WE WANT YOU INVOLVED... But

By Joe Bannon

THERE IS NO SUBSTITUTE for professionally trained administrators in the recreation and park movement. It is also true that in a democracy such as ours there is no substitute for the voice of the people. The participation of informal but organized lay groups in the determination of the purposes and policies of public recreation and parks has been increasing rapidly in the last decade. Many citizen groups represent informed and dedicated laymen who see the public need, interpret it, gain support for meeting it and finally see that it is met.

If the park and recreation executive regards the citizen involvement movement as a fad simply to be tolerated, his program is not likely to benefit greatly from lay participation. Severe repercussions may occur as a result of such an attitude. An independently organized group of citizens with little access to facts and operating without professional help and concern may understandably work for purposes that are diametrically opposed to that of the recreation and park board or the city council.

Citizen involvement should not be confused with pressure group tactics. It is an effort on the part of concerned citizens in a representative government— citizens who do not expect the official administration or the political structure to do their bidding without their active effort and support being applied whenever and wherever it may be helpful. In fact, it is their work on particular matters whose concern and opinion that is represented by the elected official. Such active involvement by citizens in the development of the local recreation and park program is the subject of this article, "We Want You Involved —But!!"

CITIZENS LEARN BY DOING

Citizens learn best the meaning of recreation and the local need for a program by using their special abilities while serving on committees and boards appointed by the recreation and park board or city council. Through their involvement in searching for workable solutions to problems," citizens often become committed to the recreation and park program. Urban renewal officials have found when local citizens assist and become involved in carrying out surveys of housing and community living conditions, they gain a broader awareness of the need for urban renewal and often become spokesmen for such a program among their fellow citizens. Citizen's participation depends upon citizen understanding of the recreation and park program and its importance in the overall community program. The professional staff cannot provide this understanding alone. Active citizen groups can do a wide variety of things. The Cities of Chicago and East St. Louis recently involved citizens in the planning stages of the Model Cities Program. Committees were formed and studied such problems as housing, recreation and parks, education, welfare, police and finance. As a result of this citizen involvement, action programs were developed and are presently being implemented.

Recreation and park executives have long heard the words "involvement" and "leadership." These words imply that administrators should provide opportunities for citizens to become involved in the decisions that affect them. It has been pointed out through research and actual experience that involved citizens, (1) increase the degree of "we" feeling, (2) provides those involved with a better understanding of park and recreation problems, (3) decrease the amount of conflict between citizens and the park board, and (4) provides neighborhood groups with the opportunity to freely express their frustrations and concerns for the recreation and park problems may be latent or unconstructive but can become active, organized and constructive. Consultants in the Office of Recreation and Park Resources at the University of Illinois are frequently called upon by such groups. It is also the experience of these consultants that proposed solutions for the recreation and park problems may provide motivation to action for a large number of residents, if effectively brought to their attention. Professionals may point out problems and suggest solutions; however, the making of policy decisions, the mobilizing of public

Joe Bannon is Chief, Office of Recreation and Park Resources, University of Illinois.

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understanding and support to carry out these decisions will need the assistance of citizens who are actively involved in promoting the program.

In the broadest sense, citizen involvement in public affairs is a fact of political life that applies no more and no less to recreation and in parks than it does to any other function of government. Involvement is an overworked word but is a much underworked activity. Recreation and park officials should act quickly to provide mechanisms that will allow its citizens to become involved through the ballot box, attending public hearings or being present at monthly meeting is no longer enough. People must become more intimately involved if government is to provide a service relative to citizen needs.

The question always arises, "How much should citizens become involved in the decision making process?" Are citizens qualified to make rational decisions in light of emotion; and isn't the elected board representative of the people? Of course, there will always be this dilemma, whether to incorporate as a part of the official process citizens who are "unqualified" to make decisions. These arguments are superficial and probably of little importance. There are too many instances to indicate that it's possible to work with citizens with all benefiting from the results. The critical question seems to be whether or not the conditions necessary for successful citizen involvement are acceptable to the administrative and political establishment in whose hands the initiative lies. Many of our administrators and members of the political community feel the involvement implies abdication of responsibility. Nothing could be further from the truth, however, involvement does imply some sharing of the decision-making process. One of the reasons why the above question always arises is that there never has been an adequate resolution in policy and practice of what citizen involvement is, can and should be. Many of our administrators spend more time figuring ways of evading it rather than considering its merits. Certainly the board and administrator that accepts the idea of involvement must recognize not only the assets of its practice but also its liability. Citizen's involvement does not mean that your committees will agree with all your plans and proposals. It does mean that neighborhood groups may oppose your plans, or they might want more thorough explanations for the board's proposals. It also means that the citizens involved may be the board's severest critics, however, once these citizens involved have been sold on your policies

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INVOLVED...

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and plans, they can become your strongest supporter.

Citizen involvement is needed in the recreation and park program to educate both the board members and administrators regarding the needs and wishes of the people, and the people regarding the facts that must be seriously considered and the opportunities that may be available in the program. It is also needed in order that the best energy of citizens may be brought to focus effectively upon problems. It is further needed in order that neighbors may work through some of the problems about which they are concerned, and with the park and recreation officials cooperatively make plans that are sound and within the ability of the board to provide.

SIXTEEN SUGGESTIONS

When considering a program of citizen involvement, the following suggestions should be considered:

1. Don't expect the citizens involved to agree and rubber stamp all of the programs and policies of your agency.

2. Don't underestimate the citizens ability to make rational decisions.

3. Undertake a program of training and orientation for citizens who become involved in your program. This will help them become more aware of the problems and anxieties encountered by the board.

4. Understand that the citizens involved are not as close to the program philosophies as the board, therefore, in the decision making process a different value system may be used.

5. Understand that the inner-city residents, and especially the black community, are already skeptical as to the sincerity of the establishment's concern for citizen involvement.

6. Be sure that the citizens understand the capabilities of the board-don't overcommit yourself. Citizens often become frustrated because the board didn't produce "as it said it would."

7. Establish an atmosphere whereby citizens involved will have the opportunity to speak freely.

8. Provide an opportunity for the citizens involved to explore areas of your program and administration. Often the insecure administrator will discourage this kind of involvement and comment "this is for board action only."

9. Initiate a program of citizen's involvement before the crisis hits. Often the agency encourages this kind of involvement when it is too late.

10. Be a good listener. Citizens' groups often have worthwhile things to say. Give them their opportunity to say it.

11. Before a citizens' involvement program can be initiated, a rapport must be developed between the board and its citizenry.

12. If a citizens' involvement program is to be a success, some control over policies and fiscal arrangements must be offered.

13. When working with the involved citizenry, be sure that the citizens to whom you communicate are in fact, representative of the community.

14. Citizens involved should be given opportunities for discussion of all business items. Indeed, an atmosphere of permissiveness should prevail. While some time may be lost, it is generally agreed that this policy is sound.

15. Provisions should be made whereby citizens involved should have the opportunity to present formal written reports to the agency regarding program and policy recommendations. Remember that there will be factions and special interest groups. Disgruntled minorities with their pet programs will be abundantly evident.

16. Citizens involved need to understand that their relationship to the recreation and park board is as an ally and not as a threat. Overall goals and objectives of the two groups are in fact, identical, as all seek to improve the program of public recreation and parks.

Illinois Parks and Recreation    27    July/August, 1971