The Dynamics of Creating Strong Democracy in Portland, Oregon : 1974 to 2013

Communities across the United States are experiencing a “civic revival” that is reconnecting community members with local decision-making and civic life in their communities. Since the 1980s, academic researchers and local governance reformers have advocated for a shift away from the traditional top-down, expert-driven approach to governance and toward a governance model in which government leaders and staff and community members work as partners to shape the community and make local decisions. Portland, Oregon, since the 1970s, has been known nationally and internationally as a city with a tradition of strong community involvement. Portland’s successes and failures offer a valuable case study into what it takes to develop, implement, and sustain policies, structures, and programs that encourage greater participatory democracy. This dissertation reviews the evolution of Portland’s community and neighborhood system from its creation in the 1970s through 2013 through an examination of the many reviews of the system over the years supplemented by reviews of newspaper accounts and informal, unstructured interviews with individuals who were involved in different processes and programs. This dissertation investigates which elements are important to the success of a city-wide community and neighborhood involvement system, the factors that help or hinder the adoption and implementation of system reforms, and strategies that help embed system advances to prevent them from being eroded or undone. This dissertation argues that a community that wants to move toward much greater participatory democracy and community governance must develop and implement ii a comprehensive strategy that accomplishes three goals: involving many more people in the civic life in their community, building community capacity to organize and be involved in local decision making, and significantly improving the willingness and ability of city leaders and staff to work in partnership with community members and organizations. This dissertation also argues that community and neighborhood involvement systems need to include not only traditional geographic-based neighborhood associations but also communities of people who find their community through shared identity. iii DEDICATION To all the thousands of Portlanders who have volunteered their time in neighborhood associations and other community-based groups over the past forty years and who have helped make Portland the great city it is. iv ACKNOWLEDGEMENTS I would not have been able to complete my dissertation without the ongoing guidance of my dissertation committee members, the support of my co-workers at the City of Portland Office of Neighborhood Involvement, valuable input from many Portland neighborhood and community activists, and years of support from my family. I would like to thank my dissertation committee chair, Sy Adler, for remaining calm and always helping me find a way to keep moving forward, and my dissertation committee members, Carl Abbott, Charles Heying, David Johnson, and Richard White, for sticking with me and remaining enthusiastic even when the chapters got long. I would not have been able to complete this project without strong and ongoing support from my co-workers at the City of Portland Office of Neighborhood Involvement. They shared their experiences of working within the system with me, helped me track down information, covered for me during the extended time I took off to finish writing, and always cheered me on. I particularly want to thank Amalia Alarcon de Morris, Brian Hoop, Jeri Williams, Afifa Ahmed-Shafi, Nickole Cheron, Amy Archer, and Mike Kersting. I also would like to thank the many neighborhood and community activists who shared their memories, frustrations, hopes, and ideas with me and the many city staff people who also shared their experiences and helped me track down information— especially the staff at the City of Portland City Archives office. v Finally, I want to express my deep gratitude to my wife, Amy, and my daughter, Alexa, for their patience and support throughout this long process, for Amy’s proofreading, and for Alexa’s unflagging belief that I could get this project done. vi TABLE OF CONTENTS ABSTRACT i DEDICATION iii ACKNOWLEDGEMENTS iv LIST OF TABLES ix LIST OF FIGURES x CHAPTER