreement Aftermath of the Reorganization Opinions of ACOG Directors 7. CONCLUSIONS AND PREDICTIONS.......................................................... 107 Farsonian Theory and ACOG Theoretical Perspectives on Some Inherent Problems Some Comments on the Future of Councils of Governments BIBLIOGRAPHY...............................................................................................................218 APPENDK...................................................................... 228 ORGANIZATIONAL FUNCTIONS AND CONFLICT IN A REGIONAL COUNCIL OF GOVERNMENTS: AN APPLICATION OF PARSONIAN THEORY CHAPTER I REGIONAL COUNCILS: THE ORGANIZATIONAL SETTING COGs: A Voluntary Approach to Metropolitan Coordination Great urban aggregations have always interested Americans. The United States began its experiment in democracy as a nation of farms and small settlements, but for most of its tumultuous existence its peo­ ple have been preoccupied with the impulse to found, build and experience great cities. More recently, in the light of the new reality of metro­ politan America, there came a disturbing realization that a spirit of design and form—of civilized order—was missing from our urban life. The cities contained stunning wealth together with shameful poverty. They featured expressions of monumental artistic grandeur, but these were submerged by vast stretches of graceless architecture. Americans had brought to the cities their aspirations for success, yet millions of city dwellers spent lives of fear, deprivation and despair. \fe found our great cities were gripped in an "urban crisis." The federal government's responses to our urban ills have been as varied as the explanations of their causes. One reason that has been advanced is political fragmentation, or the division of the metropolis 1 into a host of independent, overlapping, presumably uncoordinated and inefficient governmental units. There are central cities and suburbs, counties and special districts, townships and school districts, boards, authorities, trusts and commissions. The very title of a study of the 1 New York metropolitan area, lUoO Governments. suggests the problem. Such balkanization of authority is thought to account for much of the perceived confusion and waste in public services as well as for disor­ derly urban growth. If there were a single central authority, it is thought, the quality of public services would rise; the cost, fall. Inequities in the financial burdens of separate jurisdictions would be removed through the aggregation of resources. The voters, presently confused by a plethora of elected officials of indeterminate respon­ sibility, could intelligently decide whether policy makers for the area deserve approbation or dismissal. On the other hand, the fragmented metropolitan community has its defenders. It is argued the existence of many relatively small governments i n s t i l l s in c itiz e n s a sense of community and provides them ready forums in which to air their grievances. The multiplication of public offices provides more access points to groups seeking a degree of influence over political affairs. And, the pragmatic observation is made, partitioning the metropolis with the fences of political boundary lines helps insulate the citizen from peoples who might violate his 2 sense of cultural homogeneity. Furthermore, say the critics of metropolitan unification, the chief argument offered for political consolidation—efficiency in the delivery of public services—may be exaggerated.^ With respect to the need for cooperation between jurisdictions, H. Paul Priesma says we have not recognized the substantial amount of intergovernmentsj. coopera- I tion already present in the metropolis. Other observers believe that for many purposes a m ulti-jurisdictional pattern wherein services can be "marketed " according to their economic externalities or intem alities, is actually advantageous con^red to a regional political "Gargantua.
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