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m USE OF PUBLIC RELATIONS PRIICIPLIB, II WHO] 1'0 WILL
mm GROUPS, ‘10 CREATE A TAfl-F’ORCI MACH 10 CITIZEN
PARTICIPATION .

mm]: Sub-1t“! For
m '3' (inundation By

Jim 1101M,
Juno 11', 1973, to

Platoon: Donna Altman,
mum, Advisory donut“

  
     

\ .

MGAN

THE 1“» 13

”rag" w“ l I. 314

-- and: «a. ..-.«

.aw.

9.3.3! 9.! m
mmcnon
MO)! I - he leeeeeity of hint-inns e Public Beletieu
Attitude, ee e Planer. in Developing revenue
Citizen Attitudee hum Planning end Plenure.

MICK II - he Role of Special-Interest Grape in the
Planning Proceee.

SECTION III - nae reek-hm Approeeh to Citizen Perticipetion,
Beeed on Special Intereet amp Imlv-ent in
the Planning Pmceee .

concwsxox

BIBLIOGRAPHY

eeee P3. 1

.... P‘. 8

eeee he 15

eeee he 22

eeee he 28
eeee he 30

 

ImmeTION
Generelly, it one: be eteted thet, en the profusion of urben plenning
hen becone e greeter rector in the deterninetion of connunity policy, end
ee it hee beoone nore entrenched in the con-unity edninietretive structure,
perticipetion by locel citizenry in plenning releted decision-fling hen
decreeeed. Peter H. leeh end Dennis Burden, in their fl. Jonrnel erti-

ole, “A reek-Force Approech 'Do Rephce The Plenning noun-1

heve developed
en hietoricel eix—etege echene which chore the decline of citizen pertioi-
petion en the pmfueion of nrben plenning hee beoone nore entrenched in
con-unity deeieion-neking eyetene. i'heee etegee include 3

1. 22.1.2.1. human 9335;. In thie period, citizene begin to
think end not creetively concerning the deliberete eheping of their future
phyeieel enviroment. Thin ie the beginning of orgenized forethought or
plenning. Gonnnnity lendere neet infenelly to diecnez individnel prob—
lenz. no they eriee. There in e greet deel of eonnnity perticipetioniend
little or no tone]. plenning expertise involved in developing eolntiene to
problem during thie etege.

2. 321; m We Plenning ectivitiee heve beeone nore fer-
nelized end citizens neet et regnler intervele to dizcuze connnnity prob-
lene. Deliberetion ie etrictly project-oriented end etill focneee on one
problen et e tine. with increezing citizen pertioipetion end greeter
neeting frequency, thie group beconee e oohezive unit, voicing eonzunity

goele. 'nae preteeeionel plenning input in still ebeent.

 

1. Inch, Peter H. a: Bennie Burden. “A Peek Force Appreech to Replece the
Plenning Boerd“. Journel A.I.P.. Feb. 1961!, Vol 30
Pp. 10-20

-2-

3, 11113 W m: At thie etege, connunity plenning ie fonelized,
en the citizen group beconee pert of the con-unity governeentel ztructure.
Boerd nenbere ere eppointed by elected officiele end their nation: bcoone
nore nerrow in scope due to delineetion end oonpertnentelizetion of the
con-unity “beerd.eyeten'. Aleo, en ezpect of con-unity perticipetion ie
loet due to the often politicel neture of boerd nenber eelection. At thie
etege. censultente ere often hired for epecific problen ereee.

1}. Introduction 9; mg Me An preblene beoone inoreeeingly
conpler, end the citizen plenning beerd.reelizee thet it hen neither the
tine nor the erpertiee to cope with the nultitnde of denendz nede by the
con-unity, technical pereonnel ere engeged on.e full-tine belie. under’the
supervision of the plenning boerd.

5. ‘angzfiggggglugggggg; With the develop-cut of nore centrelized nuni-
cipel governnente, eepecielly the etrong neyor'or’city'neneger typee, the
chief executive neede to here developnentel progrenz under'hie direction.

At thie point. profeecionel plenning beoonee e eteff function. The citi-
zen plenning beerd, elthough still en inportent voice in the developnent of
policy. intervenee leee end leee in the work echedule of the plenning de-
pertnent. The plenning boerd.ney recon-end, however>edninietretive notion
in teken by the chief executive. with the concurrence of the city council.
The boerd.ney find iteelf beconning nore end nore of e rubber etenp end leee
end leez of e voice for connunity opinion.

6. Intggggtion with urben Developgent: The edvent of federellybee-

n,

~3-
sisted urben redevelopent in 19” end urben renewel in 19515 heve conbined
to give ispetns to the creeticn of lerge depertsents cf urben develcpnent.
within these depertsents. direction for verioue projects concerning the fu-
ture of the consunity is centrelized. As e result, with planning in this
lerger nrben developsent content, the typicel independent boerd finds itself
even further reseved fies eccess to decision-senile.

lesh end burden do not feel thet ell co-nnities heve cespleted this
evoluticnery schese. However, they do feel thet nest ccnsunities do lie
scsewhere eleng the continues end eventnelly will eppreech stege six. where
citizen perticipetion is elnost nil end pleasing decisiens ere ”rendered
free on high“ by lerge urben developsent depertsents.

In order to elleviete the phenomenon of dininishing citizen pertiei-
peticn, seny diverse egencies heve ettenpted to “build it in" their vsrious
progress. However. no egency. tentbeok or ergenizetien hes presebted em
effective nethed of integreting the recognizebly inportent objective of
citizen perticipeticn within the plenning moose. The Depertsent of lensing
end Urben Developent. in its W m using!“ m L

GnigLIinesggeAisggcrent, stetes: ”To ensure thet plens. progrensend
policies developed by plenning egeneies, lccelities end districts . . . ere

responsive to the objectives end velnes of the citizens effected by thu.
the grent recipient snot institute neesnres for ensuring effective citizen
perticipetion. '2 This requiresent, elthough deleted elong with other require-

 

2. Different, Sick. Article entitled "gag Perticinticn in the My
" Propered for Presenteticn for the Fifth ; Annnel Conference of

the leticnel Service to Begionel councils - nerch i971

-fl—

sents end progress by recent federel funding cutbecks, reseins e valid stete-
nest of the besis upon which neny of the existing ettespts et developing cit-
izen perticipetion originsted: sore the child of forced necessity then of
recognized need. As e result. this “child“ has often not been nested end
thus neglected, creetiyg dissent there hencny end occpereticn hed been
sntieipeted. It one be reesonsbly concluded free the ebove steted “guide-
lines“ thet 3.0.1). hed intended to include citizen input within the verieus
elesents of the plenning process. however, the unresolved question went
unenswered end still reseins: How does e ccnsunity go ebout creeting rele-
vent citizen input? he nost widely used evenue of epproech hes been to

' cerecflully structure e forsel ergenizetien which, sore likely then set, nsy

be lebelled the “citizens‘ Advisory Conittse.' Jeck Different, in his
erticle, "Citizen Perticipeticn in the Plenning Progren", described the
besis structure of e citizens edviscry ccnnittee, in e nutshell, es:
“First, we (the edsinistretivo body chergod with esteblishing such e ces-
nlttee) decide whet we went the Citizens' Advisory Oelnlttee to do, usual:
fonuleting for it e stetesent of purpose, end then we seek to identify the
groups. interests or cepebilities which we feel an contribute nest to the
Connittes, end w the Gonnittee, to our own connissicn, council or
ether fenel group. Finally, senes ere selected frcs escng e list of pos-
sibilities. end the Citinens' Advisory Gennittee is procleised to be in
ecticn. The nesbers ere teld to elect officers, follow eertein rules, end
stend reedy to convene when we heve en eppropriete subject reedy for then. '3

 

3. Did Pp}.

-5-
In other words. e “showpiece“ ergenizetion. cosposed of “the right People” is
crested. orgenized end guided by en egency to d-onstrete the degree to which
the connnity is involved in. end concurrs with egency decisions. Different
eleo describes the life end deeth cf the Citizens' Advisory Gossittee in the
following sennera “The Gonnittee ney be convened often. or infrequently.
depending upon the issues to be decided. We present our propoeel, there in
zone discussion end the Gossittee sets to endorse our proposel. Grsduelly,
thereseesstobefewerendfewerissuestopresenttothe Gesnittee. end
nesbers lose interest - if indeed they ever hed eny. And thus. we end up
with en indifferent group of citizens ”I“. who my feel. through the i:
structured petricipetien systu. sore elieneted m- the plenning process
then hsd there been no fernel citizen involv-ent st ell. Ar. Different's
enslysis cf the citizen's edvisory consittee sey heve been e bit entrees.
however it does seen to present the “rubber steep“ isege of such groups re-
ther well. his reflects e feilure on the pert of sdninistretive bodies
euthorized to fen citizen perticipstion groups to recognize thet citizen
perticipetion should be considered es s continuing process in itself.- not es
nerely en isplied steep of epprovel to be brought inte the pleasing moses
efter plens heve been developed. In this vein, Aenen Isvine. in his AEPO
i965 erticle entitled, 'Inplesentetion of Plenning Principles“. stetes:
“The sore I see of it. the none I es convinced thet the successful inple-
nentetion of e plen is entirely dependent upon whet hes gone on end whet hes
heppened end how things heve been done in the period before the isplesestetion

 

1+. Ibid Ppl.

-6-

stege ( usuelly the stege et which citizen participation enters the plenning
process). The context of the pies itself is not neerly es inth es the
weyinwhich itnespreperedendthe ortonttowhich thopeoplowhoheveto
follow through (the consunity) heve been involved in the decisions esbodied
in “10 P1“; In other words. people nust becose involved in the plenning
process itself before they on be expected to note e relevent contribution
to plenning releted decision-suing.

Besed upon the shove-steted need for relevent citizen perticipetion. it
is ny contention thet the use of proper public reletions end consunicntions
principles by the plenner cen not only stinnlete interested citizen pertici-
petion, but elso creete e seeningful citizen contribution to the pinning
precessdteelf. The body of this peper is bzzed upon the essusptiens thet
there is e need, es well es s piece in the plenning process for citizen per-
ticipeticn. end thet the present Citizen's Advisory Gennittee type ergenize-
tion is not the best nethod by which it one be best utilized, end thet it is
the plenner's responsibility to develop it. Assnsing. therefore, thet there
is e need for citizen perticipetien. the probl- confronting the plenner is
hon best to develop the process. so well es the ergenizetionel structure, to
encospess end encourege citizen interest end ective perticipetion. Levine .
lists two necessery principles to observe, in this vein:

1. “here nuzt be e genuine connitsent to citizen perticipetion thet
requires sore then just lip service."6

2. ”Citizens suzt heve e sound ergenizetien“) in tons of oonsunity
structure, dediceted volunteers. respouible ection end vnrrying levels of

 

5. Levine, Aeron, ASPO Plennigg 1&5, erticle entitled “People end the

6. R33»? fit

 

steff support. '7

The peper will ettespt to show. therefore, thet the tech-force epprcech
to citizen involvclvesent. besed on e sore cospleto knowledge of the plenning
process brought ebout through the proper use of public reletions end consuni-
ceticns techniques. ney provide e besis by which the plenner us develop sore
widespresd, enthusiestic citizen perticipeticn.

Three sections include:

i. he necessity of seinteinizg e public reletions ettitude. es s plenser,
in developing fevoreble citizen ettitudes tonerd plenning end plenners.

2. The role of speciel interest groups in the plenning process.

3. The test-force epproech to citizen perticipetien. besed on speciel
interest group involve-out in the plenning process.

 

7. Ibid Pp 121}.

-8-
scenes _1_

Mg“: f We Pug wt; t.tude_t_i
mm szcreble Cit___i___zen Attitudes To__w:_rd_ Plenniggu: L—%n% 2

Igbsteg's Dictiog defines professionelisn so: “The conduct, nine,
or quelities thet cherecterize or serk e profusion er prefessionel person.”
Likewise, e profession is defined esi "... e celling requiring specielized
knowledge end often long end intensive properetion . . . e kind of work which
hes for its purpose the rendering of e public service.“ Inplicit in these
definitions is the erection of reletionships between the professionel end his
client thet develop bonds of trust. fenilierity end e sense of unity, in thet
conson gcels end objectives ere sought by both the professions]. end his client.
In order to creete these bonds. the client nust possess or develop e besic
knowledge of the function of the profession. his besic knowledge is then
expended through essooietion with the professionel, either directly or in-
directly. to the point where he 'hows whet to expect” frcs his reletionship.
es s client, with the professionel. In this vein. everyone “knows" thet the
profession of nedicine is concerned with the petient's core; thet the pro-
fession of lew is bssed upon trust end works in the client's best interests;
thet the professionsl scientist serves the truth: thet the professionel
educetor brings out in his pupils their own best cepebilities. But whet does
the professionsl urben plenner represent? Reticulity? heeunebleness?
foresight? Prscticelity? host professions heve decided upon en inege to pre-
sent to the public - their public inege. In this context. the professionel
plensor hes fered none too well. Uhet hes deneged the profession, in this

~9-

eroe. .nost hes been the snltiplicity of contending definitions of the pro-
fession, its functions end its goels end objectives - ell of which, in tote.
hes hed serious consequences for the profossion's public inege. It is ny
contention, therefore. thet the profession of urben plenning should beocno
ncre ewero of its ispect upon the public - which. in this ceso. elso heppons
to be ectnel or potential oliontollo - beginning with besic knowledge con-
cerning the function of plenning end continuing through the pinning pro-
cess itself.

no function of selling itself - its processes, its gcels end objectives
end its besic philosophies - hes historicelly been e weekness of plenning es
e profession. Profossionelisn, by its very suture, inple the selling of e
product or service. In order to ecconplish this, the prefossionel nust build
e fevoreble public inege. As 3.1!. Outlip end A.B. Center stete in their tent.
M m m: ”Sound relationships with the public. over tine,
ere conpcunded of porfonence thet setisfios the public end cossnnicetion of
such setisfectory perfonenco. '8 This stetesent is grounded in the fundesen-
tel fsct thet the public is often sore influenced by the sensor in which on
eventis interprotodthenthoyerebytho eventitsolf. endthetnenynisun-
derstendings son he trecod, not only to nisinforneticn. but to lock of it.
Therefore, e sound public reletions ettitude, besod upon the following three-
fold functicn is e neeesoery tool in the profossionel plenner's repertoire of
onportiso. in. function includes the ebilities «”9

1. Ascertein end evelueto public opinion so it porteins to plenning in

 

i. Gntlip, 3.3. i A.H. Center, lffocting Public Roletions,
Pregtico-nell, Inc.. Inglewood Cliffs. l.J. 1971
Pp

9. ma Pp 151

 

~10-
gonorel end the plenner's egoncy or ergenizetien in perticnler.

2. Counsel edsinistretcrs on nothods of decling with public opinion so
it exists.

3. Use ce-nniceticns to influence public opinion.

Inordor to sell the profession of plenning, the concept of plenning
itself not be sold to the public. John B. Seoley. in his HEM erticle,
'Ihet is Plenning? Definition end 8tretogy.", eptly described on ell too
populer continent concerning plenning when he steted: “One should heve er-
pocted plenning to be e conseuonco or corollery in the 'Opon Society': in-
steed of which it is, enong seny believers in freedon, e 'bed town“ Given
this sttitndo towerd plenning - one of distrust end foer for the loss of in-
dividnsl rights - the profossionel plensor nust ectnelly sell the concept of
plenning to the public. In order to eccsnplish this, three besic W of
plenningnnstbsprosentodinsuchenennerestobocosoingreinodwithintho
public velue systes. Those precepts ineludosj'1

i. Actsofnon, ospocienyplensedscts. nustboholdtobocepeblo of
effecting sets in the future ( if plenning is to heve justificetion) .

2. Acts of non perfornod in the present ereieble to effect ects, con-
ditions or sitnstions in the future, in the respect thet son are shouts thet
is, we ere cepeblo, by notions tekon now, of effecting the not eneunt of good
in the world in the future.

3. Those ects not only ere eblo to effect outoosos worth cering shout,
but else cen effect then in celcnleblo weys. A

 

io. Sooley, John a. . Mufti"; Plenning? Definition end amour, m
ngimmmniim Vol. 28. lo. 2. my 1962
Pp .

11. (Inf-11p & Center. Pp 214.

-11.

hrl lewson hes developed four "Principles of Public Releticns" which
should be included within the professionel plenner's 'beg of tricks“ desig-
ntod to creete e fevoreble public sttitndo concerning the concept of plenning.
niece four principles include.“

1. W 1 es People will ignore en ides, en opinion.

e point of view unless they see cloerly thet it effects their perscnl foers
or desires, hopes or espirctions.

2. mm: Peoplodo not bw idoes seperetod froz notion -
either ecticn tehon or shout to be token by the sponsor of en ides, or notion
which people thcszelvos cen conveniently teko to prove the norit of the ides.

3. mnciplo g; hnilieritz _ep_d;_ 1:21;. He the people buy idoes only fron
those we trust: we ere influenced by, or sdopt, only these opinions or points
of view put forwerd by individuels or institutions in when we heve confi-
donco.

h. m m: be sitnstion snot be cleer to us, not confu-
sing. The thing we observe, reed. sec or beer which produces our inprossicns
snot be cleer, not subject to soverel interpretetions.

One of the greetest gepe between the profossionel plennor end his l‘ey
clientello, in the pest, hes been the intellectuel olitisn end intense idoel-
isn soon so nocossery bynen plenners—to ettein their “ivory tower“ profes-

' sionel gcels. 'nlis hes often resulted in en 'undorstending gep" between
plenners end the public throw the use of unintelligible notoric by the
plenner. In order to elleviete this sitnstion, the profossionel nust infon

 

1‘2" . * Ibid #151.

 

 

M

 

-12-

the public ebout whet to expect frcn the profession of plenning, whet its
functions ere end whet its goels end objectives ere. To ecccnplish this,

the plennor nust both discern the question eroes thet confront the public
concerning the profession end devise orplenstions designed for the hymn.
According to lewsos's principles. nontioned ebovo, this will eneblo the plen-
ner to osteblish professionel credibility, which say lend to e better unor-
stending end possibly greeter ecceptence of plenning - hopefully wider
public support will result else. The rid-Gounty Rogicnel Plenning Gonnission
hes doscnstretod its recognition of this necessity in e recent publicetion
entitled 353i; gostions AM W M by introducing the pen-
phlet with the following stetesent: “ibis booklet enswors e verioty of
questions in e brief end concise sensor to feciliteto e better undorstending
of the function of cosnunity plenning. It is hoped thet this booklet will
serve e cross section of people renging flon interested citizens end newly
fonod Plenning Oonnissions to new subors of osteblishod Plenning Connie-
sions.” 13 The booklet poses end enswors such questions so: Uhet is Gos-
snlntyPlennim ihyPlen? IhoPlens? HhetDeIouPleanor? Pleasing, es
s profession, needs e widosproed soccptenco coupled with corresponding sction
such es thet taken by the Tri-Gounty Regions]. Plenning Omission, of the
necessity to infcn the public 'ebout plenning'. me reelizeticn end cor-
responding ection will creete en undorstending esong the public, concerning
plenning,which could boooso tho besis upon which e foundetion of totel citi-
zen undorstending end perticipeticn cen be developed.

A nest criticel probles hes elsc erison, in the pest, csusing e greet
13. Tri-county Begionel Plenning Consission, Besic $923122... 'ABout m

Inning, Hichigen, heron, 1973

Pp .

 

 

 

~13-

deel of elionetion botwosn the pioneer end the public - e probles concern-
ing the reletionship between public desires end expectetions end the knowb
lcdge end velnes of the profossionel plenner. Bichsrd A. Lsnenne, in his
‘A131ggggppl,erticlo, “velue Consensus Asong urben Residents“, stetest
'Plennors heve trediticnelly relicd.upon their intuitive estinetes of the
needs end.dosires of the public cr'cn the visicnery ineges of the city
deseloped by creetive thinkers to define the goels of’plenning...'1‘, nether
then the goels hold by the con-unity. Physioel plenners, who dovelcpod.nes~
ter'plens end zoning ordinsnoos, ettenptod to creete City Orderly. Efficient,
loeutiful, etc. without dotsrnining whothor'er not the public ectnelly'wented
then. Ihst the public ectuelly'wnnts fron the professionel plennor’is edwice
on how to olinineto poverty end segregation, sociel potholcgios, pollution
end.nunicipol crises. But whet they else west is edvico on how to choose the
proper'goels end the nest effective policies besod on these goels, not those
ertificielly isposod by the plenner. Proper use of the public reletions tool
would heve dotsrninsd this feet long ego. As Spdney J. Kerrie proclsinsds
”Good public reletions does not consist so such in telling the public so in
listening to it. It provides feedbeck thet is otherwise locking in.tho’or~
gsnizetionel structure. '15 Therefore, the use of public reletions in this
nenner will creete stronger'bonds between the plenner'end the public in thet
the plenner will becose sore users of citizen needs end desires, thereby
posing the soy to sntnel understending end coopsretion. es well so erecting
~coordinetsd. working reletionships. In.eddition, there is elnost unenincuz

 

1h. Lessons, nicherd, A{::=7:lu;_53nscnsus Asong urben Residents“. 122;!l1.2£.
mgsmoumunnumo M. at. no. 5. Sop-1968
P923-

15. Cutlip s Center Pp 186.

-1ls-
egreonent thet the professional planner does not heve genuine decision-
seking euthcrity. Therefore, it is in his own best interests, both pro-
fossionelly end cdsinistretively, thet his rocosscndsticns be justified by.
end grounded on the cnplicitly forsnletod velue judgesonts of his client -
i.e. the cossunity - if isplosentetion is to occur to eny degree.

Cutlip end Center stete: "As public opinion hes grown in force end the
me of influence heve sultipliod, the conpotition for public fever hes stigd-
ily oscelstod. fie struggle to elign people on the side of one's csuso, client
or cospeny hes increesingly bocone conpotitive. '16 Therefore, the profes-
sionel plenner, es s prectitioner, nust see both his obligetion end the
prectioel necessity of developing s well integretod public reletions progres
within the frssowork of the plenning process itself to spur ectivo citizen
support within the cossnnity, both for plenning es s whole end the specific
progress thet heve been developed for the oosnunity.

 

16. Cutlip & Center Pp 105.

-15.
SECTION I;

33; £933 of mold-Interest m .13 313 My Process.

Plenners heve often felt thet. boceuso policynekors could not or would
not edopt their - the plennor's - viewpoint. oozsunity decision-seking rop-
resontod sonothing less then optisun retionelity. As on initiel stop in
ellevieting this sitnsticn, the plenner nust reelizo the wide disperity
between his treditionel notions of rstionelity - the plenning process - end
the ectuel sociel end/or politicel processes by which policies ere ectuelly
chosen end isplosented. He sust then dotonino whet edeptetions sust he
ends in the sothod, stretogy or content of the plenning process in order to
yield public policies sore in line with “plenning process retionelity. " In
other words, the plenner snot bring the plenning process sore in line with
the practicel decision-seking processes of the oozsunity in order to produce
vieblo, isplosenteble progress.

Precticelly speeking, the notion of cosprehonsive plenning serving
totel public interest is incospetiblo with the sorrow interests involved in
the conpotition for power end influence which is cherectoristic of en poli-
ticel systes. To echievo the power end influence nocossery to isplesont his
policies end progress, then, the plenner sust involve hissolf within this
systen. Melvin H. Hobber. in his 51;: Journel erticle. “no hole of Intelli-
gence Systess in 11ar Systoss Plenning". thus stetes the role of the plenner:
”Like ell other politicel ectors, ho is surely e sesbor of on interest group
cosposod of peers who shere his perticuler francs of reference end. hence.
his sociel objectives. With then, he sees the world through speciel filters

~16-

end holds vested interests in eertein concepts. enelytic nothods end socisl
progress. with then. he tries to sell his perticuler brends of retionelity
end his perticuler iseges of socisl welfero."17

strosco D. less, in his ALP; m erticle entitled. "Studios in
Cossunity Decision-noting”, describes the gm Influence Egg; es best
ox-plifying the cosnunity decision-seizing process id Anorics. He stetos
thet the decision-"king structure is cosposed of '. . . e sultiplicity of
lesser concentretions of power, reletively independent of oech other, cos-
peting for influence st tines, end in eertein subject cross, ccoporeting st
other tines end in other subject cross, cccssionelly engegod in outright con-
fliet end often used by politicel lenders to reconcile tensions end con-

flicts within the ccnsunity."18

Those 'systns of influence '19 ere ene-
posed of constolletions or concentretions besod on oconosic, business, poli-
ticel or civic interests. such is cosposed of e ssell oozsunicetions-influ-
ence network tied together by dsily business, politicel roleticsships, or
other less forsel cosson interests. Inforsetion resulting in e cosscn posi-
tion or opinion flows elong flieso network channels - infonetion which is
often bed or insecurete but, which, nevertheless, evokes e unified response
to e given set of circusstencos. It is precisely in this eroe - the infor-

notion-influence chennols - thet the plenner should epply the only scene of

 

17. Robber, nolvin ll.. :Tho file of Intelligence Syst-s in Urbes Systas

Pp. 289
18. lens, Lewronco 1).. “Studies in Cosnunity Decision-liking“, m g_f_
_th_e_ Anoricen Instipgto o_f_ Plenners, Vol. 30, lo. 1

Pp 1.
19. Ibid.

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-17-

influence eveileblo to his: Percussian

0. booked up by the proper use of
oozsunicetions techniques. 3.8. Bolsn, in his All: M erticle. “Cos-
sunity Decision Bohevior", succinctly describes this sitnsticn by ststingl
"Ilith reletively few exceptions, the Anoricen urben oozsunity hes so frog-
sontedsnd dispersed snthority thet the proponent of eny progres or plen
is forced into infonsl errengenontc for exercising losdorchip end influ-
encing decision-seking. It helps to be in e position of euthcrity. if this
con be errenged, but it is still no gusrentee of success. Thus, skill in
inducing sotivstion, in coordissting others notions. end in building s
consensus in s ccntextuelly sppropristo coelition is dosendod of those who
wish to see c proposal through to s feversblo decision cntooso."21 In other
words. Boles cells for the plenner to teko sdventege of his profossienel
expertise end his position outside of - but with sccoss to docision-snkisg
church of - tho politicel process to influence dooisicn-seking through the
use of percussion end co-uniostions.

According to Denjenin Higgins, in his gr; gm; erticle. ”fewerds s
Science of Consunity Plsnniu", the purpose of cossnnity plenning is:
'... to give the people of tho oozsunity the pettorn of lend use they went,
so indicsted by their willingness sc individnels or es s group of texpsyors

 

F6. According to Uillies A. Cases in his book. Power g Discontent. The
Dorsey Press, Rosewood, Illinois. 1971. there ere three types of in-
fluence: Constrsint, inducosent, percussion. Pp 100-105.

21. Bolsn 11.8.. “Cos-unity Decision Bohsvior". Journsl g; 39; Angcen
Insgtutg _o_g Plennors, Vol. 35. lo. b, P 303.

 

(W

~18-
to coverits cost, overeperiodcntoMingesfsrinto thofutnreesusoful
forecesting ponits."22 while edsittsdly en undorststcscnt of the scope of
plenning, Higgins' definition does inply thet develop.“ decisions ulti-
sstoly lie in the bends of the torpeyor - st lesst on the locsl level. Dy
thotors "inthohsndsofthetexpoyor', Idosotsosntoprosotothoneiovo
concept thet osch citizen hes eque'l. potentiel to influence developont
decisions. However, terpeyers. es sesbors of speciel interest groups, heve
the potentiel. so well so the ebility, to influence these decisions end often
do so when decisions of ssjor isport - in reletion to their speciel-interest
group - srise.

It cen be srguod thet the pioneer is successful only insofer es his plens
ere sctuslly put into prsctico. He should, then, be vitelly concerned with
the isplosentetion of plens. in thet he should not sorely present his plens
to the connission end ccssunity council for their spprovel end sdoption', then
wesh his bonds of then. considering his work done. Since he hes worked on
developing the plens, he hes en srportiso thet is vitel to their execution.
due to his knowledge of the plens thcsselves end the beckglound notoriel
thet gsvo rise to then. This enportiso pieces the plenner in s sore edvsn-
tegoous position then then edsinistrstivo officielc to influence oozsunity
decision-setters - ultisstoly those texpsyors who, so nubors of speciel
interest groups, cosbino to exert influence over decisions which effect
their own groups. In this light, the plenner should reelize thet he is e
"nerchent of change". end thet ho is perceived so such by the consunity.

 

22." "mggi—ns-Tfecjuin. j'l'tl'owsrds s Science of Consunity Plenning'. gm
2331;; Azggcen Mitute 9_f_ Planners, Vol. 15, lo. 2. 19'59

-19-
Therefore, he should cossit hisself to influencing the consunity. through
its vsrried speciel-interest groups - the “reel” decisionosekers - by
cresting both on scceptence of the concept of plenning end specific plenning
progress.

Initielly, the plenner sust recognise thet cossunity decision-noting
is derived fros s process ohsncterised by conflicting interests. rother
then s “cos-unity interest”. ibis recognition should creete en ewsreness,
in the plenner, of the necessity to creete positive reletiouships with es
ssny of these diverse cossunity interests no possible. with respect to their
«an... sins end preferences. J.8 Beiner. Everett Reiser end 1'.A neiner,
in their LI: Journsl erticle. “Client Anslysis end the Pleuning of Public
Progress”, heve devised s sethod by which cos-unity speciel interest groups
soy be discerned end how these groups relste to specific public progress.

In their srticle, they stete: ”mient enelysis ensines existing public
progress end deduoes the various gosl positions of sectors of the cos-unity
fros the behevior of people confronting these progress end perticipsting in
or rejecting thes."23 'Ihis m1 my be vslusble to the plenner. is thet he
soy spply its findings to the plsnning process. The results will essble
his to both detersino speciel interest groups end their goels end velnes,
end provide eosentisl dots for erecting sound reletionships with these
MP3. .

Once speciel-interest groups heve been detersined. end their velue
positions osteblishod, the plenner should, through the use of perssesion.

 

23-h. einer, J., Reiser. 3., a: Fe'iner. 1.. ."Glient Asslysis end the Plssuisg
of Public Progress“, Jourusl .c_f_ 93.9. Anoricen mtitute 2i; Plsuners.
vale 29, he a. We. 13;, Pp 270o

 

-2o-
sttespt to influence the sttitudes of these groups concerning his propoesls.
LeBreton end Housing. in their book, Plannipg ESP—11. stete: "those who
seek to influence others can do so by helping to estehlish s shsred feeling
of need for change within the group, thus csusing the group itself to exert
pressures for ohsnge. To the plenner, this sesns thet his work hes greeter
liklihood of success if he cen creete s cognissnce of the need for chenge
within the group of persons who will any out - or couse to be curried out -
his plens or will perticipste in their develop-out. ”2" me velue of group
spprovsl. so s seens of controlling individual sttitudee, should else be
recognised by the plenner in his ettespts to creete cossunity spprovsl for
his proposals. LeBreton end donning note this sitnsticn in ststings ”Group
spprevsl is en extresely strong sotivstion for hussn behsvior. If the plos-
ner sents s son to perfon eose scticu or edvocete chsnge which runs
counter to the beliefs of his group. he hes u very difficult took on his
heads."25 On the other hand. should the group sdvocste the plenner's posi-
tion. the reverse sitnsticn should else spply. end the plenner would heve
en essier tise prosoting his propensls.

' Aston Levine. in his Plsnnipg 1%: erticle, 'I’eoplo end the Plsn",
poses the question: Why should we be concerned ebout oitisen perticips-
tion in the plenning process when we heve professionel plenners esd dedi-
ceted citisms serving on plenning cossissions throughout the country. '26
In enswer to this question. I would cite the ssny difficulties sost oes-
2F. LeBreton W W

geggce Hell lnc.. Englewood Cliffs, ll.J.. 1961

25. 1514 Pp 300.
26. WHO. Pp 119e

 

-21-

susities encounter when sttespting to ispl-ent plens developed scoording to
this view of retionelity. In order to ovoid such difficulties. citisess of
the consunity. represented by speciel-interest groups, should bocese invol-
ved in the plenning process. In doing so, these groups, in oddities to
helping to isplesent specific plenning progress. will becose edvccstes of
plenning end its process.

-22-

£11.... In
lhe lush-Force m_ to Citisen Perticiztion,___ on m m

§_ro_t_ip Involve-out i__s_ th___e_ Plennigg mine.—

If there seess to be conflicting viewpoints put forth in Sections I
end II - Section I prosotes the ides thet it is essentiel for the plenner
to develop positive reletions with the oossunity in gonerel, while Section II
stresses the necessity of creeting strong ties with speciel interest groups
to better onsble isplosentetion of his progress - I would srgue thet the
vest seJority of the citisens of e given cos-unity belong to one or sore
speciel interest groups, nose with sore. nose with less potentiel to exert
politicel influence. LeBreton end Kenning. in Plennipg m egree. in
thet: “The plenner sust. in feet, influence seny persons. end the person
he would influence exists. not by hisself. but so e sesbor of one or sore
groups"... These groups ploy en isport-st port in the behsvior of the
individuel, end the plenner would do sell to understend then if he wishes
his plens to succeed."27 This is not to inpihy thet speciel-interest group
influence is coercive. Unlike euthcrity. it does not depend upon e poten-
tiel lisitstion of choice, but only upon the recipient's perception of the
policy or progres being superior to eny elteruetives. As e result, one
sethod of genereting citisen support for, end involvesent in the plenning
process, is to creete speciel-interest group support end involvesent.
Speciel-interest groups. so nontioned eerlier, ere orgsnised sround business.
netionslity. religion, politicel. civic or other interests, eech of which
hes the potentiel to exert influence in eertein erees end in reletion to

 

27. LeBreton a. Housing. Pp 307.

-23.
eertein issues. However, ell speciel-interest groups influence the opinions
of verious eleseuts of the cossunity end, when token in totel, surely
influence. to e eertein degree, the opinions of e vest seJority of its
citisens. iherefore. should the plenner creete positive working reletiesehips
with these groups. bssed on their perticipstion in the pinning process.
overell citison perticipetion, so well no representetion. will be echieved

in developing sore 'cosprehensive" plens. In oddities. involvnent of
specielinterestgroupsinplsnningwillbuildecceptenceeftheproooss

end its progress. Agein. LeBreton end Homing egree. by stetingi f'Accept-
ence of chenge is feciliteted when sesbers of the group ere eblo to gener-
ete their own chesges. Denied this, the sesbere of the groups effected
should st lesst psrticipste in the plenning thet tekes plsce effecting

thee - even though the ispetus for chenge cones fros outside this group. ‘28
Inotherwords, itis notnecesserythetellthosewhowillbeeffectedby
the isplosentetion of plens perticipete in developing then. But, it is
isportsnt thet groups whose sabers ere effected by these plens be repre-
sented dnring their developsent. Group sesbers sust feel thet their inter-
ests were looked out for during the plenning steges to better ensble plen
isplesentetion. In eddition, by including speciel-interest group represen-
tetion, trust in the plenning process itself cen be developed within those
groups. A sesbor of their own group is in for better position to elicit
cooperetion then is en outsider. If such s sesbor or saber-s heve been
included, subsequent percussion cones such eesier.

2'5. LeBreton e Henning, Pp. 311.

 

 

'"1

 

"'3

-24-

It is the responsibility of the plenner, es s steff s-ber of the
cossunity plenning body. not only to infon cos-unity citisesry concerning
plenning cctivitios, but to crouse interests in being inferred to better
eseble ectivo perticipctien in plenning. In order to ecccnplish this, the
plenner sust recognise thet, besicelly, cost people ere not perticulerly
interested in plenning. However. they generelly becose involved in eertein
cspocts of plenning when, end if. they becose personally effected by per-
ticuler progress. Such specific progress or issues cen be used es en
ispetus for erecting citiseu perticipction. if hendled properly, by the
public-reletions sinded plenner. He ney begin developing citises interest
by erecting e feeling of involvesent on the port of speciel-interest groups
is specific progress. Proper use of Newsos's four 'Pr-inoiples of Public
Relctions', described in Section I . especielly the Identgicctign ganciple
end the mnciple g_f_ fluent; g __i'ru__s_t, essist in erecting the necesscry
feeling of involvesent. The relevcnce of these principles becoses eppcrent
when. so soon is Section II. the extent to which speciel-interest groups ere
involved in the decision-coking structure of the consunity is reclined. 'ro
prosote further involvesent, took-force type citisen groups, consisting of
knowledgcble sesbers of speciel-interest groups, end revolving eround
specific issues. should be erected. Test-forces. by their very ncture. ere
short-tors. probles-oriented ergenizetien. ihis sethod of citison pertici-
pctiou ccn.thus becose en integrcl cosponent of the plenning process end
essist in ellevicting new of the probless cssocieted with the ”Gitisen's
AdVisory Omitteo' cpprocch.

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-25-

In eddition to the politicel inplicctions of speciel-interest involve-
sent in test-force typo plenning groups. severcl prsctiocl results ncy be
derived fros their porticipctioni

i. The test-force nethod, by erecting e coelition of speciel interests -
e coelition scy not result inedictely, however es etneophere of causes
probles-solving end oooperctiou, st lesst initiclly. will be present - should
becose c sechenisn for droning forth the best technicel thinking of the
oonnunity on perticuler issues. Inclusion of these citison experts free
the plenning process deprives both the connunity end its decision-sellers of
potenticlly velucble probles solving input. In eddition, the tech-force, by
looking ct issues through the eyes of groups effected by oonuunity probl-s
end their solutions, sey devise solutions thet otherwise ncy heve been over-
locked or disregcrded. ’

2. Spocicl-iuterest groups. by definition, ere groups of citisens who
ergenise to further sons couson goel or objective. As e result, only those
speciel-interests thet ere involved in c given issue should pcrticipcte on
c given tuck-force. his will lend to ectivo perticipction end c strong
interest group input. (Tech-force -pcrticipction should not be lisited to
eertein groups. All interested groups should be ellewed to heve represente-
tion)

3. he short durction end project orientction of the test-force cllows
both citison end professionel plenning energies to be directed in percllel
directions, thus sinisising the possibilities of the test-force beconning
"hung-up” en tengents end edsinistrctive detcil.

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-26-

h». The possibility of e. tuck-force beoonsing e rubberstesp ergenize-
tien is uinisised due to the personel steke in on issue end the correspond-
ing involv-nt which this inplies for teak-force senbers.

5 . Involvenent of speciel-interest._-. groups in e test-force sitnsticn
generctes e useful by-product in the fern of educctioncl feedbcck, both
between the plenner end involved speciel-interests end esong these groups
thenselves. Over c reletively short tine-period, working reletiouships cen
becose osteblished thet nonelly would heve teken yours, if ever, to osteb-
lish. In this sensor, neny nisoonceptions concerning plenners end plenning
end the objectives end beliefs of eertein speciel-interest groups ecu be
ellevieted.

ihe besic objective of the test-force epprocch to citison involvenent
so steted by flesh end harden is to: '... provide deeper loecl insights by
rsising cud buoedening the dielogues betveen the citison erpert end the rosi-
dent plenner end between eny consultcnts end the citisens. '29 In cdditien,
the objective of crecting en ctsosphere of respect cu. enpcthy, esong test-
foroe senbers, to encble sore hernouious working conditions, should be sought.
be following stctaent frcn LeBreton end Kenning deneustretes the velue of
this objective: “People do not chenge under threet. their cttitudes end.
behcvior ere nodified nest rcpidly cud nest effectively in en etsosphere of
ecceptence. ihey tend to defend their opinions end notions sore vigorously
when they feel on triel. Being sccepted for shut they ere gives then confi-

 

29. Bush end harden, Pp. 17.

 

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-27.
deuce thet they need to any to thenselves. 'I cen edsit to being wrong'.
or"I ney*chenge sy opinion here without suffering enteresssent.' They
rocct fesorsbiy to chenge only when.they one told (by notions rether>then
words) 'Although.I do not egroo with you, I respect your'opinion end its
serits, end I do not think less of you es s person boccuse of our'lcck of

egressest.“ 30

One of the besic functions of the nonrelected citison in the plenning
process is to bring issues end.elternetives into the open, rether then
ellewing then to rennin in the donein of the professionel piesnsr'or the
con-unity edsinistrctive structure. where e pro-icing but politicclly less
peletible ides ecu ecsily be squelched. The testsforce epproech to citison
perticipction bcsed on speciel-interest group perticipction cen help to
elleviete this sitnsticn, by recruiting citison involvenent fron within
speciel interest groups, thenselves.ewncjor cosponent of'the consunity
decisions-sting process. Therefore, while supplying cone of the best think-
ing concerning solutions for’problens fused by the consunity. tcckdfsroes
will else be eblo to exert politicel influence of theirfieunmtohinpdenent
solutions thet they'hero developed.

 

”e 103an ‘ Hm. Ppe We

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-28-
CONCLUSION
i‘he function of citison perticipetion in the plenning process
enteils the erection of e schene which would. es flesh end Burden stete:
'... ellow it (citison perticipetion) to function es e not eddition to
the pinning process, end not es en overlepping eppendsge thet sisply
duplicetes other cheunels ”3'31 This scene thet the citison perticipe-
tion schene nust develop into sonothing other then Jech Different's
”Citisens Advisory Oosnittee", which through neuipuletion by plenners
end cdsiuistretors, hes evolved into en indifferent, rubber-stenp ergeni-
setion. cosposed of ”the right people“ chosen by politicel nethods.
' Shut is needed is e whole new nethed, or schene, of citison perticipetion.
erected out of e totclly new fonet. The new forset should ettespt to
creete both en understcnding of end en enthusicsn for plenning end its
progress. In order to ecccnplish this, the plenner nust develop e sense
of trust in his clientelle - the cossunity es s whole - bcsed upon good
perfonsnces end their consunicetion to the consunity. Once c besis of
trust hes been osteblishod, enthusicsn for becoming involved within the
plenning process nust be stinuleted es en ispetus for ectivo citison
perticipetion. ibis cen be eccenpliehed through speciel-interest groups.
Ibo vest scjority of the citizens of e consunity belong to one or sore of
these groups end, es s result, ere susceptible to the proper use of public
reletions techniques es s tool in erecting this enthusicsn. By denou-
streting the sensor in which speciel-interest groups ere effected by

 

31. Dosh d Widen, Pp. 17.

 

 

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.II III IJII

-29..
plenning. spocificelly certcin progress, perticipetion. either for or
egcinst these progress. one be erected. It is then up to the plenner
to teke edventege of newly developed speciel-interest group enthusicsn
by initicting short-tern teak-force groups designed to develop solutions
for specific progress . Not only hill the tuck-forces provide e weelth of
technicclly-oriented citison input, but the speciel-interest group
representetion will ensble solutions to becose sore widely eccepted end
sore reedily inplenented through the verious sense of influence thet these
groups heve et their dispossl. In sddition, reletionships developed
between the plenner end individuels - cs individucls or embers of
speciel-interest groups - end between the speciel-interest groups thes-
selves, ney creete invelueble working reletionships cheructerised by
understsnding end cocperetien. For the pinning progres of todey, which
is seeking weys end necns to fulfill its growing responsibilities, eon-
nunity ecceptcsce cen never be pernenent. nerefore, it not be sought
egeiuendegeinesconsunityplenningprogresses. Aseresult, these
working reletionships. besed on understending end cocperetien. will be-
cose involueble to the plenning process end. in ny opinion. provide the
'net eddition" to the plenning process thet llcsh end Burden edvoccted in
the ebove-uentioned quotctiou.

 

‘e:

1.

2.

3.

9.

10.

11.

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