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A study of councilmanic backgrounds, interests, and attitudes in California council-manager cities
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A study of councilmanic backgrounds, interests, and attitudes in California council-manager cities
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Content
A STUDY OP COUNCILMANIC BACKGROUmDS, INTERESTS, AND
• t
ATTITUDES IN CALIFORNIA COUNGIL-MANAGBR CITIES
A T h e sis
P re se n te d to
th e F a c u lty o f th e School o f P u b lic A d m in is tra tio n
U n iv e r s ity o f S o u th ern C a lif o r n ia
I n P a r t i a l F u lf illm e n t
o f th e R equirem ents f o r th e Degree
M aster o f S cien ce
by
V ic to r E. B arto n
s f i
Ja n u a ry 1958
UMI Number: EP64602
All rights reserved
INFORMATION TO ALL USERS
The quality of this reproduction is dependent upon the quality of the copy submitted.
In the unlikely event that the author did not send a complete manuscript
id there are missing pages, these will be noted. Also, if material had to be removed,
a note will indicate the deletion.
D.isseftalion MMisNng
UMI EP64602
Published by ProQuest LLC (2014). Copyright in the Dissertation held by the Author.
Microform Edition © ProQuest LLC.
All rights reserved. This work is protected against
unauthorized copying under Title 17, United States Code
ProQuest LLC.
789 East Eisenhower Parkway
P.O. Box 1346
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'S ?
Thix thesis, written by
Vi otor E* B arton
under the direction of the undersigned Guidance
Committee, and approved by all its members, has
been presented to and accepted by the Faculty of
the School of Public Administration in partial ful
fillment of the requirements for the degree of
MASTER OF SCIENCE IN
PUBLIC ADM INISTRATION
,
D ate.
. 1958.
G uidance Committee :
Chair
3 » .
TABLE OP COITEWTS
CHAPTER PAOE
I . Î3SITR0DUCTI0H.................................................... 1
The O b jectiv e# ..................................................... 1
Im portance o f th e S t u d y * ...................... 2
Scope o f th e S tudy ........................................... 2
IX . REVIEW OF THE LITERATURE........................... if
P re v io u s L i t e r a t u r e .................................... if
L i t e r a t u r e i s P e r i p h e r a l ............................ . if
I I I . SOORGES, PROCEDURE, A M D MATERIALS USED . . . 8
S ources o f D ata. ............................. . . . . . 8
Method o f P ro c e d u re.................................... 8
The Q u e s tio n n a ire ................................. 9
R eferen ces Used i n C o n s tru c tio n . . . . . 10
C o n s tru c tin g th e Q u estio n s ..... .. 12
D e f in iti o n o f Terms. ....................... 12
Why In c lu d e S p e c ific Q uestions . . . . . I 3
Problems W ith S p e c if ic Q u estio n s . . . . lif
D i f f i c u l t i e s I n I t s U se............................ . 16
D ate o f Data S u b m i t t e d ....................... 18
The S a m p le ....................................................... I 8
S e le c tio n o f th e Sample. . ........................ 18
Adequacy o f S iz e .................................. 20
R e p re s e n ta tiv e n e s s and V a li d ity . . . . . 21
IV. RESULTS OP THE QUESTIONNAIRE............................ . 2if
2 if
i v
CHAPTER PAGE
CouneilmaniG Backgrounds
P la c e and D ate o f B ir th
Y ears R e sid in g in G ity
Y ears o f S e rv ic e . . .
G ouncilm anic E d u c a tio n s.
H ig h est L evel o f E d u ca tio n ............................. 33
Gouncilm anic O ccupations ...................................... 37
G ouncilm anic O c c u p a tio n s .................................. 37
G overnm ental and G ivic A c t i v i t i e s E x p e ri-
enc e . ...............................................
P r io r Governmental E x p erien c e.
C iv ic A c t i v i t i e s E x p e rie n c e ............................. If6
I n t e r e s t s and A t t i t u d e s . ................................. if9
I n t e r e s t s i n M unicipal Government. . . . if9
I n t e r e s t i n H igher P u b lic O ffic e . . . . 5 l
A ttitu d e s Toward Gounci1-M anager Form
V. RELATIONSHIPS OP BACKGROUNDS, INTERESTS,
A N D ATTITUDES.........................................................
Backgrounds and I n t e r e s t s ...................................... 59j
G eneral T r a its and I n t e r e s t s ........................ 59
E d u ca tio n and I n t e r e s t s . ............................. 63
O ccupation and I n t e r e s t s .................................. 61;
Backgrounds and A t t i t u d e s ....................................... 71
G eneral T r a i t s and A ttitu d e s ........................ 71
E d u c a tio n and A t t i t u d e s ...................................... 71;
V
CHAPTER PAGE
O ccupations and A t t i t u d e s .................................. 77
M iscellan e o u s A ttitu d e s Toward Govern
ment . 79
V I. SUM M ARY AND CONCLUSIONS................................................ 82
Summary................................................................................. 82
G eneral Background T r a i t s . ... .. .. 82
I n t e r e s t s ........................................................................ 83
A t t i t u d e s ................................. .....................................
R e la tio n s h ip s .................................................... Blf
C o n c lu sio n s................................. 89
The One-Term C ouncilm an....................... 89
The Counci 1-Manager C o u n c ilm a n .................... 91
The C ouncil-M anager Form o f Government * 9lf
Some Q u e s t i o n s ...................................... 95
C a lib e r o f Councilm en.......................................... 96
103
APPENDIX A. C a lif o r n ia Counci1-M anager C i t i e s
P a r t i c i p a t i n g i n T h e sis S urvey. . . .
APPENDIX B. Q u e s tio n n a ire Used in T h e sis Survey . 110
[~
I
I LIST OF TABLES
, TABLE PAGE
I I . P la c e s o f B ir th o f C a lif o r n ia Councilmen* • . 25
I I I . Ages o f C a lif o r n ia C o u n c ilm e n ................................. 27
I I I . Y ears o f R esidence o f C a lif o r n ia Councilm en
In C i t i e s o f S e r v ic e .......................................................... 29
IV. Number o f Y ears o f S e rv ic e o f C a lif o r n ia
Councilm en.......................................................................... 3I
V. E d u c a tio n a l L ev els o f Councilm en i n C a li- ■
f o r n i a C ouncil-M anager C i t i e s . . . * . * 34'
I
VI. M ajor F ie ld s o f S tudy o f C o lle g e G raduate I
I
Councilm en i n Counci1-M anager C i t i e s . . . . 3 6 j
V II. O ccupations o f C a lif o r n i a Councilm en........................ 39
V III. Number and P e rc e n ta g e o f R e tire d C a lif o r n i a I
Councilm en by O ccu p atio n al C ateg o ry . . . . i
IX. Number o f C a lif o r n ia Councilm en Having P r i o r |
P aid P r o f e s s io n a l Governm ental E x p erien ce |
by L evel o f Government.................................................... 43
X. Areas o f N o n -P ro fe ssio n a l Governm ental
E x p erien ce R eported by S ixty-O ne C a lif o r n i a
Councilm en....................................................................... 44
XI. Areas o f C iv ic A c t i v i t i e s E x p erien ce R eported
by 107 C a lif o r n i a Councilm en...................................... 47
X II. Types o f Governm ental I n t e r e s t s R eported by
193 C a lif o r n ia C o u n c ilm e n ........................................... 50
r
v i l
XV.
TABLE PAGE
X I I I . F u tu re P o l i t i c a l A m bitions o f C a lif o r n i a
C ouncilm en.................................................... 53
Types o f I n t e r e s t s i n H igher P o l i t i c a l
O ffic e as R eported by T w enty-Six C a l i
f o r n i a Councilm en .................................» 54
R e la tio n s h ip o f Years o f C ounciIm anic
S e rv ic e t o I n t e r e s t s in Government. . . . 62
XVI. S p e c if ic C i ty Government I n t e r e s t s R eported
by N in e ty -E ig h t C o lleg e G raduate C o u n e il-
i i
I m e n 65 I
I I
; XVII. R e la tio n s h ip o f I n t e r e s t i n H igher P u b lic !
O ffic e to E d u c a tio n a l L evel o f C o u n c il- ^
I men .............................................................. 66
X V III. R e la tio n s h ip Between C o lleg e G ra d u a tio n !
and A s p ir a tio n f o r H igher P u b lic O ffic e . 6? |
i XIX. R e la tio n s h ip o f O ccu p atio n al C a te g o rie s |
I I
to Governm ental I n t e r e s t s o f C o u n cilm en .. 69 i
I
I XX. R e la tio n s h ip o f O ccu p atio n al C a te g o rie s
to I n t e r e s t i n H igher P u b lic O ffic e o f
! T w en ty -six C a lif o r n i a Councilm an. . . . . 70
XXI. R e la tio n s h ip o f C ounciIm anic E d u ca tio n s
I to A ttitu d e s Toward th e Counci1-M anager
Form o f Government................................................... 76
XXII. R e la tio n s h ip of O ccupations o f 144 O a li-
v i i i
TABÎE page
f o r n i a Councilmen to T h e ir A ttitu d e s
Toward th e Gounci1-M anager Form o f Govern
ment ...................................................................... 60
CHAPTER I
INTRODUCTION |
I
There has been much d is c u s s io n b u t l i t t l e a u t h e n t i - |
c a te d m a te r ia l a v a ila b le to i n t e r e s t e d p erso n s r e l a t i v e to |
th e b ack g ro u n d s, i n t e r e s t s , and a t t i t u d e s o f C a lif o r n ia
councilm en i n counci1-m anager c i t i e s .
I . THE OBJECTIVE
I I t was th e o b je c tiv e o f t h i s t h e s i s to r e p o r t back-
I ground t r a i t s o f councilm en such as (1) p la c e and d a te
I
i o f b i r t h ; (2) number o f y e a rs of r e s id e n c e i n th e c i t y ;
I C3) date first elected to the council and total years of
I service; (1|) education, and major field of study, if any;
' (5) o c c u p a tio n p r i o r to s e r v ic e on th e c o u n c il; (6) p r i o r
• governm ental e x p e rie n c e ; and (7) p r i o r p a r t i c i p a t i o n i n
!
I c iv ic a c t i v i t i e s .
I
F u r th e r , a t t i t u d e s and i n t e r e s t s o f councilm en
i tow ard s p e c i f i c a s p e c ts o f m u n ic ip a l governm ent, t h e i r
I
I a t t i t u d e s tow ard th e counci1-m anager form of governm ent,
j and t h e i r f u tu r e p o l i t i c a l am b itio n s were noted# Subse-
I q u e n tly , a c o r r e l a t i o n o f a l l background t r a i t s and spe-
I
! c i f i c a t t i t u d e s and i n t e r e s t s was a tte m p te d , as were o th e r
l o g i c a l d e d u c tio n s b ased on th e f a c t s .
IX. IMPORTANCE OP THE STUDY
I n t a r e s t e d c i t i z e n s , s tu d e n ts o f governm ent, and
e s p e c i a lly c i t y managers and a d m in is tr a to r s have had no j
! ad eq u ate so u rce s to inform them o f th e s p e c i f i c background ;
I !
t r a i t s to be found i n councilm en; n e i t h e r were th e r e |
I !
I so u rc e s r e p o r tin g th e l e v e l o f e d u c a tio n , nor th e occupa- I
I j
i t i o n s . Such in fo rm a tio n as i t c o r r e l a t e s to councilm anic
i
a t t i t u d e s and i n t e r e s t s can be u s e f u l to th e p r o f e s s io n a l
a d m in is tr a to r , s tu d e n t, and c i t i z e n .
The c i t y m anager, a lth o u g h an a d m in is tr a tiv e o f f i -
I c e r , may o f te n have to recommend l e g i s l a t i v e p o l i c i e s to
!
j th e c o u n c il, o r maneuver proposed l e g i s l a t i v e p o l i c i e s
; w hich he b e lie v e s a re f o r th e g e n e ra l w e lfa re th ro u g h a
' human b a r r i e r - - t h e c o u n c il, ^ o w le d g e o f co u n cilm an ic
: backgrounds and a t t i t u d e s may a id th e manager i n th e su c -
I c e s s f u l d i r e c t i o n of t h i s l e g i s l a t i o n .
I
C itiz e n s and s tu d e n ts o f governm ent a t th e l o c a l
j l e v e l a re i n t e r e s t e d i n th e c a l i b e r o f l e g i s l a t o r s , t h e i r
I t r a i t s , e d u c a tio n , o c c u p a tio n s , and t h e i r a re a s of i n t e r -
j e s t s i n c i t y governm ent.
i
I I I I . SCOPE OP THE STUDY i
I !
I The a re a covered i n t h i s stu d y has been lim ite d i n '
1
j scope to r e f l e c t councilm anic b ackgrounds, i n t e r e s t s , and i
I j
I a t t i t u d e s i n C a lif o r n i a counci1-m anager m u n i c i p a l i t i e s .
3
i
I T his l i m i t a t i o n i s due to th e w r ite r » s v o c a tio n a l i n t e r e s t
I
I i n such c i t i e s . F u r th e r , C a lif o r n i a le a d in g th e n a tio n i n
I
th e number o f counci1-m anager c i t i e s o f f e r e d a re a d y f i e l d
o f in q u ir y .
The c h a p te rs t h a t fo llo w d e a l w ith th e review of
I th e l i t e r a t u r e , th e method and p ro c e d u re of ac cu m u latin g
j th e f a c t s , th e groups s tu d ie d i n C a l i f o r n i a , th e p r e s e n ta -
i
I t i o n o f th e f a c t u a l d a ta , and the r e l a t i o n s h i p s betw een
j th e f a c t s g a th e re d and c e r t a i n s p e c i f i c a t t i t u d e s and
I
i i n t e r e s t s i n m u n ic ip a l governm ent.
CHAPTER I I
REVIEW OP THE LITERATURE
L i t t l e has been w r i tte n in re g a rd to th e s p e c i f i c I
!
I background t r a i t s , a t t i t u d e s , and i n t e r e s t s o f C a lif o r n i a |
1 councilm en. '
I . PREVIOUS LITERATURE
I L i t e r a t u r e I s P e r ip h e r a l
I T here have b een no p re v io u s s tu d ie s o f a s c i e n t i f i c
I
j n a tu re re g a rd in g th e th e s is to p ic # A lthough many w r i t e r s
I have re c o rd e d some c a s u a l o b s e rv a tio n s w h ile w r itin g on
r e l a t e d t o p i c s , t h e i r comments o n ly tou ch ed th e p e rip h e ry
o f t h i s study#
i I n q u ir i e s to th e e d i t o r s o f W estern C ity m agazine,
I
! a p u b lic a t io n o f th e League o f C a lif o r n i a C i t i e s , p ro v id ed
I no a v a ila b le l i t e r a t u r e f o r th e t h e s i s to p ic . F u r th e r ,
I
I re c o rd s o f the League o f C a lif o r n ia C i t i e s , b o th th e Los
I A ngeles and B e rk e le y o f f i c e s , re v e a le d no so u rce s a t a l l .
I G rin P. M o ltin g , A s s is ta n t D ir e c to r o f th e I n t e r n a -
j t i o n a l C ity Managers* A s s o c ia tio n , and Managing E d ito r o f
j
I P u b lic Management m agazine, responded to an in q u ir y f o r
I m a te r ia l on th e t h e s i s to p ic i n t h i s f a s h io n ; ”I d o n ’t
j
I know o f any stu d y or any m a te r ia l t h a t we have i n our
l i b r a r y t h a t would be o f h e lp to you on t h i s s u b je c t.
C ity o f B urbank. The C ity o f Burbank i s , how ever,
one o f th e few c i t i e s i n th e U n ite d S ta te s whose c h a r te r
s u g g e sts t h a t councilm en f i l e a sta te m e n t o f t h e i r back
grounds and o c c u p a tio n s . The C h a rte r re a d s as f o llo w s :
At l e a s t tw en ty days b e fo re th e day o f th e prim ary
nom inating e l e c t i o n , each c a n d id a te may f i l e w ith th e
C ity C le rk a s ta te m e n t c o n ta in in g th e fo llo w in g i n f o r
m ation i n th e o rd e r h e r e in s e t f o r t h : ( a), h i s name ;
(b), th e o f f i c e f o r which he i s a c a n d id a te ; (c), h is
p r e s e n t re s id e n c e and o c c u p a tio n ; (d), th e v a rio u s
kinds o f b u s in e s s o r employment he has been engaged in j
d u rin g th e p a s t f i v e y e a rs and w here, a ls o th e p o s i- i
t i o n s o f im portance and t r u s t which he may have h e ld j
i n c o n n e c tio n th e re w ith ; (e), th e c i v i c , improvement j
o r o th e r o r g a n iz a tio n s which he has been a member o f |
w ith in th e p a s t f i v e y e a rs and th e p o s it io n s o f honor j
o r t r u s t w hich he may have h e ld t h e r e i n ; ( f ) , th e
p u b lic o f f i c e s he has h e ld , i f any, as p r i n c i p a l , .
d ep u ty o r em ployee; (g), th e e x p e rie n c e , t r a i n i n g or
e d u c a tio n he has re c e iv e d w hich, i n h is o p in io n , would,
q u a l if y him to f i l l th e o f f i c e f o r w hich he i s a I
c a n d id a te ; (h), th e le n g th o f tim e he has been a ta x - |
p ay e r i n th e c i t y ; ( i ) , th e names and a d d re s se s o f notj
l e s s th a n f i v e ( 5 ) nor more th a n f i f t e e n fl5) r e s id e n ts
who know som ething o f h is c h a ra c te r and a b i l i t i e s . ^ j
T his i s a unique s t i p u l a t i o n and p ro b a b ly in te n d e d j
to r e c r u i t c a n d id a te s o f a b e t t e r c a l i b e r ju d g in g from th e |
s p e c i f i c background t r a i t s t h a t a r e s p e lle d out i n th e |
I
Burbank C h a rte r. j
I
L i t e r a t u r e on a t t i t u d e s . L i t e r a t u r e and r e s e a r c h |
^ L e tte r of March 2, 1956.
^ C ity o f B urbank, C h a r te r , S e c tio n 27*
L _ .
I 6
I on councilm anic a t t i t u d e s and i n t e r e s t s were a ls o m eager.
!
I T h at such a c o r r e l a t i o n e x is te d betw een background t r a i t s
I
j and a t t i t u d e s was a llu d e d to by C. C. Ludwig when he
I s t a t e d : "The a t t i t u d e s o f in d iv id u a l c o u n c il members a re
j g
j v i t a l i n d e te rm in in g c i t y government p o l i c i e s . " ^ He th e n
j added: " A ttitu d e s found in th e C o u n cil a r e more im p o rta n t
I becau se o f th e in f lu e n c e th e y have on th e a t t i t u d e s o f th e
c i t i z e n r y a t l a r g e * "4
L John P f i f f n e r , commenting on th e membership o f c i t y
c o u n c ils and t h e i r backgrounds, a t t i t u d e s , and m o tiv a tio n s ,!
had t h i s to sa y :
C o u n cils a r e made o f p e o p le ; th e y a re f a i r c r o s s -
s e c tio n s of th e p o p u la tio n . P eople a r e a c tu a te d by
th o u san d s of m o tiv a tio n s w hich cannot h e lp b u t have
r e p e r c u s s io n s on th e a d m in is tr a tiv e o p e ra tio n s o f th e
c i t y . One c o u n c il member may have been f r u s t r a t e d i n
h is l i f e a m b itio n and ta k es t h i s o p p o rtu n ity f o r s e l f - j
e x p re s s io n . A nother i s a se lf-m a d e man who i n h e r e n t l y |
d i s t r u s t s th e te c h n ic ia n s i n th e a d m in is tr a tiv e s e r v - |
ic e . S t i l l a n o th e r re g a rd s h is ald erraan ic term as a
s te p p in g sto n e to h ig h e r p o s it io n s i n l i f e . One may be
a s tro n g and a g g re s s iv e p e r s o n a l i t y , a r e a l c i v ic i
le a d e r whose p e rs o n a l c a r e e r l i e s else w h e re , b u t who !
d e riv e s ^ a c e r t a i n s a t i s f a c t i o n from h is aldermani©
d u t i e s . 5
W aring^ im p lie d th a t councilm en sh o u ld have knowledge
^C. G. Ludwig, "P ro ced u re i n D eterm ining M u n icip al
P o l i c i e s , " P u b lic Management, 36:149-150# J u l y , 1954"
p . 1$0.
^John M. P f i f f n e r , M u n icip al A d m in ls tra tio n (New
York: The Ronald P re ss Company, 1940)# p. 72.
^Donald J . W aring, "How a Manager Views a C o u n c il
man* 8 J o b ," Am erican C i t y , J a n u a ry , 1955# pp. IO6-IO 7 .
7
o f l o c a l government when he s t a t e d t h a t n o t o n ly should
councilm en su p p o rt th e counci1-m anager p la n , b u t th e y
should know t h e i r m u n ic ip a l governm ent.
A case stu d y o f th e v o tin g h a b i ts o f a l l c i t i z e n s
w ith r e s p e c t to th e su p p o rt o f th e counci1-m anager p la n
was r e c e n t l y com pleted i n San A n to n io , Texas. The stu d y
re v e a le d th a t where o cc u p atio n s in c lu d e d a h ig h r e l a t i v e
p r o p o r tio n o f o p e r a t iv e s , s e r v ic e w o rk e rs, and la b o r e r s
th e r e s u l t s y ie ld e d a h ig h n e g a tiv e c o r r e l a t i o n . ^
The fo re g o in g would seem to f u r t h e r i n d i c a t e t h a t
I a d e f i n i t e need e x is te d f o r re c o rd in g th e ty p e o f d a ta
t h a t t h i s stu d y has a tte m p te d to accum ulate and c o r r e l a t e .
7
R ich ard Malcolm, "The R e la tio n s h ip of V arious
Socio-Econom ic F a c to rs to V oting B ehavior on th e Gounc11-
Manager P la n , A Case S tu d y : San A n to n io , Texas 1950-51”
(u n p u b lish e d M a s te r's t h e s i s , Wayne U n iv e r s ity , D e t r o i t ,
1954)# P. 36.
J
CHAPTER I I I
I SOURCES, PROCEDURE, AND MATERIADS USED
i I . SOURCES OF DATA
A l i s t o f C a lif o r n i a c i t i e s h av in g c e n t r a l i z e d
management was u t i l i z e d as th e o r i g i n a l so u rce f o r c i t i e s
to be s tu d ie d . T his l i s t and th e name and home a d d re ss
o f e v e ry C a lif o r n i a councilm an, as o f O ctober 1, 1956, was
p ro v id e d by th e Los A ngeles O ffic e o f th e League of C a l i
f o r n ia C i t i e s . 1 W ith t h i s in fo rm a tio n i t was p o s s ib le to
I
a s c e r t a i n th e t o t a l p o p u la tio n o r u n iv e rs e to be s tu d ie d , |
th e c i t i e s p e r t i n e n t to th e t h e s i s s u b j e c t , and where each |
councilm an could be re a c h e d .
I
I I . M ETHOD OP PROCEDURE
Two methods o f g a th e rin g in fo rm a tio n were considered;
I
One, an in te rv ie w w ith each councilm an was not f e a s i b l e o rj
p r a c t i c a l ; th e o th e r , a q u e s tio n n a ir e m ailed to th e home
j
a d d re s s , o f fe re d an econom ical and q u ic k e r means o f gather-#
in g th e re q u ire d d a ta . Ghaddock, i n d is c u s s in g th e u se o f
th e q u e s tio n n a i r e , had t h i s to say :
I League o f C a l i f o r n i a C i t i e s , C e n tr a liz e d Manage-
I in C a lif o r n i a C i t i e s (B e rk e le y : Irhe League, J u l y ,
1956)• (M imeographed.)
7 1
T his method (o f f i l l i n g out q u e s tio n n a ir e s ) p e rm its an
e x te n s iv e in q u ir y w ith much le s s expense th a n th e
enum erator o r s p e c ia l ag en t m ethod, because a v ery
la r g e number o f ca ses may be covered alm ost s im u lta n e
o u s ly by th e use o f th e m a ils *2
M oreover, a p e rs o n a l in te rv ie w would te n d to i n h i b i t th e
re sp o n d e n t r e l a t i v e to r e l e a s i n g p e rs o n a l in fo rm a tio n to
a r e s e a r c h e r p r e s e n tly employed as an a s s i s t a n t i n th e
c i t y manager p ro fe ssio n #
The f a c t t h a t th e a p p e a l f o r d a ta would p ro b a b ly
i n t e r e s t th e m u n ic ip a l l e g i s l a t o r s as a f i e l d i n which
th e y were i n ti m a t e ly in v o lv e d ten d ed to f a v o r th e u t i l i z a -
!
' t i o n o f th e q u e s tio n n a ir e over th e p e rs o n a l in te rv ie w
I
m eth o d .3
I I I . THE QUESTIONNAIRE
A q u e s tio n n a ir e was c o n s tru c te d t o e l i c i t in fo rm a
t i o n on th e background t r a i t s , i n t e r e s t s , and a t t i t u d e s of
councilm en. The q u e s tio n n a i r e , from th e v e ry f i r s t ,
g u a ra n te e d th e re sp o n d e n ts a b s o lu te anonym ity; th e d a ta
t h a t were su b m itte d were rep ro d u ced i n summary form w ith
out p e rs o n a l i d e n t i f i c a t i o n .
j p
I R obert Emmett Chaddock. P r in c ip le s and Methods o f
I S t a t i s t i c s (New York: Houghton M if f lin Company, 1925),
i p. 375.
! 3
-^ Ib ld ., p. 377.
10
R eferen ces Used I n C o n s tru c tio n
Background item s g e n e r a lly found on s ta n d a rd employ
ment a p p l ic a tio n s were u se d to d ev elo p th e su rv ey q u e s tio n
n a ire # ^ The f i l l i n g out o f a l l ty p e s o f a p p l ic a tio n s has
become such a common p r a c t i c e t h a t i t was f e l t t h a t th e
p r o b a b i l i t y o f s e c u rin g th e d e s ir e d in fo rm a tio n would be
g r e a t e r i f th e q u e s tio n n a ir e fo llo w ed th e g e n e ra l form at
o f an a p p l i c a t i o n f o r employment o r p e rm is sio n .
I n f u r t h e r d e v e lo p in g th e q u e s tio n n a ir e , th e c o n c e p t
of a s in g le S j x 11 in c h sh e e t was adhered to# Busy |
l e g i s l a t o r s would be more prone to respond to a s in g l e
s h e e t composed m o stly o f sh o rt-a n sw e r ty p e o f q u e s tio n s
th a n to a m u lti-p a g e , e s s a y -ty p e o f q u e s tio n n a ire # |
Chaddock, i n commenting on th e s i z e of a q u e s tio n n a i r e , |
I
s t a t e d : !
j
I t sh o u ld a l s o conform i n s iz e to some one o f th e j
s ta n d a rd f i l i n g d e v ic e s , even i f i t i s i n b o o k le t form.i
These re q u ire m e n ts a r e met v e ry w e ll by a 5 x 8 o r 8§ x;
11 in c h s i z e . • . . When a sch ed u le i s c i r c u l a t e d by |
m a il, i t i s o f te n d e s ir a b le t o make th e form e x a c tly |
l i k e a p e rs o n a l l e t t e r , ty p in g , f o ld in g , s ig n in g and ;
a d d re s s in g i t a c c o rd in g ly ,^ .in o rd e r t o in c r e a s e th e i
p r o b a b i l i t y o f i t s r e tu rn # ^ j
I
A lso , th e f i r s t two b la n k s o f each q u e s tio n n a ir e ^
!
s e n t o u t were a lre a d y f i l l e d i n w ith th e co u n c ilm a n 's name
and c i t y . By com bining th e sh o rt-a n sw e r p r i n c i p l e w ith a
p a r t i a l l y com pleted q u e s tio n n a ir e i t was ex p ected to
^ S e e c o p y of q u e s tio n n a ir e i n Appendix B.
^Chaddock, op# c i t . , pp. 39Q-391» ____
11
in d u ce co m p letio n o f th e form by th e v a rio u s l o c a l l e g i s
l a t o r s .
T hat p o r tio n o f th e q u e s tio n n a ire t h a t re q u e s te d
a t t i t u d e s o r i n t e r e s t s was an open-end ty p e t h a t p e r m itte d
more freedom and nuance i n th e an sw ers. One q u e s tio n o f the
open-end ty p e re q u e s te d th e councilm an to i n d i c a t e th e a re a I
o f m u n ic ip a l government i n which he was most i n t e r e s t e d . |
I
A n o th er q u e s tio n re q u e s te d th e councilm an*s a t t i t u d e tow ard
I !
th e co u n cil-m an ag er form o f governm ent, w h ile a t h i r d q u es-
I
Itio n a tte m p te d t o d is c o v e r h is i n t e r e s t i n p o l i t i c s a s a ^
jstep p in g s to n e to h ig h e r p u b lic o f fic e * j
! I
! Inasm uch as th e t h e s i s s u b je c t i s a c o m p a ra tiv e ly new
land p e rs o n a l one, sim p le q u e s tio n s were u t i l i z e d f o r th e
' I
most p a r t t o a id i n in s u r in g re s p o n s e s . S c h o la s tic su rv ey s j
jare numerous and many a r e r e le g a te d to th e w aste b a s k e t by '
!the r e c i p i e n t s . For t h i s re a s o n , th e a tte m p t was made to j
ip rese n t a q u e s tio n n a ir e most conducive to b ein g answ ered.
’ i
Good and S c a te s s t a t e d : |
■ 1. I t must be s h o r t enough so t h a t i t w i l l n o t be ■
I r e j e c t e d c o m p le te ly . . . nor ta k e to o much tim e to f i l l
o ut • I
: 2. I t must be o f s u f f i c i e n t i n t e r e s t and have enough!
! fa c e ap p e al so t h a t th e p e rso n w i l l be in c lin e d to
resp o n d to i t . j
1 3# The q u e s tio n n a ir e should o b ta in d e p th i n o rd e r to
■ av o id s u p e r f i c i a l r e p l i e s . I t i s d e s ir e d to a ro u se th e
background o f th e p e rso n and g e t him to g iv e r e a l con
s i d e r a t i o n t o th e many f a c t o r s which e n t e r i n t o a d e c i
s io n . Only i n such a way w i l l h is re sp o n se have some
s t a b i l i t y .
^ C a r t e r V. Good and D ouglas E. S c a te s , Methods o f
12
A stam ped, s e lf - a d d r e s s e d envelope was e n c lo se d
w ith ' each q u e s tio n n a ir e to f a c i l i t a t e th e r e t u r n o f th e
d e s ir e d in fo rm a tio n .
C o n s tru c tin g th e Q u estio n s
C are was u t i l i z e d to c o n s tru c t i n q u i r i e s t h a t would
n o t o ffe n d n o r le n d th em selv es to p r o c r a s t i n a t i o n i n t h e i r
b ein g answ ered. To acco m p lish t h i s th e w ording o f th e
q u e s tio n s was k e p t s im p le , d e f i n i t e and easy to an sw e r.^
O th er a s p e c ts c o n s id e re d i n th e p h ra s in g of th e
q u e s tio n s were t h e a d a p t a b i l i t y o f th e d a ta to sum m ariza
t i o n , th e u s e fu ln e s s o f th e d a ta f o r p r a c t i c a l o r t h e o r e t
i c a l a p p l i c a t i o n , and w h eth er o r n o t th e q u e s tio n s them
s e lv e s f i t t e d i n t o th e common co n cep ts used i n o r d in a r y
th in k in g i n th e o p e r a tio n o f m u n ic ip a l government.®
D e f in iti o n o f Terms
Background t r a i t s . T hroughout th e r e p o r t o f t h i s
s u rv e y , th e term "background t r a i t s " s h a l l be i n t e r p r e t e d
as meaning p la c e and d a te o f b i r t h , th e number o f y e a rs
r e s i d i n g i n th e c i t y b e in g r e p r e s e n te d , t o t a l y e a rs of
R esearch (New York: A p p le to n -C e n tu ry -C ro fts , I n c . , 1954)#
p V 6 1 5 .
haddock, op. c i t . , p . 376.
8
Good and S c a te s , op. c i t . , p. 586*
13
councilm anic s e r v i c e , e d u c a tio n , o c c u p a tio n , and p r i o r
governm ental and c iv ic a c t i v i t i e s e x p e rie n c e .
P r io r governm ental e x p e rie n c e . F u r th e r , p r i o r pub
l i c e x p e rie n c e s h a l l i n d i c a t e any p u b lic s e r v i c e , compen- |
i
s a te d o r n o t, perform ed f o r a d u ly re c o g n iz e d p u b lic j u r i s y
d i c t i o n o r agency. j
I
I
C iv ic a c t i v i t i e s e x p e rie n c e . I n o rd e r to d i f f e r
e n t i a t e betw een p r i o r governm ental e x p e rie n c e and c iv ic
a c t i v i t i e s e x p e rie n c e , th e l a t t e r s h a l l in c lu d e any serv ice
r e l a t e d to th e b e tte r m e n t of th e community i n g e n e ra l and
where appointm ent o r e l e c t i o n to such c iv ic a c t i v i t y was
1
n o t under th e j u r i s d i c t i o n o f a p u b lic body. i
Why In c lu d e S p e c if ic Q u estio n s j
I
The q u e s tio n s on p la c e and d a te o f b i r t h , y e a rs o f j
r e s id e n c e , te n u r e , e d u c a tio n , o c c u p a tio n , and p r i o r govern--
I
m ental and c i v i c a c t i v i t i e s e x p e rie n c e were asked s p e c i f i
c a l l y to accum ulate th e d a ta on th e g e n e ra l background o f
each councilm an answ ering th e q u e s tio n n a ir e .
The q u e s tio n s r e l a t e d to prim e i n t e r e s t i n s p e c i f i c
a re a s o f l o c a l governm ent was d esig n ed to a s c e r t a i n
w h eth er or n o t m u n ic ip a l l e g i s l a t o r s fa v o re d one departm ert
I
or f u n c tio n o v e r a n o th e r. :
A lthough a l l c i t i e s i n th e su rv e y were o f th e
counci1-m anager ty p e , th e w r i t e r a tte m p te d to d is c o v e r
I ” 14
j how many councilm en were a c t u a l l y not c o m p le te ly s a t i s f i e d
I with i t .
I I n tr o d u c tio n o f th e q u e s tio n on f u t u r e p o l i t i c a l
I a m b itio n s in te n d e d to e s tim a te th e r e l a t i v e number of
! m u n ic ip a l l e g i s l a t o r s who a s p ir e d to h ig h e r p u b lic o f f i c e .
I
Problem s W ith S p e c if ic Q u estio n s
I t was exp ected i n a su rv ey o f t h i s k in d t h a t some
of th e q u e s tio n s would p re s e n t problem s i n th e i n t e r p r e t a
t i o n and ta b u la t io n o f th e re s p o n s e s .
i
i C iv ic a c t i v i t i e s e x p e rie n c e . One o f th e problem
I q u e s tio n s in c lu d e d th e re sp o n se s o f th e l e g i s l a t o r s on
; c i v ic a c t i v i t i e s e x p e rie n c e . Some o f th e answ ers were
I vague, o th e rs volum inous. Many k in d s o f "civic** work were
; in c lu d e d . I n o rd e r to a r r i v e a t a s a t i s f a c t o r y corapila-
. t i o n o f th e re s p o n s e s , i t was n e c e s s a ry to l i m i t c i v ic
a c t i v i t y to any p r o j e c t o f community i n t e r e s t where th e
1 o r g a n iz a tio n in v o lv e d i n such p r o je c t was n o t an a c tu a l
! p a r t o f the l o c a l governm ent.
I
I
I P r io r governm ental e x p e rie n c e . A nother q u e s tio n
I th a t p re s e n te d some d i f f i c u l t y d e a l t w ith p r i o r govern-
I
! m en tal e x p e rie n c e . T here were some v a r ie d re sp o n se s on
I
' t h i s q u e s tio n w hich d id not d i r e c t l y co n cern p u b lic s e r v
ic e . To p r o p e r ly t a b u l a t e th e re sp o n se s f o r m e an in g fu l
n e s s , i t was n e c e s s a ry t o r e s t r i c t p r i o r governm ental
!
I
i e x p e rie n c e to th o s e p e rs o n s , com pensated o r n o t, who were
i e i t h e r e l e c t e d o r a p p o in te d to any p o s i t i o n i n any p u b lic
I j u r i s d i c t i o n o r agency#
!
I O c c u p a tio n s# R esponses on o c c u p a tio n s d id n o t p r e -
I !
; s e n t as la r g e a problem as was o r i g i n a l l y expected* On }
I th e w hole th e g r e a t m a jo rity o f re s p o n d e n ts answ ered sp e - j
I
c i f i c a l l y . T here were s e v e r a l , how ever, t h a t u se d to o |
I
b ro ad a te rm to d e s c r ib e t h e i r occu p atio n s# For i n s t a n c e , |
th e d e s ig n a tio n "m anager" was u t i l i z e d s e v e r a l tim es i n j
s p i t e o f th e r e q u e s t on th e q u e s tio n n a ir e t o make th e j
d e s ig n a tio n o f th e o c c u p a tio n as s p e c i f i c as p o s s ib le # |
O th er b road term s i n t h i s c a te g o ry in c lu d e d " c o n tr a c to r " |
! and " m e rc h a n t." ;
A spect o f governm ent o f most i n t e r e s t . The resp o n se
j —— • j
I es to th e q u e s tio n on g r e a t e s t i n t e r e s t i n m u n ic ip a l |
I
I government caused some d i f f i c u l t y i n t a b u l a t i o n . A lthough
I
I th e q u e s tio n n a ir e s p e c i f i c a l l y r e q u e s te d th e " a s p e c t o f
I government most i n t e r e s t e d i n , " many councilm en l i s t e d two
! o r m ore. I n su c h c a se s each a s p e c t o r a re a o f governm ent
i l i s t e d was g iv e n eq u al c r e d i t as th e a s p e c t o f g r e a t e s t
1 i n t e r e s t .
F u tu re p o l i t i c a l a m b itio n s . The v e ry n a tu re o f th e
j q u e s tio n on f u tu r e p o l i t i c a l am b itio n s te n d e d to i n h i b i t
I th e re sp o n d e n t councilm an inasm uch as p o l i t i c a l s e c r e t s or
16 j
s t r a t e g y m ight be divulged# The f a c t t h a t a r a t h e r la r g e
m a jo r ity o f 63 p e r c e n t r e p l i e d t h a t th e y had no p o l i t i c a l
am b itio n s and an a d d i t i o n a l group o f a p p ro x im a te ly l 5 p e r
ce n t responded "u ndecided" seemed to i n d i c a t e an a p p re
h e n sio n o r r e lu c ta n c e to subm it th e d e s ir e d in fo rm atio n #
V o lu n ta ry comments. I n many ca se s th e resp o n d e n t
I l e g i s l a t o r s v o lu n te e re d comments on su ch q u e s tio n s o f th e
I su rv ey p e r ta in in g to e d u c a tio n , th e co u n c il-m an a g er form
j I
I o f governm ent, and h ig h e r p u b lic o f f i c e . F u r th e r , a 1
! m is c e lla n y of comments were su b m itte d on to p ic s r e l a t e d j
j to m u n ic ip a l governm ent i n g e n e ra l. These v o lu n ta ry u tte r-f
1 ances were n o t an im p o rta n t p a r t o f th e su rv e y and i t was
j n o t th e i n t e n t i o n o f th e w r i t e r t o em phasize any p a r t o f
th e s e comments ex cep t as th e y r e l a t e d to s p e c i f i c q u es- j
t i o n s i n th e su rv e y . However, i t must be s t a t e d t h a t some!
of th e v o lu n ta ry o p in io n s d id prove to be p a r t o f th e most
i n t e r e s t i n g a s p e c ts o f th e r e s u l t s . This was a ls o found
to be tr u e by a re s e a r c h e r ^ who r e c e n t l y employed a q u e s
t i o n n a i r e r e l a t i v e to methods used i n s e l e c t i n g a c i t y
a tto r n e y .
D i f f i c u l t i e s I n I t s Use
A lthough th e q u e s tio n n a ir e method o f s o l i c i t i n g
^R o b ert H. McManus, "How Should th e C ity A tto rn e y
Be S e le c te d ," P u b lic Management, 39:4"7# J a n u a ry , 1957*
! 17
! in fo rm a tio n was c o n s id e re d th e most p r a c t i c a l ap p ro ach
!
; r e l a t i v e to th e t h e s i s s u b je c t, n e v e r th e le s s some d i f f l -
I c u l t i e s i n i t s use were e n c o u n te re d .
I
I
I S ix q u e s tio n n a ir e s were r e tu r n e d to th e se n d e r due
I to i n c o r r e c t a d d re s se s o r r e c e n t changes o f abode. I n
: th e s e c a se s th e q u e s tio n n a ire s were fo rw ard ed to th e v a r i -
j ou8 councilm en i n c a re o f th e p e r t i n e n t c i t y h a l l s .
I
A nother d i f f i c u l t y in th e employment of th e q u es
t i o n n a i r e was th e la c k o f th e p e rs o n a l to u c h o r d i n a r i l y
a s s o c ia te d w ith th e o r a l in te r v ie w . The w r i t t e n w ord,
e s p e c i a l l y b r i e f i n th e r e tu r n e d q u e s tio n n a i r e s , d id n o t |
g r e a t l y le n d i t s e l f t o d eg rees o f i n t e n s i t y tow ard specific!
i n t e r e s t s and a t t i t u d e s . i
The v e ry f a c t t h a t th e q u e s tio n n a ir e was a mimeo- [
graphed form may have in d u ced some of th e l e g i s l a t o r s to
: throw i t a s id e . T hree councilm en th o u g h t th e q u e s tio n n a ire
! t o be a com m ercial scheme to p u t them on a s a le s l i s t ,
I a lth o u g h th e q u e s tio n n a ir e c l e a r l y s t a t e d t h a t th e su rv ey
! was a m a s te r 's d eg ree t h e s i s p r o j e c t . The a u th o r was
I o b lig e d to w r ite a l e t t e r to each d o u b tin g councilm an
I r e a s s u r in g him o f th e s i n c e r i t y o f th e e x p la n a tio n on th e
I o r i g i n a l q u e s tio n n a ir e . Two q u e s tio n n a ire s were r e tu r n e d
1 unansw ered even a f t e r th e p e rs o n a l l e t t e r o f re a s s u ra n c e
! was s e n t.
18
D ate o f D ata S u bm itted
A lthough 197 q u e s tio n n a ir e s were r e tu r n e d , each o f
th e q u e s tio n s i n th e q u e s tio n n a ire was not alw ays answ ered
I
I by th e re sp o n d e n t councilm en. A few councilm en e i t h e r i
! I
I ig n o re d o r r e f u s e d to answ er one o r more of th e q u e s tio n s .I
As each a s p e c t o f th e su rv ey was d e a l t w ith i n t h i s th e sis,!
th o s e councilm en n o t an sw erin g a g iv e n q u e s tio n were so
d e s ig n a te d .
S ix o f th e r e tu r n e d q u e s tio n n a ir e s r e v e a le d t h a t
th e m u n ic ip a l l e g i s l a t o r s were fe m a le . E ig h t of th e 197
re s p o n d e n ts re q u e s te d an o p p o r tu n ity to r e a d th e com pleted
I t h e s i s s u b je c t.
A ll d a ta su b m itte d were com piled, c a lc u l a te d , and
an a ly ze d as of December I 5 , 1956.
IV. THE SAMPLE
I
P ro b a b ly th e most im p o rta n t s in g le a s p e c t p r e lim i-
I n a ry to g a th e r in g d a ta f o r th e t h e s i s s u b je c t in v o lv e d th e
I use o f th e sam pling t e c h n i q u e . T h i s te c h n iq u e in v o lv e d
I th e s e l e c t i o n o f th e sam ple, th e adequacy of th e s i z e o f
I
; th e sam ple, and th e r e p r e s e n ta tiv e n e s s o f th e sam ple,
i S e le c ti o n o f th e Sample
■ The e n t i r e p o p u la tio n o r u n iv e rs e o f th e t h e s i s
I s u b je c t c o n s is te d o f 120 counci1-m anager c i t i e s i n
I ^^Chaddock, o£. c i t ., p. 3Ô 3
; 19
C a l i f o r n i a . T h is u n iv e rs e was l i s t e d i n a s i n g l e s h e e t
I p u b lic a t io n o f th e League o f C a lif o r n i a C i t i e s p r e v io u s ly
i m entioned. I n o rd e r to s e l e c t a sam ple on th e b a s is of |
i p u re chance to in s u r e r a n d o m n e s s , t h e w r i t e r c lo s e d h is I
i i
, eyes and low ered h is p e n c il on th e f i r s t m u n ic ip a lity - - |
I A rc a d ia . I n t h i s manner ev ery c i t y had an eq u al chance |
I i
o f b ein g s e le c te d . R e fe rr in g to th e p r i n c i p l e o f su ch a !
I
s e l e c t i o n , Ghaddock s t a t e d : |
The most im p o rta n t p r i n c i p l e i n sam pling i s to p r o - '
ceed i n su ch manner t h a t ev e ry c a se o f th e e n t i r e |
p o p u la tio n covered i n th e i n v e s t i g a t i o n h a s , as n e a r ly |
as p o s s i b l e , a f a i r o p p o rtu n ity to be in c lu d e d i n th e |
sam ple, even though n o t a c t u a l l y chosen f o r exam ina- i
t i o n . l ^ I
A f te r th e f i r s t c i t y had been s e le c te d a t random, a !
s y s te m a tic sam pling te c h n iq u e was employed w h erein su b se -
' q u en t c i t i e s depended upon th e p o s i t i o n o f th e p re c e d in g
I c i t i e s . A nderson and B a n c ro ft r e f e r r e d to t h i s te c h n iq u e
I as a sy s te m a tic sam ple a f t e r a random s t a r t . ^3 Once
] A rcad ia had been s e l e c t e d a t random, a l l o th e r c o u n c il-
I manager c i t i e s commencing w ith th e l e t t e r A were u t i l i z e d ,
' fo llo w ed by th e l e t t e i s B, C, and so on u n t i l th e f i r s t
100 c i t i e s were accu m u lated . T hat such a p ro c e d u re i s
^^Edmund E. Day, S t a t i s t i c a l A n a ly sis (New York:
The M acm illan Company, 1932), p . 32.
12
G haddock, op. c i t . , pp. 38ij.-85.
L. A nderson and T. A. B a n c ro ft, S t a t i s t i c a l
Theory i n R e search (New York: McGraw-Hill Book Company,
In c ., 19F2)', p. 59.
20
a c c e p ta b le has b een confirm ed by Jerorae when he w rote :
I f th e r e i s no r e l a t i o n betw een a l p h a b e t ic a l a r r a n g e
ment and th e c h a r a c t e r i s t i c in v o lv e d i n th e sa m p lin g ,
a l l ite m s b e g in n in g w ith a g iv e n l e t t e r o f th e a lp h a
b e t may be ta k e n .
Adequacy o f S iz e
The 100 counci1-m anager c i t i e s s e le c te d i n th e
sam ple r e p r e s e n te d 8 3 .3 3 p e r c e n t o f th e u n iv e r s e . T his
i s a r e l a t i v e l y la r g e sample#
A lthough sm a lle r sam ples may be u t i l i z e d when d e a l-
! in g w ith homogeneous d a ta ^ ^ as a re p r e s e n t i n th e t h e s i s
i
j s u b j e c t , i t was n e v e r th e le s s d e c id e d t h a t by in c r e a s in g
I th e size o f th e sample th e more c o n fid e n t one can be t h a t
th e sample mean p ro v id ed a good e s tim a te of th e p o p u la tio n
' mean.^^
F u r th e r , inasm uch as th e r e m ight be a r e lu c ta n c e
• on th e p a r t o f th e re sp o n d e n ts t o answer p e rs o n a l q u es-
’ t i o n s , a s m a lle r sam pling would have r is k e d in a d e q u a te
i r e t u r n s .
I N in e ty m u n ic ip a litie s c o n ta in e d a t o t a l of f i v e
! councilm en each, a l l o f w hich were s e n t q u e s tio n n a ir e s .
I
i Ten c i t i e s , th e rem ain d er o f th e sam ple, had from sev en to
^^H arry Jerom e, S t a t i s t i c a l Method (New York:
H arper and B ro th e rs P u b lis h e r s , 192lf) , P# 19#
haddock, o£. c i t . , p . 384*
16
A nderson and B a n c r o ft, og. c i t . , p. 71.
21
f i f t e e n l e g i s l a t o r s on th e c o u n c il. However, th e f i r s t
f i v e councilm en s e le c te d a l p h a b e t i c a l l y were in c lu d e d i n
th e su rv ey . To com pensate f o r two ca ses where a c o u n c il
man' 8 s e a t had been d e c la re d v a c a n t due to d e a th o r r e s i g
n a t i o n , two c i t i e s whose councilm anic membership was over
f i v e ware s e n t s i x q u e s tio n n a ir e s each. A t o t a l o f $00
I
q u e s tio n n a ir e s was s e n t t o th e home a d d re s s e s o f th e coun- |
i oilm en p e r t i n e n t to th e s u rv e y . ■
I !
I However, adequacy o f th e s iz e o f th e sample was n o t ,
I I
I enough. Mere s i z e d id n ot a ssu r e r e p r e s e n ta tiv e n e s s .^ 7
I !
iR e p re s e n ta tiv e n e s s and V a l i d i t y
j *
A fte r th e 100 c i t i e s had been s e le c te d th e y were ;
I j
I s u b je c te d to a p r a c t i c a l t e s t . ;
i Were th e s e c i t i e s r e p r e s e n t a t i v e o f C a lif o r n i a I
: I
j comnci 1-m anager c i t i e s ? Did th e y c o n ta in a l l o f th e |
r e l e v a n t c h a r a c t e r i s t i c s o f th e u n iv e rs e ? I n p e ru s in g th e I
i
sam ple s e l e c t e d , i t was a p p a re n t t h a t th e c i t i e s w ere b o th I
ila r g e and s m a ll, o ld and new, a g r i c u l t u r a l and su b u rb an , i
! !
I r u r a l com m unities and u n i v e r s i t y c e n te r s , se a sh o re r e s o r t s '
I
and d e s e r t tow ns, m o u n ta in sid e m u n i c i p a l i t i e s and v a l l e y !
c i t i e s , com m ercial and r e s i d e n t i a l ; th e c i t i e s r e p r e s e n te d
I th e e a s t , w e s t, n o r th , and so u th o f C a l i f o r n i a . One
!a u t h o r i t y , d is c u s s in g th e im p o rtan ce o f th e r e p r e s e n ta -
I 17
'F r e d e r ic k E. C roxton and Dudley J . Gowden, A pplied
G en eral S t a t i s t i c s (New York: P r e n tic e - H a ll, I n c . , 1939),
p. 32.
2 2
t iv e n e s s o f th e sam ple s t a t e d :
I n g e n e r a l, th e sample may be re g a rd e d as s a t i s f a c t o r y
o n ly i f i t c o n ta in s a l l th e r e le v a n t c h a r a c t e r i s t i c s
o f th e whole p o p u la tio n i n p r o p o rtio n to th e r e l a t i v e
im p o rtan ce to th e w h o l e . 18
A nother a u t h o r i t y , s u b s t a n t i a t i n g th e im p o rta n ce
o f r e p r e s e n t a t i v e n e s s , added:
The m ost im p o rta n t c o n s id e r a tio n i n s e l e c t i n g a sam ple
i s n o t i t s s iz e b u t i t s r e p r e s e n ta ti v e n e s s . A p ro p e r
ly s e l e c t e d 10 p e r c e n t sam ple i s a p t t o be s u p e r io r
to a p o o rly s e l e c t e d 2 0 p e r c e n t s a m p l e . 1 9
D avies and Yoder went on to say t h a t any method
I t h a t se c u re d an a d e q u ate and t r u l y r e p r e s e n t a t i v e sam ple
I m ight be used.^®
I A lthough th e r e p r e s e n ta ti v e n e s s o f th e sample s e n t
I o u t was acknow ledged im p o rta n t, th e r e p r e s e n ta ti v e n e s s o f |
I th e sam ple r e tu r n s was more im p o rta n t . ^1
: I
The f a c t t h a t n in e ty -tw o o f th e o r i g i n a l one hundred
I c i t i e s i n th e sam ple r e tu r n e d a t l e a s t one q u e s tio n n a ir e
I l e n t c r e d i b i l i t y t h a t r e p r e s e n ta ti v e n e s s was s t i l l p re s e n t ^
! i n th e sam ple r e t u r n s . An a c t u a l l i s t i n g o f th e s e n in e ty -
! two e i t i e s ^ ^ r e f l e c t e d th e same v a r ie d c h a r a c t e r i s t i c s as
George R. D avies and D ale Y oder, B u sin ess S t a t i a -
t i c s (New York: John W iley and S ons, I n c . , 1 9 h l) , p p . 17-
19
C roxton and Gowden, og. c i t . , p. 3 0 .
^ % a v ie s and Y oder, op. c i t . , pp. 21-22.
^lohaddock, op. c i t . , p . 3 8 6 .
^ % e e l i s t o f p a r t i c i p a t i n g c i t i e s i n Appendix A.
23
th e o r i g i n a l sam ple s e n t out*
V a l i d i t y . However, a lth o u g h n in e ty -tw o c i t i e s
r e tu r n e d q u e s tio n n a i r e s , o n ly 197 o f th e 5 0 0 councilm en
!
i o r i g i n a l l y s o l i c i t e d answ ered th e su rv ey q u e s tio n n a ir e .
!
; On th e o th e r hand s in c e th e sam ple was o r i g i n a l l y r e p r e
s e n t a t i v e , th e r e tu r n s should be e q u a lly so* F u rth e r e v i
dence o f v a l i d i t y may be p r e v a le n t i n th a t th e d a ta o f th e
sam ple r e t u r n s w ere, on th e w hole, c o n s i s t e n t and th e y d id
a g re e w ith th e l i t t l e t h a t i s known o r e x p e cte d i n th e
a r e a of councilm anic backgrounds*^^
A lthough th e number o f l e g i s l a t o r s r e tu r n in g q u es-
■ t i o n n a i r e s came t o 3 9 *1 + p e r c e n t , th e p ro b a b le re a s o n f o r
!
I such a c o m p a ra tiv e ly sm all r e t u r n re v o lv e d around th e
I
; d e l i c a t e , p e r s o n a l n a tu r e o f the in fo rm a tio n re q u e ste d *
i
I Inasm uch as t h i s i s one o f th e f i r s t s tu d ie s of i t s
k in d c a re sh o u ld be employed by b o th r e a d e r and w r i t e r
i
I b e f o r e a tte m p tin g to i n f e r b ro ad g e n e r a liz a ti o n s .
1 23
; Douglas B. S c a tes and A lic e V* Yeomans, The E f f e c t
I o f th e Q u e s tio n n a ire Form on C ourse R equests o f Employed
A d u lts (W ashington: American C o u n cil on E d u c a tio n , 195^ ) »
pp. if-7#
CHAPTER IV
RESULTS OP THE QUESTIONNAIRE j
I
A ll re sp o n se s r e c e iv e d from th e l e g i s l a t o r s were |
!
p r e s e n te d i n summary and ta b u la r form . T hese d a ta were an j
I
ac cu m u latio n o f th e s p e c i f i c background t r a i t s , i n t e r e s t s ,
and a t t i t u d e s o f councilm en i n C a lif o r n i a counci1-m anager
c i t i e s .
I . COUNCILMANIC BACKGROUNDS j
I
P la c e and D ate o f B i r t h j
I
I
P la c e o f b i r t h . The m a jo r ity o f C a lif o r n i a c o u n c ils
!
men answ ering th e q u e s tio n n a ir e were b o rn o u ts id e th e j
S t a t e o f C a lif o r n i a as shown i n T ab le I . One hundred and I
I
n in e ty answ ers r e v e a le d t h a t o n ly tw e n ty -s ix councilm en I
were b o rn i n o th e r C a lif o r n i a com m unities w h ile th e j
re m a in d e r, o r I 0 3 , were b o rn i n o th e r s t a t e s or f o r e i g n I
i
c o u n t r ie s . !
Of th o se b o rn i n o th e r C a lif o r n i a com m unities, te n
each in d ic a t e d t h a t Los A ngeles or San F ra n c is c o was t h e i r
b i r t h p l a c e . Oakland came n e x t w ith f i v e , fo llo w e d by San
J o s e w ith th r e e .
O u tsid e o f C a l i f o r n i a , th e s i x le a d in g s t a t e s t h a t
w ere th e b i r t h p l a c e o f C a lif o r n i a councilm en in c lu d e d
I l l i n o i s , O hio, Iow a, I n d ia n a , M is s o u ri, and K ansas.
25
TABLE I
PLA CES O P BIRTH O F CALIFORNIA C O U N G IL M B N
Place bom Number
In same c ity representing 26
In otlier California communities 6l
Illin o is 12
Ohio a
Iowa 6
Indiana 6
Missouri 6
Kansas 6
Michigan
5
Minnesota
5
N ew York
5
Texas k
Utah
k
Washington k
Oklahoma 3
Wisconsin 2
Arkansas 2
Vermont 2
Arizona 2
Nebraska 2
Alabama
2
Oregon 1
Montana 1
West Virginia 1
Idaho 1
South Dakota 1
Kentucky 1
Massachusetts 1
Washington, D.C. 1
England
3
Canada 1
Mexico 1
Ita ly 1
Greece 1
Peru 1
Denmark 1
Total
L . . . _
I 26 I
! !
I F o re ig n c o u n tr ie s were th e b i r t h p l a c e o f n in e councilm en;
j th e c o u n tr ie s were E ngland w ith t h r e e , fo llo w e d by Canada,
I M exico, I t a l y , G reece, P eru and Denmark, a l l w ith one
I each . Seven l e g i s l a t o r s d id n o t respond to th e q u e s tio n
on p la c e o f b i r t h .
D ate o f b i r t h * A lthough th e d a te s o f b i r t h i n d i
c a te d t h a t ages o f councilm an v a rie d from 27 to 73 y e a r s ,
r e s u l t s o f th e q u e s tio n n a ir e p re s e n te d i n T ab le I I b ro u g h t
f o r t h t h a t th e av e ra g e age o f th e C a lif o r n i a councilm an
was ij.7.5 y e a r s ,
j One hundred and e ig h ty -tw o answ ers in c lu d e d a l l (6)
I o f th e fem ale l e g i s l a t o r s . F i f t e e n councilm en d id n o t
i answer th e s p e c i f i c su rv e y q u e s tio n on ag e . T h is f i g u r e
1
i r e p r e s e n te d th e l a r g e s t s in g l e group n o t answ ering any one
I ' ,
su rv ey q u e s tio n .
A la r g e m a jo r ity , 100 councilm en o f th e 182 respond-j
I in g , w ere i n age b r a c k e ts betw een 1^1 and 55 y e a rs o f a g e . |
Three w ere over 71 y e a rs o f a g e , w h ile fo u r were betw een
j 27 and 30 y e a rs o f ag e.
i
t
i A n a ly sis o f b i r t h p l a c e and ag e. A r e c a p i t u l a t i o n
I
I o f s t a t i s t i c s r e g a r d in g p la c e o f b i r t h r e v e a le d t h a t a
I m a jo r ity o f C a l i f o r n i a councilm en came from o u ts id e th e
I s t a t e and c o u n try . T h is , i n tu r n , was u n d o u b te d ly due to
co n tin u o u s m ig r a tio n o f p eo p le in to th e s t a t e f o r th e l a s t
27
TA B LE II
A G ES O F OALIFORNIA mmGlJM m
Ages Number Per cent
27 - 30 k
2.20
31 - 35
20
10.99
36
- I 40
19
10. #
la
- h$
luo 21.98
1 & 6 - 50 38 20*88
51 - 55 22 12.09
56 — 60
13 7.1k
61 - 65 17 9.3k
66 - 70 6 3.29
71
and over
3 1.65
Tdtal 182 100.00
I se v e n ty y e a r s .
I A lso , th e ac c u m u la tio n o f s t a t i s t i c s r e l a t i v e to
i
; ages o f councilm en re v e a le d t h a t a m id d le-ag ed group of
I
i c i t i z e n s was o f f e r i n g i t s s e r v ic e s to th e community.
!
I
I Y ears R e sid in g i n C ity
Only seven out o f one hundred n in e ty -s e v e n c o u n c il
men d id n o t answer th e q u e s tio n r e l a t i v e to th e number of
y e a rs o f r e s id e n c e i n th e c i t y th e y were r e p r e s e n t i n g .
A lthough le n g th o f r e s id e n c e v a r ie d from 3 to 63 y e a r s ,
th e a r ith m e ti c mean was computed a t 2 0 .3 y e a r s .
However, one hundred tw en ty l e g i s l a t o r s , o r 6 3 .1 7
p e r c e n t, r e p o r te d a le n g th o f r e s id e n c e l e s s th a n th e
mean f i g u r e . T h is in d ic a t e d t h a t th e mode and th e median
were p ro b a b ly b e t t e r m easures o f c e n t r a l te n d e n c y . The
; mode, o r f o r t y - f i v e councilm en, were e l e c t e d o r a p p o in te d I
I !
' to th e l o c a l l e g i s l a t i v e body betw een t h e i r f i f t h and '
' t e n t h y e a r of c i t y r e s id e n c e , w h ile th e m edian d em o n strated
i
, t h a t a p p ro x im a te ly 12 y e a rs was th e le n g th o f r e s id e n c e .
i
i T able I I I re v e a le d t h a t a lth o u g h y e a rs o f r e s id e n c e
I o f a l l councilm en averaged s l i g h t l y o v er 20 y e a r s , a s tr o n g
I
I j
I m a jo r ity were c i t i z e n s who had e s ta b li s h e d r e s id e n c e s in c e j
' !
j th e o u tb re a k o f World War I I . F u r th e r , C a l i f o r n i a c o u n c ils
i
d e f i n i t e l y in d ic a t e d t h a t th e s o - c a l l e d “newcomers” were I
a c t i v e l y i n t e r e s t e d and p a r t i c i p a t e d i n m u n ic ip a l g o v ern - !
m ent. I
29
TABLE I I I
Y E A R S O F R E SID E N C E O F C A L IFO R N IA C O U N C IIM E N IN CITIES O F SE R V IC E
Number o f y ea rs Number o f
o f resid en ce coim cllm en Per cen t
1 - 5 12
6.32
6 - 1 0
k5 23.69
1 1 - 1 5 31
16.32
16 - 20 32 l6.8k
21 - 25
15 7.89
26 - 30 10 5.26
31 - 35 11
5.79
36 - i|D
15 7.89
k l - k5
8 k.21
k6 — 5o 6 3.16
51 - 55
2
1.05
5 6 - 60 2
1.05
6l - 65 1 .53
T otal 190 100.00
NOTE: This table should be read as follows: Ten California
councilmen resided in the c ity they were representing between 26 and
30 years, but had not yet completed th eir th ir ty - f ir s t year of re s i
dence.
30
Y ears o f S e rv ic e
One hundred n i n e t y - f i v e councilm en responded to th e
su rv e y q u e s tio n on t o t a l y e a rs o f s e r v ic e ; o n ly two
a b s ta in e d . S l i g h t l y more th a n 6$ p e r c e n t of th e t o t a l ,
o r one hundred tw e n ty -se v e n , had l e s s th a n k y e a rs o f s e r v
i c e . T ab le IV in d ic a te d t h a t t h i r t y - n i n e had l e s s th a n
1 y e a r ; tw enty had e x p e rie n c e d 1 y e a r , b u t l e s s th a n 2
!
I y e a r s ; betw een 2 and 3 y e a rs o f s e r v ic e had b een r e p o r te d
I
I by f o r ty - o n e councilm an, w h ile tw e n ty -se v e n e x p e rie n c e d
j 3 b u t l e s s th a n k y e a r s . i
i
j A lthough le n g th o f s e r v ic e on c i t y c o u n c ils showed I
1 I
a sp re a d o f from 6 months to 1 6 .5 y e a r s , th e av e ra g e le n g th
I o f s e r v ic e was o n ly 3*7 y e a r s . I
I The v a l i d i t y o f t h i s f i g u r e was b orne o u t i n p a r t |
by a r e c e n t su rv ey conducted by a r e s e a r c h group a t th e
i U n iv e r s ity o f S o u th e rn C a l i f o r n i a . The r e s e a r c h e r s , i n
I re c o rd in g th e le n g th o f councilm anic s e r v ic e i n Los A ngeles
j and Orange C o u n tie s , r e p o r te d t h a t “th e av erag e councilm an
( _
has b een i n o f f i c e a l i t t l e l e s s th a n f o u r y e a r s . !
t
' F u r th e r , th e r e s e a r c h group r e p o r te d a m edian o f 3 .8 y e a r s ;
w h ile t h i s su rv ey r e p o r te d a m edian o f a p p ro x im a te ly 3
y e a rs .
P u b lic A d m in is tra tio n Sem inar Group, S o u th ern
C a l i f o r n i a Councilm en T e l l How They S e le c t a C ity Manager
(Los A n g eles: U n iv e r s ity o f S o u th e rn C a l i f o r n i a , F eb ru ary
7, 1 9 5 6 ), p. 1. (M im eographed.)
31
TABIS IV
N U M B E R O F Y E A R S O F SER V IC E O F C A L IFO R N IA C O U N C I L M E N
Nimber o f years Noiaber o f
o f se r v ic e coim cilm on Per cen t
Less than 1 year
39
20.00
1 - 2 20 10.26
2 - 3 kl 21.03
3 - k 27 13.85
k - 5 17 8.72
5 - 6 11 5.61),
6 — 7
Ik
7.18
7 - 8
7 3.59
8 - 9 9 k .6 l 1
9 - 1 0 3 1.53
More than 10 years
7 3.59 j
Total 195
1
100.00
32
A ppointm ents* Not a l l councilm en s e rv in g th e
peo p le had been e l e c t e d . S ev en teen re sp o n d e n ts commenced
t h e i r s e r v ic e on b ein g a p p o in te d to th e l o c a l l e g i s l a t u r e
due to v a c a n c ie s caused by d e a th , r e s i g n a t i o n , o r r e c a l l *
I n t e r r u p t e d s e r v i c e * Only s i x , or about 3 p e r c e n t
o f th e one hundred n i n e t y - f i v e councilm en re p o rtin g se rv e d
i n t e r r u p t e d term s* These i n t e r r u p t i o n s w ere due to
te m p o ra ry r e tir e m e n t from l o c a l p o l i t i c s o r d e f e a t a t th e
p o lls #
A n a ly s is o f y e a rs o f s e r v i c e . The av erag e 3*7 y e a rs
o f s e r v ic e o f C a l i f o r n i a councilm en r e v e a le d t h a t ta k e n
j as an a r ith m e ti c av e ra g e no s i n g l e councilm an had a t t a i n e d
a f u l l f o u r - y e a r term . However, t h i s a n a ly s is was n o t
c o n c lu s iv e u n le s s th e tim e o f th e su rv ey was ta k e n in to
I
! c o n s id e r a tio n . D ata com piled on y e a rs o f s e r v ic e were
a n a ly z e d as o f December 1 $ , 1956, s i x to e ig h t months afterj
' a m a jo r ity o f C a l i f o r n i a c i t i e s p e r t i n e n t to t h i s su rv ey
j h e ld co u n cilm an ic e l e c t i o n s . T h ir ty - n in e o f th e re sp o n d -
I e n t councilm an had b een e le c te d o r a p p o in te d to o f f i c e
■ l e s s th a n 1 y e a r . I t was t h e r e f o r e f a i r to co nclude t h a t
I a su rv e y and c o m p ila tio n made i n December, 1957, f o r
exam ple, would r e v e a l a s l i g h t l y h ig h e r a v e ra g e th a n 3*7
y e a rs o f s e r v ic e .
At th e tim e of th e su rv e y , alm ost 9 p e r c e n t o f th e
i 33
I C a lif o r n i a councilm en i n counci1-m anager c i t i e s were
I s e rv in g t h e i r c o n s t i t u e n t s n o t b ec au se o f a s u c c e s s f u l ,
i
j e l e c t i o n campaign b u t b ecau se o f appointm ent to o f f i c e . i
I I
I Such a p e rc e n ta g e was a p ro b a b le i n d i c a t i o n o f i n s t a b i l i t y |
i !
I to c o n tin u e d s e r v ic e and la c k o f d e m o cratic r e p r e s e n ta tio n .;
I I
The d a ta on councilm en w ith i n t e r r u p t e d s e r v ic e
were an a ly ze d and showed t h a t once a m u n ic ip a l l e g i s l a t o r
v o l u n t a r i l y o r i n v o l u n t a r i l y r e t i r e s from l o c a l p o l i t i c s ,
h is chances o f coming b ack a re ab o u t t h i r t y - t h r e e to one
a g a in s t such a r e t u r n .
I I . COUNCILMANIC EDUCATIONS
H ig h e st L ev el o f E d u c a tio n
! Only 3 councilm en a b s ta in e d from answ ering th e
q u e s tio n on th e co m p letio n o f th e h ig h e s t l e v e l o f educa-
; t i o n . Of th e re m a in in g 19k who answ ered, $0»$ p e r c e n t
I were c o lle g e g r a d u a te s . T ab le V f u r t h e r i n d ic a t e d t h a t
: a p p ro x im a te ly k p e r c e n t had o n ly com pleted e le m e n ta ry
^ s c h o o l; a l i t t l e o v er 16 p e r c e n t were h ig h sc h o o l g ra d u -
' a t e s ; tr a d e o r b u s in e s s sc h o o l g ra d u a te s t o t a l e d k P®^
i c e n t; th e rem a in d er had com pleted th e fresh m an , sophom ore,
I
I o r ju n io r y e a r i n c o l le g e , b u t had n o t g ra d u a te d .
P o s t g ra d u a te d e g r e e s . Over o n e - th ir d o f th e
c o lle g e g ra d u a te s had re c e iv e d p o s t g ra d u a te d e g re e s a t
th e m a s te r 's o r d o c t o r a l l e v e l .
3 k
TABLE V
E D U C A T IO N A L L E V E L S O F C O U N C I L M E N IN C A L IFO R N IA
C O U N C IL -M A N A Œ I CITIES
H ighest ed u ca tio n al
le v e l com pleted Number Per cen t
Elem entary sch o o l 8 lt.l2
High sch o o l 32 16.50
Trade or b u sin ess sch o o l 8 It. 12
Junior c o lle g e graduate 8 it.l2
Freshman‘ S
13 6.70
Sophomore l 6 8.25
Junior 10
5.15
C ollege graduate 98 50.32
P riv a te tu to r 1 .52
T otal
19k
100.00
1
The freshm an year was com pleted a t a ju n io r c o lle g e or a four"
year c o lle g e .
: 35
I M ajor f i e l d o f s tu d y . T here were t h i r t y - t w o d i f -
I f e r o n t m ajor f i e l d s o f s tu d y a t t r i b u t a b l e to th e 98 college
I g ra d u a te s r e p o r t i n g . The f iv e le a d in g f i e l d s l i s t e d i n
I T able VI in c lu d e d Law, E n g in e e rin g , B u sin ess A d m in is tra -
i
I t i o n . Econom ics, and E d u c a tio n , i n t h a t o r d e r . These f i v e
I f i e l d s com prised s l i g h t l y over 56 p e r c e n t o f th e t o t a l .
! However, o n ly one re sp o n se each was a t t r i b u t e d to se v e n
te e n m ajor f i e l d s . F iv e o f th e s e f i e l d s in c lu d e d B otany, |
G eology, I n d u s t r i a l R e la t io n s , P u b lic A d m in is tra tio n , and
I S peech.
I .
j S u pplem ental e d u c a tio n . T w e n ty -six l e g i s l a t o r s j
I v o lu n te e re d in fo rm a tio n on su p p le m e n ta l e d u c a tio n . College;
i i
g ra d u a te s numbered 10, w h ile I 6 were n o n -c o lle g e g ra d u a te s i
In th e l a t t e r group a p rep o n d eran ce o f su p p le m e n ta l |
I
co u rse s in c lu d e d Law, E n g in e e rin g , B u sin ess Management,
; and A g r ic u ltu r e . I n th e fo rm er group E n g in e e rin g , P u b lic ,
j A d m in is tra tio n and Law le d th e way, in th a t o rd e r.
I Most o f th e i n s t r u c t i o n r e c e iv e d under su p p le m e n ta l
[ e d u c a tio n l a s t e d f o r a lim ite d tim e o n ly and was ta k e n
; w h ile th e r e p o r t i n g councilm an was i n u n ifo rm o r was
I employed a t a r e g u la r o c c u p a tio n b e fo re o r a f t e r e l e c t i o n
: to th e l o c a l c o u n c il. A lthough o c c a s io n a l c e r t i f i c a t e s
I were aw arded, i n th e m a jo r ity o f cases th e r e was no
I ta n g ib le ev id en ce o f s u c c e s s f u l co m p letio n o f th e v a rio u s
I
I c o u rse s o f i n s t r u c t i o n . Some o f th e councilm en com pleted
36
TABLE V I
M A JO R FIELDS O F ST U D Y O F C O LLEG E (EA D U A TE C O U N C IL M E N
IN C O U N C IL -M A N A C aSR CITIES
Major fie ld Number
Law
Ik
Engineering^
Ik
Business Administration 10
Economics 10
Education
7
Pharmacy
k
P o litic a l Science
k
Agriculture
3
Medicine
3
Accounting 2
Dentistry 2
English 2
Mathematics 2
Psychology 2
Architecture 1
Anthropology 1
Botany 1
Chiropody 1
Geology 1
History 1
Industrial Arts 1
Industrial Relations 1
Languages 1
Marketing 1
Optometry 1
Osteopathy 1
Physical Education 1
Physics 1
Public Administration 1
Speech 1
Veterinary Medicine 1
No designation 2
Total 98
I The major f i e l d o f E ngineering
, M echanical, N aval, and E le c tr ic a l*
in clu d ed : C iv il, Chem ical,
37
th e s e c o u rse s a t n ig h t.
A n a ly s is o f co u n c ilm an ic e d u c a tio n . I n a n a ly z in g
th e v a rio u s l e v e ls o f e d u c a tio n com pleted by C a l i f o r n i a
councilm en, i t was e s ta b li s h e d t h a t a m a jo r ity had c o lle g e
t r a i n i n g ra n g in g i n d u r a tio n from one to seven y e a r s .
S l i g h t l y o v e r h a l f o f th e group surveyed com pleted a re g u
l a r c o l l e g i a t e c u rric u lu m . T h is in d ic a te d t h a t th e le v e l
o f e d u c a tio n i n C a lif o r n i a c o u n c ils was h ig h w ith a p o te n
t i a l , a d e q u a te ly p r e v a l e n t , to g ra sp th e p ro b lem s, th e o r y ,
and o p e r a tio n o f l o c a l governm ent.
A lthough th e p o t e n t i a l was th e r e due to th e b a s ic |
e d u c a tio n , p e r t i n e n t fo rm a l t r a i n i n g i n P o l i t i c a l S c ie n c e !
j
and P u b lic A d m in is tra tio n was i n th e background o f v e ry i
i few . T hus, most l e g i s l a t o r s were d e s tin e d f o r an arduous |
, o r i e n t a t i o n tow ard t h e i r r e s p o n s i b i l i t i e s . R o b ert L ouis I
1 I
, S tev e n so n summed i t a l l up when he s t a t e d t h a t p o l i t i c s i
! I
, was perhaps th e o n ly p r o f e s s io n f o r which no p r e p a r a t io n |
I I
I Q I
was th o u g h t n e c e s s a r y .^ |
' I
I I I I . COUNCILMANIC OCCUPATIONS |
I I
I I
U onncllm anic O ccu p atio n s |
1 I
In c lu d e d in th e d a ta on o c c u p a tio n s were s ix ty - o n e |
p
^R obert L ouis S tev e n so n , F a m ilia r S tu d ie s o f Men
and Books (London; C h a tto and W indus, 18Ü2), p. 1 ^ .
38
s p e c i f i c ones from 196 councilm en# On© councilm an d id n o t
d e s ig n a te h is v o catio n # A lthough th e s e s ix ty - o n e occupa
t i o n s r e p r e s e n te d a wide v a r i e t y o f e n d e av o rs, i t was
p o s s i b le to group them as l i s t e d i n T ab le V II i n f o u r te e n ,
; g e n e ra l c a t e g o r i e s . j
i I
The f o u r le a d in g c a te g o r ie s com prised 53*6 p e r ce n t '
o f th e t o t a l r e p o r t i n g .
M e rc h an ts. V ario u s i n d i v i d u a l l y owned and managed I
m e r c a n tile e s ta b lis h m e n ts su ch as p h a rm a c ie s, gas s ta tio n s ,!
I g a ra g e s , hardw are s t o r e s , and la u n d r ie s le d th e way w ith
I 18.88 p e r c e n t, or 37 councilm en.
j M anagers. The second h ig h e s t group o f o c c u p a tio n s
i in c lu d e d th e m a n a g e ria l c a te g o ry . I n t h i s group were
I p la c e d e x e c u tiv e s , a d m i n i s t r a t o r s , o f f i c e m anagers, and
I p la n t m anagers. T w e n ty -fiv e councilm en, o r 1 2 .7 6 p e r c e n t
, o f th e t o t a l , w ere in c lu d e d in t h i s c a te g o ry .
I
I
e a r n e r s . A m is c e lla n e o u s group o f b u s in e s s
em ployees w orking f o r s a l a r i e s o r wages made up 1 1 .7 k p e r
c e n t, o r 2 3 , o f th e t o t a l number o f councilm en r e p o r t i n g .
Such s p e c i f i c o c c u p a tio n s as a c c o u n ta n t, c o u r t r e p o r t e r ,
te le p h o n e t e s t e r , s a ilm a k e r, sa le sm a n , r a i l r o a d co n d u c to r
I i
I and a g e n t, s a f e t y in s p e c t o r , and m a c h in is t were r e p r e s e n t -
Î I
! ed i n th e wage e a rn e rs * group. *
T A B L E VII
O C G U P A T IO N S O F GâlIFORNIA C O U N C I L M E N
Occmpational category Number Per cent
Merchants
37 18.88
Managers 25 12.76
Miscellaneous business employees 23 11.74
Retired citizens 20 10.21
Agricultural workers
15 7.65
Building contractors
15 7.65
Lawyers 10 5.10
Medical fie ld practitioners 10 5.10
Insurance agents and brokers 9 4.59
Engineers 9 4.59
Teachers and professors
9 4.59
Real estate agents and brokers 8 4.08
Housewives 5 2.55
Manuf ac turers 1
.51
Total 196 100.00
/
i 4 0 1
i
i R e tir e d c i t i z e n s * The f o u r th h ig h e s t group numbered!
I !
'20 l e g i s l a t o r s o r 10*21 p e r cent* A lth o u g h many occupa-
I t i o n s , c o m p risin g m e rc h a n ts, m i l i t a r y o f f i c e r s , m anagers,
t e a c h e r s , p u b lic em ployees, and e n g in e e r s , were r e p r e s e n te d
i n th e r e t i r e d g ro u p . T ab le V III in d ic a t e d t h a t 75 p e r c e n t
o f th e s e p eo p le w ere r e t i r e d m erchants o r m i l i t a r y p e rso n
nel#
A n a ly s is o f o c c u p a tio n s * I t was r e a s o n a b le t o
assume from th e r e c o n c i l i a t i o n o f th e v a rio u s o c c u p a tio n s
w ith th e councilm en r e p o r tin g t h a t th e “ l i t t l e man” was
w e ll r e p r e s e n te d on C a l i f o r n i a c o u n c ils# T h is was e v i
denced by th e number o f a g r i c u l t u r a l w o rk e rs, b u s in e s s
em ployees, m e rc h a n ts, m anagers, and r e t i r e d c i t i z e n s t h a t
f ig u r e d i n th e co m p ila tio n *
IV . GOVERNMENTAL AND CIVIC ACTIVITIES EXPERIENCE
P r i o r G overnm ental E x p e rie n c e
The open-end su rv ey q u e s tio n on p r i o r governm ental
e x p e rie n c e was so p h ra se d and spaced as to © l i c i t as much
re s p o n s e as p o s s ib le * A ll b u t 1 councilm an answ ered t h i s
q u estio n # D ata w ere c l a s s i f i e d t o r e f l e c t p a id p r o f e s
s io n a l e x p e rie n c e , n o n - p ro f e s s io n a l e x p e rie n c e , and no
governm ental e x p e rie n c e w h a tso e v e r.
P a id p r o f e s s io n a l e x p e rie n c e # Only 12#2k p e r ce n t
k l
TABLE V I I I
N U M B E R A N D P E R C E N T A G E O F R ETIR ED C A L IFO R N IA C O U N C I L M E N
B Y O C C U P A T IO N A L C A T E G O R Y
Occupatio n a l ca teg o ry Number Per cen t
M ilita r y o f f ic e r s 8 ko.oo
Merchants
7
35.00
Managers 2 10.00
E ngineers 1 5.00
Teachers 1 5.00
P u b lic em ployees 1 5.00
T otal 20 1 0 0 ,0 0
42
o f C a lif o r n i a counoilm en had p r i o r p aid p r o f e s s i o n a l gov
ern m e n tal e x p e rie n c e b e fo r e assum ing o ffic e # I n e s t a b l i s h
in g t h i s c a te g o r y o f e x p e rie n c e a l l f u l l - t i m e , s a l a r i e d
p o s it io n s hav in g s u p e rv is o ry o r a d m in is t r a tiv e d u tie s a t
any l e v e l o f governm ent were in c lu d e d . T y p ic a l o f th e ■
e x p e rie n c e n o te d by councilm en was s e r v ic e as m u n ic ip a l I
d ep artm en t h e a d s , f e d e r a l and sc h o o l a d m i n i s t r a t o r s , l e g a l
c o n s u lta n ts to l o c a l and s t a t e b o d ie s , co u n ty r e c o r d e r s ,
and congressm en*3 s e c r e t a r i e s # The m a jo r ity o f t h i s group
had f e d e r a l e x p e rie n c e p r i o r to e l e c t i o n o r a p p o in tm e n t,
as shown in T a b le I%#
N o n -p ro fe s s io n a l e x p e rie n c e # S ix ty -o n e councilm en
an sw erin g th e q u e s tio n on p r i o r g o v ern m en tal e x p e rie n c e
f e l l i n th e n o n - p r o f e s s io n a l category# T h is number came
to 31*13 p e r c e n t o f th e t o t a l # The c a te g o ry o f non-
j
p r o f e s s io n a l e x p e rie n c e in c lu d e d tim e s p e n t on governm ental
!
i b o d ie s where no s a l a r y was p a id and where p re se n c e on th e j
j job was p a r t - t i m e . |
I The th r e e le a d in g ty p e s o f e x p e rie n c e o f t h i s k in d
I in c lu d e d s e r v ic e on th e p la n n in g b o a rd s and com m issions, j
I I
I s in g le - p u r p o s e c i t i z e n co m m ittees, and p a rk and r e c r e a t i o n ,
j commissions# S e v e r a l o f th e re sp o n d e n t councilm en had i
I I
: more th a n one ty p e o f n o n - p r o f e s s io n a l g o vernm ental experi-?
: , I
j ence w hich r e f l e c t e d e i g h ty - e ig h t a r e a s f o r th e 61 coun- j
i oilm en re p o rtin g # These d a ta a re p re s e n te d i n T ab le 1C . j
TA B LE IX
N U M B E R O F CALIFORNIA C O U N C IL M E N H A V IN G PRIOR PAID PROFESSIONAL
G O V E R N M E N T A L EXPERIENCE B Y LEV EL O F G O V E R N M E N T
Level of governmental experience Number
Federal government
14
Municipal government 3
School d is tric t 2
State government 2
County government 1
Foreign government 1
City, sta te , and federal government 1
Total
24
TABLE X
A R EA S O F M O N -PRO FESSIO N A L G O V E E tN M E N T A L EXPERIENCE
REPO RTED B Y SIXTY-ONE CALIFORNIA C O U N C IL M E N
Area of experience Number
Planning commission or board 20
Single-purpose committees 20
Parks and recreation commission or board 14
Special d is tric ts 9
Civil defense 6
C ivil service and pension boards 4
Partisan p o litic s 4
Library board 3
Traffic safety committee « 2
Harbor commission 2
Airport commission 1
Housing authority 1
Welfare commission 1
Volunteer f ir e department 1
Total 88
4 5
E x p e rie n c e on p la n n in g and r e c r e a t i o n com m issions
needed no e x p la n a to ry rem arks s in c e su ch e x p e rie n c e was
I
I r a t h e r w e ll sta n d a rd iz e d # U s u a lly th e tim e s p e n t on
I s in g le - p u rp o s e com m ittees was e x tre m e ly lim ite d and o f a
j n o n - re c u r rin g n atu re # Examples o f th e s e com m ittees were
j s t r e e t , se w e r, c i t i z e n , c a p i t a l im provem ent, s p e c i f i c bond
I
I i s s u e s , i n t e g r a t i o n , and c h a r t e r com m ittees# A ll s i n g l e -
j purpose com m ittees w ere a p p o in te d by a p u b lic body having
I j u r i s d i c t i o n #
' No e x p e rie n c e # A t o t a l o f 111 councilm en r e p o r te d
I a b s o lu te l y no g o v ern m en tal e x p e rie n c e o f any k in d p r i o r to
j e le c tio n # T his group amounted t o 5 6 #63 p e r c e n t o f 196
I councilm en who s u b m itte d d a ta on t h i s q u estio n #
I
I A n a ly s is o f governm ental e x p e rie n c e # T here was
s tr o n g i n d i c a t i o n t h a t a s u b s t a n t i a l m a jo r ity o f C a l i f o r
n ia councilm en had no p r i o r governm ental e x p e rie n c e o f
any k in d p r i o r to e l e c t i o n o r ap pointm ent to th e m u n ic ip a l
l e g i s l a t u r e # T h is f a c t added s ig n i f ic a n c e t o th e in e x p e ri
ence o f newly e l e c t e d councilm en.
Only 31*13 p e r c e n t o f th e t o t a l e x p e rie n c e d lim ited
n o n - p r o f e s s io n a l c o n ta c t w ith any governm ent work# I n
most ca ses th e c o n ta c t was on one o r two com m issions o r
com m ittees; som etim es t h i s e x p e rie n c e was lim ite d b o th i n
tim e and scope due t o th e s in g le - p u r p o s e job f o r w hich th e
46
com m ittee had b een o rg a n iz e d . Such in e x p e rie n c e te n d e d to
! g iv e th e new l e g i s l a t o r lim ite d u n d e rs ta n d in g o f th e general
p i c t u r e . On th e o th e r hand m embership on b o ard s and com-
I m is sio n s p ro v id e d tr a in in g # Matthews s t a t e d : “Good t r a i n -
j in g grounds f o r f u t u r e councilm en a r e th e c i t y p la n n in g
com m ission, c i v i l s e r v ic e b o a rd , and th e p a rk r e c r e a t i o n
commission*
A b e t t e r g ra s p o f th e o v e r - a l l p i c t u r e was a f f o rd e d
t h a t sm a ll segment o f 1 2 * 2 4 P®r c e n t who se rv e d o th e r gov
ern m e n tal j u r i s d i c t i o n s on a f u l l - t i m e b a s is # However,
t h i s group lim ite d th e a v e ra g e c o u n c il to about o n e - h a lf
an e x p e rie n c e d member out o f f i v e assum ing o f fic e * I
C iv ic A c t i v i t i e s E x p e rie n c e
i I
I A sm a ll m a jo r ity o f councilm en r e p o r te d p r i o r c i v ic
j ex p erien ce# Q u a lify in g e x p e rie n c e was i n t e r p r e t e d as mem-
ib e r s h i p i n chambers o f commerce, c o o r d in a tin g c o u n c ils ,
I
p a r e n t - te a c h e r a s s o c i a t i o n s , s e r v ic e c lu b s , and r e l a t e d
I
I o rg a n iz a tio n s # N in ety o u t o f 197 r e p o r t i n g councilm en had
I no c i v ic a c t i v i t i e s e x p e rie n c e , w h ile th e rem a in d er revealed
j c o n ta c t and e x p e rie n c e i n I 3 I a r e a s a s l i s t e d i n T ab le XI#
I The th r e e le a d in g a re a s am ounted t o 102 o f th e t o t a l I 3I*
I
Chamber of Commerce# D ata showed t h a t 4.I re sp o n d
e n ts had e x p e rie n c e on th e Chamber o f Commerce, e i t h e r as
^ S tev e M atthew s, “Types o f M an ag erial L e a d e r s h ip ,”
P u b lic Management, 3 9 :50-53* M arch, 1957#
47
TABLE X I
A R EA S O F CIVIC ACTIVITIES EXPERIENCE R E P O R T E D
B Y 107 CALIFORNIA C O U N C IL M E N
Area of civic experience Number
Chamber of commerce officer or member 4l
Member of fra tern al or service club 39
Red Cross o fficer or worker 13
Parent-teacher association officer or member 9
Boy Scouts officer or worker 7
Co-ordinating council o fficer or member 5
I National Guard, American Legion, or Veterans of Fore%n Wars 5
I Hospital director 4
i Single-purpose civic Committee‘ S 4
I Civic improvement committee'^ 3
I
Safety council^ 1
Total
131
Not appointed by a c ity council, but by some citizen organization#
1
o f f i c e r s o r a s members# T here w ere tw e n ty -n in e o f f i c e r s
and tw elv e members. P r i o r e x p e rie n c e on th e l o c a l Chamber
u f Commerce was th e le a d in g s in g l e a re a o f e x p e rie n c e . ;
I
i
S e r v ic e o r f r a t e r n a l c lu b . The second le a d in g a r e a j
1
o f e x p e rie n c e was membership i n l o c a l f r a t e r n a l and s e r v ic e
I
o rg a n iz a tio n s # Such o r g a n iz a tio n s as R o ta ry , L io n s, j
Exchange, K iw anls and E lk s were in clu d ed # T h ir ty - n in e |
I
councilm en p a r t i c i p a t e d i n th e s e o rg a n iz a tio n s #
Red C ro s s # Only I 3 councilm en r e p o r te d c i v ic
e x p e rie n c e as an o f f i c e r o r member o f th e l o c a l Red G ross
I ch a p ter#
i
I P a re n t-T e a c h e r A s s o c ia tio n # The f o u r t h le a d in g
a r e a o f c iv ic e x p e rie n c e was p a r t i c i p a t i o n i n p a r e n t-
; te a c h e r a s s o c i a t i o n s , e i t h e r as an o f f i c e r o r member#
I
I
A n a ly s is o f c i v i c a c t i v i t i e s e x p e rie n c e # The i n -
' fo rm a tio n s u b m itte d by th e r e p o r t i n g councilm en c l e a r l y
i
I showed a r e l a t i v e l y w ide ran g e o f c iv ic a c t i v i t i e s by a
I
I m a jo r ity o f councilm en# F u r th e r , s e v e r a l s p e c i f i c a re a s
were a s s o c ia te d w ith t h i s p r i o r c i v i c e x p e rie n c e , su ch as
chambers o f commerce and f r a t e r n a l and s e r v ic e o r g a n iz e - |
■ I
! tio n s # The f a c t t h a t many chambers o f commerce work w ith I
1
l o c a l governm ents in d i c a t e d t h a t a lo n g w ith s e r v ic e c lu b s 1
such c o n ta c t may be a s te p p in g - s to n e to l o c a l p u b lic j
o f f ic e #
49
V. IHTERESTS AND ATTITUDES
I n t e r e s t s I n M u n ic ip al Qovernment
I
C ouncilm en, when asked w hich a s p e c t o f l o c a l govern-j
ment th e y w ere most i n t e r e s t e d i n , resp o n d ed i n many c a se s !
w ith more th a n one i n t e r e s t . A c tu a lly , T ab le XII showed j
t h a t 193 l e g i s l a t o r s s e l e c t e d th r e e hundred tw e n ty -se v e n
p h ases o f m u n ic ip a l governm ent. Based on i n t e r e s t th e
f i v e le a d in g s e le c tio n s amounted to two hundred e ig h ty or
#6 p e r c e n t.
G en e ra l a d m in is t r a tio n . T hat a s p e c t of governm ent |
!
w hich r e c e iv e d th e g r e a t e s t i n t e r e s t in v o lv e d th e fu n c tio n s
commonly r e f e r r e d to a s g e n e ra l a d m in is t r a tio n . T hese |
j f u n c tio n s in c lu d e d f in a n c e , p e r s o n n e l, p u b lic r e l a t i o n s , |
I p u rc h a s in g , a d m in is t r a tiv e a n a l y s i s , and p la n n in g . A lm ost|
: ij.2 p e r c e n t o f th e re s p o n d e n ts i n d ic a t e d i n t e r e s t i n t h i s I
, I
! s u b j e c t . i
i
I
; P ark s and r e c r e a t i o n . P arks and r e c r e a t i o n a l
a c t i v i t i e s r e c e iv e d r e c o g n i t i o n by f i f t y - o n e s e l e c t i o n s o r
15#6 p e r ce n t of th e t o t a l .
P u b lic w o rk s. The t h i r d h ig h e s t group i n term s o f
i n t e r e s t was p u b lic w orks. T h is c a te g o ry in c lu d e d th e
e n g in e e rin g and c o n s tr u c tio n o f c a p i t a l im provem ents such
as s t r e e t s , s e w e rs , sto rm d r a i n s , p u b lic b u i l d i n g s , and
TABLE X II
TY PES O P G O V E R N M E N T A L INTERESTS R EPO R TED
B Y 193 CALIFORNIA C O U N C IL M E N
50
Area o f goversaen tal in t e r e s t Number Per cen t
General a d m in istra tio n 137
1(1.90
Parks and r e c r e a tio n
51
15.60
P u b lic works
1 (1 12.5U
P o lic e 28 8.56
A ll areas o f government 23 7.03
F ire 18 5.50
U t i l i t i e s
1 1 1
4.28
C iv il d efen se 8
2,1(5
L ibrary 6 1.83
Harbor 1
.31
T otal 327 100.00
J
i 51
j o p e r a t io n a l f a c i l i t i e s such as i n c i n e r a t o r s , s t r e e t l i g h t -
I in g , and o f f - s t r e e t p a rk in g . The number o f i n t e r e s t s
j d e s ig n a te d by councilm en amounted to f o r ty - o n e ; p e rc e n ta g e 4
■ w is e , t h i s number came to 12.5 p e r cent#
i
P o l i c e # The i n t e r e s t a s s o c ia te d w ith th e p o lic e
f u n c tio n came t o tw e n ty -e ig h t s e l e c t i o n s , o r 8*6 p e r c e n t ,
of th e t o t a l r e p o r t i n g . Only 1 l e g i s l a t o r s p e c i f i c a l l y
i d e n t i f i e d h is p o lic e i n t e r e s t by f a v o r in g p o l i c e - f i r e
j i n t e g r a t i o n .
I
I
I A ll a s p e c t s . A sm a ll group o f councilm en were
I . I
I i n t e r e s t e d i n a l l a s p e c ts o f l o c a l governm ent. T h is groupI
amounted t o 7 p e r c e n t o f th e t o t a l i n t e r e s t s r e p o r te d by ,
a l l r e s p o n d e n ts . I
A n a ly s is o f i n t e r e s t s # The i n t e r e s t s p r e s e n te d by
r e p o r tin g l e g i s l a t o r s d e f i n i t e l y fa v o re d s p e c i f i c a s p e c ts
o r a re a s o f lo c a l government; by f a r , g e n e ra l a d m in is tr a
t i o n was d e s ig n a te d ov er any o th e r a s p e c t by alm ost th r e e
tim e s . P arks and r e c r e a t i o n , p u b lic w orks, and p o lice^ i n
t h a t o r d e r , w ere f u n c t i o n a l a re a s where co u n cilm an ic
i n t e r e s t ap p e a re d to be h ig h . F i r e , u t i l i t i e s , c i v i l
d e f e n s e , l i b r a r y , and h a rb o r evoked l e s s co u n cilm an ic
en th u sia sm .
I n t e r e s t i n H igher P u b lic O ff ic e
Only f i v e councilm en f a i l e d to answ er th e su rv e y
5 2
1 q u e s tio n on f u t u r e p o l i t i c a l a m b itio n s . Of th e 192 r e
p o r t i n g , 121 d id n o t have any p o l i t i c a l a m b itio n s , 28 were
u n d e c id e d , 17 were r e s t r i c t e d i n t h e i r a m b itio n s to r e -
I
I e l e c t i o n a t th e p r e s e n t m u n ic ip a l l e v e l w h ile th e remaindei?
I
! 26, d e f i n i t e l y a s p ir e d to h ig h e r p o l i t i c a l o f f i c e . T h is j
in f o rm a tio n was l i s t e d i n T a b le XIIX. I
A lthough th e t a b u l a t i o n s and a n a ly s e s o f d a ta were
t r e a t e d o b j e c t i v e l y , i t was n e c e s s a ry to make s u b je c ti v e
d e te rm in a tio n s i n a few in s ta n c e s r e l a t i v e to f u t u r e
p o l i t i c a l a m b itio n s . When a r e p o r t i n g councilm an s t a t e d
f
I
I t h a t he had no i n t e r e s t i n h ig h e r p u b lic o f f i c e and th e n |
I c o n tin u e d t o s t a t e t h a t he would ru n f o r any co u n ty , s ta te ,|
o r f e d e r a l o f f i c e , p ro v id e d th e p eo p le w anted him , t h i s ;
I
p e rso n was c l a s s i f i e d a s having p o l i t i c a l a m b itio n s a t
; th o s e p a r t i c u l a r le v e l s o f governm ent.
I H igher p o l i t i c a l l e v e l . Of th e 26 who a s p ir e d to
I h ig h e r p u b lic o f f i c e , 14 so u g h t more th a n one governm ental
j o f f i c e making a t o t a l o f f o r t y a r e a s i n w hich th e r e p o r t -
I in g councilm en were d e f i n i t e l y i n t e r e s t e d . These a r e a s |
' I
! w ere i d e n t i f i e d i n T ab le XIV.
j I
1 The most common h ig h e r o f f i c e was co u n ty s u p e rv is o r,
I fo llo w e d by s t a t e assemblyman and s e n a to r ; a group eq u a l j
I i n number to s t a t e assemblyman and s e n a to r a s p i r a n t s |
I I
I so u g h t any h ig h e r o f f i c e a t any l e v e l , l o c a l , s t a t e , o r
'
n a t i o n a l . The re m a in in g p e rso n s r e s t r i c t e d t h e i r i n t e r e s t s
5 3
TABLE X I I I
!
I FU TU R E POLITIGAL AM BITIONS OF CALIFORNIA C O U N C IL M E N
; Future p o litic a l ambitions Number Per cent
None 121 63 *P2
Undecided 28 14*58
Local re-election only 17 8*86
Higher government level 26 13*54
Total 392 100*00
L.
54
TABLE X IV
TYPES O F INTERESTS IN H IG H ER POLITIGAL OFFICE A S R EPO R TED
B Y TfCEN TY -SIX CALIFORNIA C O U N C IL M E N
Area of h i ^ e r p o litic a l office Number
County supervisor 9
State assmblyman 8
State senator 8
Any higher office 8
United States Respresentative 4
United States Senator 2
Sheriff 1
Total 40
NOTE: Twenty-six reporting councilmen designated fo rty areas
of p o litic a l in te re sts.
I 55
I
I s p e c i f i c a l l y to U n ite d S t a t e s s e n a to r o r r e p r e s e n t a t i v e ,
I and s h e r i f f a t th e co u n ty l e v e l .
I
j A n a ly s is . The d a ta showed t h a t a m a jo r ity o f |
j r e p o r t i n g l e g i s l a t o r s had no p o l i t i c a l a m b itio n s . T h is |
ma j o r i t y am ounted n u m e ric a lly to s l i g h t l y more th a n 63 p e r i
c e n t. Inasm uch a s th e s e councilm en d id n o t se e k r e e l e c t i o n
o r h ig h e r p u b lic o f f i c e i t was i n d i c a t i v e t h a t one term
was p ro b a b ly s u f f i c i e n t . F u r th e r , comments from 8 respond-j
e n ts w ith l e s s th a n f o u r y e a rs of s e r v ic e o f f e r e d su ch j
rem arks as " w i l l r e t i r e a f t e r p r é s e n t te rm ," " j u s t w ant t o |
f i n i s h p r e s e n t te rm ," " c o s ts me money to s e rv e th e c i t y , " j
and "want t o g e t o u t b e f o r e u l c e r s and h e a r t tr o u b le s e t
i n . " :
S m a lle r p e rc e n ta g e s d e s ig n a te d r e e l e c t i o n a t th e
!
l o c a l l e v e l o r in d e c is i o n a t th e tim e o f an sw erin g th e
I q u e s tio n n a i r e .
The rem ain d er who d e f i n i t e l y had an i n t e r e s t i n
h ig h e r l e v e l s o f p u b lic o f f i c e amounted t o alm ost 1 4 p e r
c e n t. T h is m in o r ity e x h ib ite d a wide ran g e o f i n t e r e s t
a t a l l l e v e l s o f governm ent.
A t t i t u d e s Toward C ouncil-M anager Form
A lthough a l l c i t i e s co v ered i n th e su rv ey were
u n d er th e counci1-m anager form o f l o c a l governm ent, th e
su rv e y q u e s tio n a tte m p te d to a s c e r t a i n th e a t t i t u d e o f
Z I
in d iv i d u a l councilm en tow ard a seem in g ly a c c e p te d fa c t*
Only 1 councilm an o f th e 197 who r e tu r n e d q u e s tio n n a ir e s
r e f u s e d to answer th e p e r t i n e n t q u e s tio n . The d a ta c o l
l e c t e d d iv id e d i t s e l f i n t o th r e e a t t i t u d e s : ( 1 ) d é f i n i t elyj
!
fa v o re d th e c o u n c i1-m anager form , ( 2 ) fa v o re d th e form b u t ;
i
w ith r e s e r v a t i o n s , and ( 3 ) d e f i n i t e l y a g a in s t i t # |
D e f i n i t e l y f a v o r e d . A l i t t l e o v er 83 p e r c e n t, o r
163 of a l l r e p o r t i n g councilm en d e f i n i t e l y fa v o re d th e
c o u n c i1-m anager form o f governm ent as i t was b e in g p ra c
t i c e d . S a t i s f a c t i o n , a c c e p ta n c e , and e n th u sia sm u n d e rla y
t h e i r a t t i t u d e s . T h ir ty -tw o councilm an added comments to
I th e open-ended q u e s tio n on w hether th e y fa v o re d th e coun-
I c i 1-m anager form o f governm ent w ith su c h e x p re s s io n s as
I "Y es, d e f i n i t e l y , " " s t r o n g l y ," " v e ry much s o ," "most b en e -
I f i c i a l to c i t y , " "by a l l m ean s," " a r d e n t l y , " " i t ' s th e ,
I o n ly e f f i c i e n t s e t - u p , " and " in tro d u c e d th e p la n m y s e lf ."
! F a v o re d , b u t w ith r e s e r v a t i o n s . Almost II4 . p e r c e n tj
I I
I 27 co u n cilm en , on th e o th e r hand, fa v o re d th e manager form
! I
I b u t w ith d e f i n i t e r e s e r v a t i o n s . The p e rs o n a l q u a l i f i e a -
j t i o n s o f th e c i t y manager le d th e l i s t o f r e s e r v a t i o n s . .
Such a t t i t u d e s as a c c e p ta b le e n g in e e rin g b ack g ro u n d , m oral!
! j
I c h a r a c t e r , and b r e a d th o f m a n a g e ria l t a l e n t w ere d e sig n a te d
as p r e r e q u i s i t e s o f th e c i t y m anager. j
Next i n o r d e r o f c r i t i c i s m was th e a t t i t u d e t h a t |
57
th e th e o r y r e l a t e d t o th e m anager form needed more s tu d y
and co u ld s ta n d im provem ent e s p e c i a l l y i n th e u t i l i z a t i o n
o f c i t i z e n com m ittees and th e p o s s i b le s u b s t i t u t i o n o f a
c h i e f a d m in is t r a tiv e o f f i c e r a s b e in g more dem ocratic*
O th e r a t t i t u d e s r e l a t e d t o th e f a v o r in g o f th e
' manager form r e f l e c t e d th e su c c e s s o f such a form as b e in g
lim ite d t o s m a lle r c i t i e s w ith p o p u la tio n s o f l e s s th a n
500,000 people#
The f a c t t h a t m anagers ig n o re d th e s e p a r a tio n o f
p o lic y and a d m in is t r a tio n was a n o th e r q u a l i f i c a t i o n r e -
; p o r te d by p a r t o f th e group h av in g r e s e r v a t i o n s tow ard th e
I m anager fo rm . The a t t i t u d e t h a t m anagers te n d e d t o make
I
I p o lic y and th r e a te n e d th e su c c e ss o f t h i s form o f g o v e rn -
j ment was r e p o r te d by s e v e r a l co u n cilm en .
I A f i n a l r e s e r v a t i o n u t t e r e d by th e r e p o r tin g l e g i s -
; l a t o r s concern ed g e n e ra l o r g a n iz a tio n o f th e c o u n c il-
I m anager p la n . The a t t i t u d e s e x p re sse d fa v o re d th e m ain
te n a n c e of a d m i n i s t r a t i v e e l e c t i v e p o s i t i o n s su ch as c i t y
!
I c l e r k , c i t y t r e a s u r e r , and c i t y a tto rn e y * F u r th e r a t t i -
I tu d e s in c lu d e d p ro p e r o r g a n iz a tio n , com m unication ch a n n els
i i
1 t o th e c i t i z e n r y , and th e e l e c t i o n o f a f u l l - t i m e m ayor. j
I ;
I These rem arks were c o n s id e re d by th e re s p o n d e n ts as con- j
I I
! d i t io n s p re c e d e n t t o a s u c c e s s f u l counci1-m anager o p e ra - i
I I
; t i o n . I
I
D e f i n i t e l y a g a i n s t . W hile 97 p e r c e n t o f t h e j
58
councilm en were e i t h e r d e f i n i t e l y f o r o r fa v o re d w ith
r e s e r v a t i o n s th e m anager form o f governm ent, 3 p e r c e n t
were d e f i n i t e l y a g a in s t i t .
The d a ta o f f e r e d by th e r e p o r t i n g councilm en
r e f l e c t e d th e fo llo w in g a t t i t u d e s :
1# The th e o r y i s good, b u t i t does n o t work out
i n p r a c t i c e .
2# C ity m anagers a re d i c t a t o r s and u n q u a l if i e d
and th in k th e y a r e G od's g i f t t o m u n ic ip a l w e lf a r e .
3# C i tiz e n s lo s e t h e i r in d i v i d u a l v o ic e .
4» An e l e c t e d mayor sh o u ld a p p o in t a c i t y admin
i s t r a t o r .
5# J u s t n o t happy w ith t h i s form o f governm ent.
6 . Ho r e a s o n — j u s t a g a in s t i t .
A n a ly s is . An overw helm ing m a jo r ity o f 83 p e r c e n t
in d i c a t e d s tr o n g a c c e p ta n c e and esteem f o r th e e o u n c il-
man a g e r form o f governm ent; an a n a ly s is o f th e 1 4 p e r c e n t
h av in g v a rio u s r e s e r v a t i o n s i d e n t i f i e d a r e a s where t h i s
: form o f governm ent co u ld be im proved. I t i s n o t w ith in
[ th e purview o f th e t h e s i s s u b je c t t o a n a ly z e th e v a l i d i t y
j o f th e a t t i t u d e s o f f e r e d by councilm en f o r n o t w hole
h e a r t e d ly e n d o rsin g th e manager form o f governm ent. S u f
f i c e to sa y t h a t r e s e r v a t i o n s tow ard th e p la n d id ap p e ar
i n th e d a t a .
L _ __ _
j GHAPTIR V
I RELATrONSHTFS OP BACKGROUNDS, INTERESTS, AND ATTITUDES
I
I A f te r a c c m n u la tin g , c o m p ilin g , and c a te g o r iz in g
! th e d a ta s u b m itte d , and i t s su b se q u e n t a n a l y s i s , i t was
found t h a t d e f i n i t e r e l a t i o n s h i p s among b ac k g ro u n d s,
i n t e r e s t s , and a t t i t u d e s em erged.
I . BACKGROUNDS AND INTERESTS
T h ere ev o lv ed a r e l a t i o n s h i p betw een v a r io u s a sp ects
o f th e r e p o r t i n g councilm en*s backgrounds and t h e i r i n t e r - ;
I
e s t s a s r e q u e s te d i n the su rv e y q u e s tio n n a i r e . Such i
i
g e n e ra l background t r a i t s a s s e x , a g e , y e a rs o f r e s id e n c e
i n th e c i t y , and number o f y e a rs o f s e r v ic e w ere r e l a t e d
t o th e l e g i s l a t o r s * i n t e r e s t s tow ard a s p e c i f i c a r e a o f
m u n ic ip a l governm ent and t h e i r i n t e r e s t i n s e e k in g h ig h e r
p u b lic o f f i c e .
G en eral T r a i t s and I n t e r e s t s
Sex o f l e g i s l a t o r and i n t e r e s t i n governm ent. The |
f a c t t h a t 6 o f th e re sp o n d e n ts w ere councilwomen a p p e a re d j
j t o have no e f f e c t on th e a re a s o f i n t e r e s t i n l o c a l govem -
I m ent. G en eral a d m in is t r a tio n and p a rk s and r e c r e a t i o n le d
I a l l o th e r a r e a s i n a p p ro x im a te ly th e same p r o p o r tio n as
! th e e n t i r e r e p o r t i n g g ro u p . The p e rc e n ta g e s r e l a t i v e to
th e s e two le a d in g a r e a s o f i n t e r e s t w ere 57 p e r c e n t f o r
th e fem a le l e g i s l a t o r s as compared w ith a p p ro x im a te ly
p e r c e n t f o r th e t o t a l re s p o n d e n ts .
Sex and i n t e r e s t i n h ig h e r p u b lie o f f i c e . Women
l e g i s l a t o r s had no i n t e r e s t i n se e k in g h ig h e r p u b lic o f f i c e
by a r a t i o o f 5 to 1. T h is r e l a t i o n s h i p was more p ro
nounced th a n th e i n t e r e s t e x p re sse d by th e e n t i r e group t o
I th e su rv e y q u e s tio n .
Age and i n t e r e s t * A lthough th e se x o f th e l e g i s -
i
' l a t o r had no a p p r e c ia b le c o r r e l a t i o n w ith th e a r e a s o f
I i n t e r e s t i n l o c a l governm ent, i t was found t h a t th e e l d e s t
I group o f councilm en d id n o t show th e same i n t e r e s t i n
I g e n e ra l a d m i n i s t r a t i o n . The s e n io r c i t i z e n s i n q u e s tio n
: who were s i x t y - s i x y e a rs o f age and o v er w ere most i n t e r -
i
e s te d i n p u b lic w orks, f i r e , and c i v i l d e fe n s e .
' Age and h ig h e r p u b lic o f f i c e . The y o u n g est group |
o f councilm en a l s o v a r ie d from th e norm i n t h a t th e y d id |
I n o t fo llo w th e g e n e ra l p a t t e r n o f i n t e r e s t i n h ig h e r p u b liJ
i i
I o f f i c e . A ll councilm en u n d er t h i r t y - o n e y e a rs o f age had i
I I
1 no d e f i n i t e a m b itio n s f o r h ig h e r p u b lic o f f i c e o r even r e -
1
I e l e c t i o n t o th e p r e s e n t c o u n c il. The e l d e s t group of
; r e p o r tin g councilm en fo llo w e d th e o v e r - a l l d a ta r e l a t i v e
to p o l i t i c a l a m b itio n s . T h is group was com prised o f l e g i s r
I i
l a t o r s o f s i x t y - s i x y e a rs o f age and o v e r; o n ly 1 o f th e i
61
I g roup rem arked t h a t age was a f a c t o r i n h is d e c is io n n o t
i
to se e k h ig h e r o f f i c e .
I R e sid e n ce and i n t e r e s t . L ength o f r e s id e n c e i n a
j s p e c i f i c c i t y b o re th e same r e l a t i o n s h i p to i n t e r e s t i n
(
I governm ent a s th e o v e r a l l p a t t e r n t a b u l a t e d i n T ab le X II.
! T h e r e fo re , le n g th o f r e s id e n c e d id n o t a p p e a r to a f f e c t
I
th e s e l e c t i o n o f s p e c i f i c a s p e c ts o f i n t e r e s t i n l o c a l
governm ent.
R e sid en ce and h ig h e r p u b lic o f f i c e . A g ain , th e
I number o f y e a rs o f r e s id e n c e had no a p p r e c ia b le a f f e c t on
I i n t e r e s t i n s e e k in g h ig h e r p u b lic o f f i c e . C ouncilm en w ith
j l e s s th a n s i x y e a r s o f r e s id e n c e and th o s e w ith o v er forty-;
I I
I s i x y e a rs o f r e s id e n c e d id n o t a s p i r e g e n e r a lly to h ig h e r
i p u b lic o f f i c e . C ouncilm en i n th e lo n g e r r e s id e n c e group
I so u g h t o f f i c e a t a h ig h e r p o l i t i c a l l e v e l th a n d id th o s e
!
I i n th e s h o r te r r e s id e n c e g ro u p .
I
Y ears o f s e r v ic e and governm ental i n t e r e s t s . The
lo n g e r a councilm an s e rv e d on a l o c a l l e g i s l a t i v e body,
i th e g r e a t e r th e ten d en cy to be i n t e r e s t e d i n a l l a s p e c ts
I o f m u n ic ip a l governm ent r a t h e r th a n any one f u n c tio n .
I T h is r e l a t i o n s h i p was b ro u g h t f o r t h i n c o r r e l a t i n g y e a rs
, o f s e r v ic e and s p e c i f i c i n t e r e s t s i n l o c a l governm ent as
compared i n T ab le XV* A lth o u g h g e n e ra l a d m in is t r a tio n was
o f th e g r e a t e s t i n t e r e s t t o b o th ju n io r and s e n io r members
TABLE XV
RELATIONSHIP O F Y EA R S O F C O U N C IL M A N IC SERVICE
T O INTERESTS IN G O V E R N M E N T
62
Area of in te re st
Thirty-nine council-
men with less than
one year of service
Nineteen council-
men with more than
e i ^ t years of
service Total
General administra
tion
29 9 38
Parks and recreation 12 2
14
Public works 9 1 10
All areas k k 8
Police 5
2
7 1
Fire
3 3 6
U tilitie s
k 1
5
Harbor 1 1
No designation 1
1 1
Total 68 22 90
o f th e l o c a l c o u n c ils , th e d a ta r e p o r te d an I n c r e a s in g
i n c l i n a t i o n tow ard a l l m u n ic ip a l f u n c tio n s by councilm en
h av in g th e lo n g e r s e rv ic e #
On th e o th e r hand a com parison o f d a ta r e l a t i v e to
! y e a rs o f s e r v ic e on th e l o c a l c o u n c il and p o l i t i c a l ambi
t i o n a t a h ig h e r l e v e l v a r ie d from th e g e n e ra l p a t t e r n o f
i n t e r e s t i n h ig h e r p u b lic o f f i c e as r e v e a le d i n T a b le X I I I .
Y ears o f s e r v ic e and h ig h e r p u b lic o f f i c e . The data!
re v e a le d t h a t l e g i s l a t o r s w ith l e s s th a n one y e a r o f coun- ,
o ilm an ic s e r v ic e had no i n t e r e s t i n h ig h e r p u b lic o f f i c e |
in a g r e a t e r p e rc e n ta g e th a n th e p e rc e n ta g e f o r th e w hole j
i
g roup. F u r th e r , th o s e councilm en h a v in g e i g h t y e a rs o f j
!
s e r v ic e and o v er w ere even h ig h e r i n p e rc e n ta g e th a n th e i
j
f i r s t - y e a r men as f a r as r e l a t i o n s h i p o f i n t e r e s t i n higher:
p u b lic o f f i c e t o th e t o t a l r e p o r t i n g g ro u p . I t a p p e a rs !
from t h e s e com parisons t h a t th e lo n g e r a l e g i s l a t o r se rv e d
on th e c o u n c il, th e g r e a t e r th e d i s i n t e r e s t i n se e k in g
h ig h e r p u b lic o f fic e *
E d u c a tio n and I n t e r e s t s
E d u c a tio n and i n t e r e s t i n governm ent. One im p o rta n t
background t r a i t t h a t r e l a t e d t o s p e c i f i c i n t e r e s t i n some
a s p e c t o f l o c a l governm ent was e d u c a tio n . A com parison
o f T able XVI and T a b le XII i n d ic a t e d t h a t th e same r e l a
t i o n s h i p e x i s te d betw een s p e c i f i c i n t e r e s t s i n l o c a l
6 4
governm ent as r e p o r te d by a l l councilm en and as s e l e c t e d
by a l l c o lle g e g r a d u a te s . I n o th e r w ords, c o lle g e g ra d u
a t e s , p e rc e n ta g e w is e , had th e same s p e c i f i c a r e a s o f
i n t e r e s t i n l o c a l governm ent as d id a l l councilm en r e p o r t
in g ; c o lle g e e d u c a tio n had no b e a rin g on th e l e g i s l a t o r s *
i n t e r e s t s i n s p e c i f i c p h ases o f m u n ic ip a l a d m i n i s t r a t i o n .
E d u c a tio n and i n t e r e s t i n p u b lic o f f i c e . F u r th e r ,
T ab le XVIX r e v e a le d t h a t e d u c a tio n had no b e h rin g on th e
councilm en*s i n t e r e s t i n h ig h e r o f f i c e . A p p ro x im ately
th e same number o f n o n -c o lle g e g ra d u a te l e g i s l a t o r s la c k e d
f u r t h e r p o l i t i c a l a m b itio n s as d id th e c o lle g e g r a d u a te s .
A s p ir a tio n to a h ig h e r l e v e l o f governm ent was e q u a lly
sought by th o s e w ith fo rm a l e d u c a tio n and n o n -fo rm al edu-
c a tio n .
F o rty s p e c i f i c o f f i c e s a t a h ig h e r l e v e l o f gov ern
ment were d e s ig n a te d by 26 r e p o r t i n g councilm en. T ab le
XVIXI in d i c a t e d t h a t co u n ty s u p e r v is o r was an a s p i r a t i o n
r e s t r i c t e d o n ly t o c o lle g e g ra d u a te councilm en. The s t a t e
l e g i s l a t u r e and any h ig h e r o f f i c e was a s p ir e d to by th e
two e d u c a tio n a l c a t e g o r i e s . However, th e o f f ic e s o f s h e r i f f
and f e d e r a l s e n a to r , w ere th e p o l i t i c a l g o a ls o f th e
f o rm a lly t r a i n e d l e g i s l a t o r s .
O cc u p atio n and I n t e r e s t s
O ccu p atio n and i n t e r e s t i n governm ent. The fo u r
I 6 5
T A B E E XVI
I
j SPECIFIC CITY G O V E R N M E N T INffiRESTS R E PO R T E D B Y
I NINETY-EIGHT COM Etffi G R A D U A T E C O U H C ID JE N
i . . . . . . .
t
i Area o f goverament in te r e s t Number Per cen t
NOTE: See Table X II.
General adm inistration 67 41.10
Parks and recreation 25 15.34
Public -works 26
15.95
P o lice 12 7.36
A ll areas 10
6.14
F ire
5 3.07
U t i l i t i e s 10
6.14
C iv il defense 4 2.45
Library 3 1.84
No design ation 1 «61
Total 163
100.00
TABLE X V II
RELATIONSHIP O F INTEREST IN H IG H E R PUBLIC OFFICE
T O EmCATIONAL L EV EL O F C O U N C IL M E N
j In te r e st in h i^ e r
public o f f ic e
No in te r e s t
Undecided
In te r e st in r e -
e le c tio n
H i#ier public o f f ic e
No
N on-college
graduates
63
14
1
13
2
C ollege
graduates T otal
58
14
10
13
3
121
28
17
Total 99 98
NOTE: See Table XIII,
67
TA B L E XVIII
RELATIONSHIP B E T W E E N COLLEŒ C 2 1 A J3 U A T IO N A N D
ASPIRATION FO R H IG H ER PUBLIC OFFICE
j Level of higher Thirteen non- Thirteen col-
I public office college graduates lege graduates Total
County supervisor 9 9
State assemblyman à k 8
State senator $ 3 8
Any h i ^ e r office 7 1 8
United States
United States
Senator 2 2
Sheriff 1 1
Total 17 23
N O T E S Twenty-six councilmen eaqpressed in te re st in fo rty specific
I levels of h i ^ e r public o ffic e. See Table XI?.
le a d in g o c c u p a tio n a l c a te g o r ie s o f C a lif o r n i a councilm an
were i n t e r e s t e d i n th e g e n e ra l a d m in is t r a tio n f u n c t i o n o f
m u n ic ip a l governm ent i n a g r e a t e r p e rc e n ta g e th a n th e
o v e r - a l l i n t e r e s t s o f a l l councilm en. T ab le X II in d ic a t e d
a p p ro x im a te ly I 4.2 p e r c e n t f o r th e t o t a l r e p o r t i n g , w h ile
T ab le XIX in d ic a t e d o v er $ 9 p e r c e n t f o r th e f o u r occupa
t i o n a l c a t e g o r i e s .
I t was n o te d t h a t fem ale l e g i s l a t o r s r e v e a le d
d e f i n i t e i n t e r e s t s i n g e n e r a l a d m in is t r a tio n and p ark s and
r e c r e a t i o n ; how ever, su ch f u n c tio n s a s p u b lic w o rk s, f i r e ,
and u t i l i t i e s r e c e iv e d no i n d i c a t i o n o f i n t e r e s t w h atso
e v e r.
O ccu p atio n and h ig h e r p u b lic o f f i c e . Prom th e
o c c u p a tio n a l s ta n d p o in t, m erchants a s p ir e d to h ig h e r pub
l i c o f f i c e more th a n any o th e r o c c u p a tio n a l c a te g o ry . Ten
o f th e f o r t y i n t e r e s t s i n p u b lic o f f i c e , as e x p re s se d i n
T a b le XX, w ere a t t r i b u t e d to them. M erchants a s p ir e d to
a l l h ig h e r p u b lic o f f i c e s b u t U n ite d S ta te s R e p re s e n ta tiv e
and S e n a to r.
The o f f i c e o f f e d e r a l s e n a to r was a p o l i t i c a l i n t e r
e s t r e s t r i c t e d o n ly to th e p r o f e s s o r i a l o c c u p a tio n , w h ile
s t a t e assemblyman and f e d e r a l r e p r e s e n t a t i v e w ere th e
s e l e c t i o n s o f th e l e g a l f r a t e r n i t y . E n g in e e rs w ere i n t e r
e s te d i n any h ig h e r p u b lic o f f i c e a t any l e v e l o f g o v ern
ment .
0
TABIE XIX
RELATIONSHIP O F O C C U P A T IO N A L C A TEG O R IES
T O G O V E R N IE N T A L INTERESTS O F C O U N C IL M E N
Area of
I in te re st Merchants Managers
Wage
earners
Retired
citizens Total
General administra
tio n 2l|.
33 Ig
10 62
Parks and recreation k
1 3 3 11
Public works 2 2
k
Police
5 5 1 11
All areas
3
2
k 9
Fire 1 1 1 1
k
U tilitie s 1 1
C ivil defense 0
Library 1
1
Harbor 0
No desigzmtion 1 1 2 ;
Total
37 2g 23 20 105
j
NO TE: Compare ■with Tables VII and XII#
a
o
I
I
I
:d
5
-P
I!
II
s
s I
II
5 I
II
C 3
| |
i
If
O 'tA O JC M tA cvl caHH c n -= fC V l
H s
CM CM
CM H CM CM 00
(ACM r4 CM 00
C M rH rH rH H C M 00
70
CM CM r4 rH rH rH O s
I
Q 00
P 4
I
I
I
§
____I
71
I I . BACKGROUNDS AND ATTITUDES
R e la tio n s h ip s betw een l e g i s l a t o r s * background
t r a i t s and t h e i r a t t i t u d e s tow ard s p e c i f i c q u e s tio n s i n th e
su rv e y e x i s t e d . A t t i t u d e s d e a l t w ith e d u c a tio n , th e coun
c i 1-m anager form o f governm ent and m is c e lla n e o u s a t t i t u d e s
tow ard m u n ic ip a l governm ent v o l u n t a r i l y r e p o r te d by th e
councilm en.
G en eral T r a i t s and A ttit u d e s
The g e n e ra l t r a i t s th a t were r e l a t e d t o th e a t t i -
I
tu d e s in c lu d e d se x o f l e g i s l a t o r , a g e , le n g th o f r e s id e n c e ,
land y e a rs o f p u b lic s e r v i c e on th e c i t y co u n c il#
Sex o f l e g i s l a t o r and a t t i t u d e s # I t was found t h a t
two o u t of th r e e fem ale l e g i s l a t o r s on C a l i f o r n i a c o u n c ils
b e lie v e d t h a t a fo rm al e d u c a tio n was in d is p e n s a b le as a
I p r e r e q u i s i t e f o r su c c e s s i n th e econom ic, s o c i a l , and
{ p o lit ic a l w o rld .
I P o s i t i v e s u p p o rt o f th e co u n c il-m an a g er form o f
jgovernment was v o ic e d by f i v e out o f s i x women, th e s i x t h
L ls o f a v o r in g th e form , b u t w ith th e q u a l i f i c a t i o n t h a t th e
jc ity manager keep th e c i t i z e n r y inform ed and i n t e l l i g e n t #
I Age and a t t i t u d e s # C ouncilm en u n d er t h i r t y - o n e
y e a rs o f age d id n o t e x p re s s any a t t i t u d e s tow ard ed u catio n #
I
They w ere, how ever, q u i t e unanimous i n t h e i r f e e l i n g s t h a t
72
th e c o u n c il-m a n a g e r form o f governm ent was th e b e s t . Under
m is c e lla n e o u s a t t i t u d e s v o l u n t a r i l y o f f e r e d , t h i s group
a l s o fa v o re d more p a rk s and r e c r e a t i o n a l f a c i l i t i e s as a
cu re f o r ju v e n ile d elinquency#
The a t t i t u d e s tow ard e d u c a tio n were more pronounced
i n th e o ld e r councilm en# T h is o ld e r group in c lu d e d
councilm en s i x t y - s i x y e a rs o f age and over# H a lf o f them
rem arked t h a t e d u c a tio n was an im p o rta n t p a r t o f t h e i r
p r e p a r a t i o n f o r b u s in e s s and governm ent. A p proxim ately
2$ p e r c e n t o f th e o ld e r councilm en had r e s e r v a t i o n s
tow ard f a v o r in g th e c o u n c il-m a n a g e r form o f governm ent.
T hese r e s e r v a t i o n s m a n ife s te d th e m selv es i n th e a t t i t u d e s
t h a t an e n g in e e rin g background was a n e c e s s i t y f o r th e i
i
m anager, and t h a t th e c o u n c il and c i t y m anager comprehended^
ea ch o t h e r ’ s p o s i t i l n l e g i s l a t i v e l y and a d m i n i s t r a t i v e l y , j
F u r t h e r , m is c e lla n e o u s a t t i t u d e s e x p re s se d tow ard h o ld in g I
I !
! o f f i c e in c lu d e d t h e p u r s u i t o f good governm ent, and th e j
i u t i l i z a t i o n o f more te a c h e r s and p r o f e s s o r s a t th e coun-
I .
! c ilm a n ic l e v e l t o s e rv e th e c itiz e n ry # !
I i
I
R esid en ce and a t t i t u d e s # L ength of r e s id e n c e i n
I I
th e c i t i e s r e p r e s e n te d by councilm en r e l a t e d n e i t h e r j
I :
i p o s i t i v e l y n o r n e g a tiv e ly to t h e i r a t t i t u d e s tow ard fo rm a l |
I :
I ed u catio n # Twelve l e g i s l a t o r s w ith l e s s th a n s i x y e a rs o f |
73 I
r e s id e n c e , and 10 l e g i s l a t o r s w ith ov er f o r t y - s i x y e a rs o f I
i
r e s id e n c e e x p re s se d no a t t i t u d e a t a l l . One l e g i s l a t o r i n j
th e l a t t e r r e s id e n c e group r e p o r te d t h a t a fo rm a l e d u c a tio n :
!
was n e c e s s a r y f o r s u c c e s s . |
I
The t o t a l o f 23 r e p o r tin g councilm en, on th e o th e r ;
I
hand, d e f i n i t e l y e x p re s se d s u p p o rt o f th e c o u n c il-m a n a g e r |
form o f governm ent. Only 1 o f th e 23 q u a l i f i e d h is approval;
w ith th e rem ark t h a t th e c o u n c i l - c h i e f a d m i n i s t r a t o r form
o f m u n ic ip a l governm ent was more d e m o c ra tic .
Years o f s e r v ic e and a t t i t u d e s . I n com paring th e
le n g th o f s e r v ic e w ith a t t i t u d e s r e l a t i n g to e d u c a tio n , i t
jwas found t h a t 38 o f 39 l o c a l l e g i s l a t o r s w ith l e s s th a n
lone y e a r o f s e r v i c e d id n o t o f f e r any comment o r a t t i t u d e .
!
One councilm an f e l t t h a t a fo rm al e d u c a tio n was n o t a n e c e s
s i t y f o r s u c c e s s . S e v e n te e n o f 19 councilm en w ith more
jthan e i g h t y e a rs o f m u n ic ip a l s e r v ic e d id n o t e x p re s s an
a t t i t u d e on e d u c a tio n . However, 2 i n d ic a t e d t h a t a fo rm a l
e d u c a tio n was h ig h ly d e s i r a b l e .
I These same two groups o f 39 and 19 co u n cilm en ,
r e s p e c t i v e l y , p ro v id e d more m ean in g fu l d a ta on t h e i r a t t i
tu d e s tow ard th e c o u n c il-m a n a g e r form o f governm ent. The
l a r g e r g ro u p , h aving l e s s th a n one y e a r o f co u n cilm an ic
s e r v i c e , fa v o re d t h i s form o f g o v ermuent w ith 33 d e f i n i t e
i n d i c a t i o n s . Pour l e g i s l a t o r s su g g e ste d s p e c i f i c q u a l i f i c a
t i o n s i n su c h m a tte rs a s p ro p e r o r g a n iz a tio n , p e rs o n a l
! - - - - ■
i q u a l i f i c a t i o n s o f t h e m an ager, th e s e p a r a t io n o f p o l i c y j
i !
I and a d m i n is t r a t i o n , and t h e r e c o g n i t i o n and u s e o f more
t '
I e i t i z o n c o m m itte e s# Two c o u n c ilm e n w ere a b s o l u t e l y a g a i n s t
i
t h e c o u n c il-m a n a g e r c o n c e p t o f l o c a l govern m en t# One had
no r e a s o n t o o f f e r ; t h e o t h e r i n s i s t e d on an e l e c t e d mayor
who w o u ld a p p o in t a n a d m i n is t r a t i v e o f f i c e r #
Those 19 councilm en w ith o v er e i g h t y e a r s o f p u b lic
s e r v ic e e n t h u s i a s t i c a l l y en d o rsed th e co u n c il-m a n a g e r form
w ith e ig h te e n i n d ic a t e d a t t i t u d e s . The n in e te e n th council-*
I
man, a lth o u g h f a v o r in g th e fo rm , q u a l i f i e d h i s a t t i t u d e b y |
r e s t r i c t i n g i t s s u c c e s s f u l o p e r a t io n t o s m a lle r c i t i e s # .
A f t e r com p arin g th e a t t i t u d e o f t h e n e o p h y te l e g i s - |
l a t o r w it h t h a t o f th e s e a s o n e d o n e , i t m ig h t b e assu m ed
t h a t th e lo n g e r a c i t i z e n s e r v e d on a c o u n c i l , t h e more
f a v o r a b le t h e a t t i t u d e tow ard th e c o u n c il-m a n a g e r c o n c e p t
o f go vern m en t#
E d u c a tio n and A t t i t u d e s
I A t t i t u d e s e x p r e s s e d i n r e g a r d t o e d u c a t io n and th e
I
;c o u n c il-m a n a g e r c o n c e p t o f l o c a l g o v ern m en t w ere r e v e a le d
!
io n a v o lu n t a r y b a s i s b y th e r e p o r t in g c o u n c ilm e n a s p a r t
I
I o f o p e n -e n d s u r v e y q u e s t io n s * An a tte m p t w as made t o show
a r e l a t i o n s h i p b e tw e e n t h e e d u c a t io n o f t h e r e p o r t in g
I l e g i s l a t o r s and t h o i r a t t i t u d e s tow ard e d u c a t io n a s a m eans
I
o f g a in in g a c h ie v e m e n t i n l i f e ; f u r t h e r , e d u c a t io n w as
r e l a t e d t o a t t i t u d e s o f l e g i s l a t o r s and t h e c o u n c il-m a n a g e r
r ' 75
I form o f m u n ic ip a l government# |
I I n d e a lin g w ith a t t i t u d e s on e d u c a tio n , an a rb itra i^ r
I d i v i s i o n betw een c o lle g e g ra d u a te s and n o n - c o lle g e g ra d u - I
! :
; a t e s was made. I
I I
C o lle g e g r a d u a t e s # Ten o f th e councilm en re sp o n d
in g to th e open-end q u e s tio n were c o lle g e g ra d u a te s* A ll
o f them s t r e s s e d th e u t i l i t y , im p o rta n c e , and n e c e s s i t y
o f a fo rm a l c o lle g e e d u c a tio n tow ard su c c e s s i n s o c i a l ,
econom ic, and p o l i t i c a l e n d e a v o rs.
I
I
j N o n -c o lle g e g r a d u a te s # Only 2 o u t o f I 3 counpilm en
i below th e c o lle g e g ra d u a te l e v e l b e lie v e d t h a t book-
i
* le a r n in g was not a l l t h a t was to be d e s ir e d from a fo rm a l
j e d u c a tio n . The re m a in in g 11 fo llo w e d i n a t t i t u d e s as th e
I c o lle g e g ra d u a te s#
E d u c a tio n and c o u n c il-m a n a g e r c o n c e p t# R e s u lts of
r e l a t i n g l e v e l o f e d u c a tio n a l a tta in m e n t and a t t i t u d e
tow ard th e co u n c il-m a n a g e r form o f governm ent were s i g
n i f i c a n t # T h is r e l a t i o n s h i p as p r e s e n te d i n T ab le XXI
in d ic a t e d t h a t $ 0 p e r c e n t o f a l l r e p o r t i n g councilm en who
were a g a i n s t t h i s form had o n ly com pleted a tr a d e s sc h o o l
ed u catio n # Out o f a t o t a l o f 8 i n th e t r a d e s sc h o o l c a t e
g o ry , 3 were a g a in s t th e co u n c il-m an a g er form# A lso s i g
n i f i c a n t were th e d a ta t h a t a l l e le m e n ta ry and h ig h sc h o o l
g r a d u a te s fa v o re d th e co u n c il-m an a g er form , even though
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77
a p p r o x im a te ly 10 p e r c e n t fa v o r e d i t w it h some q u a l i f i c a
t io n s #
I n a c t u a l num bers o n ly tw o c o l l e g e g r a d u a te s w ere
d e f i n i t e l y a g a i n s t th e c o u n c il-m a n a g e r a p p r o a c h to m u n ic i
p a l g o v e rn m e n t. H ow ever, o f added s i g n i f i c a n c e w as t h e
f a c t t h a t b o t h l e g i s l a t o r s w ere e x p e r ie n c e d p u b lic em p loy
e e s ; one was a fo r m e r m u n ic ip a l d e p a r tm en t h e a d , w h il e
t h e o t h e r w as p r e s e n t l y em p loyed w it h a s p e c i a l d i s t r i c t #
A n a ly s i s o f a t t i t u d e s on e d u c a t io n » I t d e f i n i t e l y
a p p e a r e d from t h e a t t i t u d e s e x p r e s s e d on e d u c a t io n b y
C a l i f o r n i a c o u n c ilm e n t h a t e d u c a t io n was a n im p o r ta n t t o o l
i n c a r v in g o u t a s u c c e s s f u l s o c i a l , e c o n o m ic , and p o l i t i o a l
l i f e f o r th e m s e lv e s #
F u r t h e r , t h e r e s p o n d e n t c o u n c ilm e n r e p o r t e d t h a t
s p e c i f i c f i e l d s o f s tu d y w ere p e c u l i a r l y u s e f u l t o t h e i r
jo b s a s l e g i s l a t o r s # T h is w as an i n d i c a t i o n t h a t p e r t i
n e n t t r a i n i n g i n l o c a l g o v ern m en t w ou ld h a v e b e e n so u g h t
had t h e c o u n c ilm e n known o f some o f t h e i r r e s p o n s i b i l i t i e s
b e f o r e t h e i r t e n u r e o f o f f i c e had b e g u n . The f a c t t h a t
s e v e r a l c o m p le te d s u p p le m e n ta l c o u r s e s i n P u b lic Admin
i s t r a t i o n and Law te n d e d t o b r in g t h i s t o t h e f o r e #
O c c u p a tio n s and A t t i t u d e s
O c c u p a tio n s o f c o u n c ilm e n w ere r e l a t e d t o t h o s e
78
re s p o n d e n ts who v o lu n te e r e d a t t i t u d e s tow ard e d u c a tio n and
to th o s e who v o ic e d t h e i r a t t i t u d e s tow ard th e c o u n c il-
manager form o f l o c a l governm ent.
O ccu p atio n s and e d u c a tio n a l a t t i t u d e s # T w e n ty -th re e
l e g i s l a t o r s o f v a rio u s o c c u p a tio n a l c a te g o r ie s o f f e r e d
t h e i r a t t i t u d e s tow ard e d u c a tio n as a t o o l f o r s u c c e s s . A
r e c a p i t u l a t i o n c l e a r l y in d ic a t e d an alm o st unanimous o p in
io n t h a t e d u c a tio n p la y e d an im p o rta n t r o l e i n s u c c e s s f o r
th e m s e lv e s . Two d i s s e n t e r s who d id n o t f e e l e d u c a tio n was
a n e c e s s a r y a d ju n c t i n co p in g w ith l i f e ’ s problem s in c lu d e d
one hou sew ife and one a g r i c u l t u r a l worker#
O ccu p atio n s and c©uneil-m a n a g e r c o n c e p t# I n ta b u
l a t i n g th e r e l a t i o n s h i p o f co u n cilm an ic o c c u p a tio n s and
a t t i t u d e s tow ard th e c o u n c il-m a n a g e r form o f governm ent,
1 % l e g i s l a t o r s r e p r e s e n tin g th e sev en le a d in g c a te g o r ie s
w ere u t i l i z e d #
Prom an o c c u p a tio n a l s ta n d p o in t, m a n a g e ria l p e rs o n
n e l in d i c a t e d th e g r e a t e s t number o f q u a l i f i c a t i o n s to th e
co u n c il-m a n a g e r form . F u r t h e r , r e t i r e d c i t i z e n s and a g r i
c u l t u r a l w orkers, i n t h a t o r d e r , p o in te d out s p e c i f i c c o n d i
tio n s f o r th e s u c c e s s o f th e m anager plan#
I n s p i t e o f th e f a c t t h a t th e r e were 6 councilm en
a g a in s t th e co u n c il-m a n a g e r c o n c ep t of governm ent, th e r e
79
was n o t more th a n one i n any o c c u p a tio n a l c a te g o ry as
p r e s e n te d i n T a b le XXII. I t would be s a f e to assume t h a t
o p p o s itio n to t h i s form i s i n s i g n i f i c a n t .
M isc e lla n e o u s A ttit u d e s Toward Government
W herever p o s s i b le open-end q u e s tio n s e l i c i t e d com
m e n ts, u t t e r a n c e s , a t t i t u d e s , and i n t e r e s t s r e l a t e d t o
s p e c i f i c q u e s tio n s on th e com plete t h e s i s t o p i c . Comments
r e g a rd in g a s p e c i f i c q u e s tio n w ere in c lu d e d i n th e p r e s e n
t a t i o n o r a n a l y s i s o f th e d a ta p e r t i n e n t t o th e q u e s tio n .
However, c e r t a i n a t t i t u d e s o f a g e n e r a l n a tu r e were
o f f e r e d v o l u n t a r i l y by some councilm en. These a t t i t u d e s
and comments came by a tta c h e d l e t t e r o r by u se o f th e
r e v e r s e s id e o f th e q u e s tio n n a i r e .
E f f i c i e n t governm ent. By f a r th e b u lk o f comments
r e f l e c t e d th e a t t i t u d e s o f r e p o r t i n g councilm en tow ard
e f f i c i e n t l o c a l governm ent. The d e s i r e t o h e lp i n a c h ie v
in g t h i s e f f i c i e n c y was th e m otive f o r t h e i r p u b lic s e rv
i c e , and th e f r u s t r a t i o n s incum bent w ith t h i s s e r v ic e were
w o rth th e p u r s u i t o f com petent m u n ic ip a l governm ent.
P e rs o n a l c o n a id e r a t io n s . A second group o f comments
d e a l t w ith p e r s o n a l f a c t o r s w hich each councilm an c o n s id
e re d b e f o re o r d u rin g h i s te n u re o f o f f i c e . The g i s t o f
80
TA B LE m i
RELATIONSHIP O F O C CU PA TIO N S O F 2hk CALIFORNIA C O U N C IL M E N T O THEIR
ATTITUDES TO tA RD T H E C O U N C IL -M A N A C m R F O R M OF G O V E R N M E N T
Occupation
Favored the
manager foim
Favored •with
qualifications Against Total
Merchants
Managers
earners
Retired citizens
Agriculture
workers
Contractors
I Teachers
3k
17
21
Ik
12
Ik
7
2
7
1
5
1
1
1
1
1
1
37
25
23
20
15
15
9
Total 129
19 6
ikk
NOTE: Compare with Table VII.
81
th e s e rem arks f o llo w s :
1. The p e rs o n a l enjoym ent o f governm ent work*
2* The re a s o n t h a t councilm en s e rv e d was b e c a u se
th e p e o p le lo v e d them.
3# The sm a ll m onetary co m p en satio n , i f an y , meant
t h a t i t was c o s tin g councilm en j u s t to s e rv e t h e i r con
s t i t u e n t s .
k* The f a c t t h a t younger m en--under f o r t y - s e v e n - -
sh o u ld s e r v e a s l o c a l l e g i s l a t o r s .
P e t p e e v e s . The re m a in in g a t t i t u d e s and u tte r a n c e s
were grouped u n d er " p e t p ee v es" i n th e f o llo w in g m anner:
1 . T here sh o u ld be no c lo s e d c o n fe re n c e , e x e c u tiv e
s e s s i o n , o r s tu d y m e e tin g s o f th e l o c a l c o u n c il unopened
to th e p u b l i c .
2# The te a c h in g p r o f e s s io n sh o u ld be in v o lv e d more
in th e l e g i s l a t i v e a s p e c t o f m u n ic ip a l governm ent.
3# P lay g ro u n d s and o th e r r e c r e a t i o n a l a re a s sh o u ld
no t be r e s t r i c t e d as to u s e .
k* Newcomers have d is r u p te d th e p e a c e f u l l i v a b i l i t y
o f C a l i f o r n i a c i t i e s .
CHAPTER VI
SUM M ARY AND CONCLUSIONS
I . SUM M ARY
G eneral background t r a i t s , i n t e r e s t s , a t t i t u d e s ,
and t h e i r r e l a t i o n s h i p s w ere in c lu d e d i n th e su m m arizatio n
o f th e d a ta su b m itte d by councilm en i n C a l i f o r n i a c o u n c il-
m anager c i t i e s .
G eneral Background T r a i t s
I n th e summation o f g e n e ra l t r a i t s , i t was a p p a re n t
t h a t m u n ic ip a l p o l i t i c s was a man’ s w o rld . N in e ty -s e v e n
Iper c e n t o f a l l r e p o r t i n g l e g i s l a t o r s were m ale.
* A m a jo r ity o f incum bent councilm an w ere b o rn i n
s t a t e s o th e r th a n C a l i f o r n i a ; seven f o r e ig n c o u n tr ie s were
a ls o d e s ig n a te d as p la c e s o f b i r t h .
i
j The a v e ra g e age o f th e C a l i f o r n i a l e g i s l a t o r was
;k 7 .$ y e a r s ; he has r e s id e d i n th e c i t y he r e p r e s e n te d f o r
I
s l i g h t l y ov er 20 y e a r s . He had accu m u lated 3 .7 y e a rs of
co u n cilm an ic s e r v i c e , b u t was n o t se e k in g r e e l e c t i o n .
F i f t y p e r c e n t o f a l l l e g i s l a t o r s were c o lle g e
g ra d u a te s w ith a predom inance o f Law, E n g in e e rin g , and
B u sin ess A d m in is tra tio n m a jo rs.
O c c u p a tio n a lly , C a l i f o r n i a councilm en were m erchants,
m anagers, wage e a r n e r s , and r e t i r e d m i l i t a r y o f f i c e r s or
83
b u sin e ssm e n .
P r i o r p a id p r o f e s s i o n a l g o v ern m en tal e x p e rie n c e was
g e n e r a lly n o t fo u n d . A lth o u g h a m in o r ity had e x p e rie n c e d
c o n ta c t w ith l o c a l governm ent th ro u g h l i m i t e d s e r v ic e on
v a r io u s b o a r d s , com m issions, and s p e c i a l co m m ittees, by
f a r th e g r e a t m a jo r ity had no g o vernm ental e x p e rie n c e w hat-
s o e v e r.
On th e o th e r hand, 10? o u t o f 197 r e p o r te d c o n s id
e r a b le c i v i c a c t i v i t i e s e x p e rie n c e th ro u g h membership on
l o c a l chambers o f commerce and s e r v ic e c lu b s .
I n t e r e s t s
S p e c i f ic I n t e r e s t s o f C a l i f o r n i a m u n ic ip a l l e g i s
l a t o r s r e f l e c t e d d e p a rtm e n ta l a r e a s o f m u n ic ip a l governm ent
and a s p i r a t i o n s tow ard h ig h e r p u b lic o f fic e *
A c o n s id e r a b le m a jo r ity o f re s p o n d e n t councilm en
w ere i n t e r e s t e d i n g e n e ra l a d m in is t r a tio n o v er and above
any one d e p a rtm e n t o r f u n c tio n .
As f a r as p o l i t i c a l a m b itio n s were co n c e rn e d , o n ly
26 o f 192 l e g i s l a t o r s r e p o r te d any i n t e r e s t i n h ig h e r
p u b lic o f f i c e . One hundred tw en ty -o n e had no d e s i r e f o r
r e e l e c t i o n o r h ig h e r o f f i c e .
A sm a ll group o f l e g i s l a t o r s v o lu n te e re d comments
on v a r io u s s u b je c ts p e r t i n e n t to m u n ic ip a l governm ent.
8k
T h is g ro u p , as a w hole, was most e a g e r f o r e f f i c i e n t l o c a l
governm ent.
A t t i t u d e s
A summary o f a t t i t u d e s c o n s is te d o f th e l o c a l l e g i s
l a t o r ’s d i s p o s i t i o n tow ard th e co u n c il-m an a g er form o f
governm ent and a fo rm a l e d u c a tio n as a to o l f o r s u c c e s s i n
th e s o c i a l , econom ic, and p o l i t i c a l world#
An overwhelm ing m a jo r ity of c o lle g e g ra d u a te s and
n o n -c o lle g e g ra d u a te s p o in te d o u t th e in d is p e n s a b le p r e
r e q u i s i t e to s u c c e s s t h a t a fo rm a l e d u c a tio n c o u ld be*
R e p o rtin g councilm en v o l u n t a r i l y rem arked on th e u t i l i t y
o f fo rm a l t r a i n i n g i n t h e i r own economic and p o l i t i c a l
c a re e rs *
A ttit u d e s tow ard th e c o u n c il-m a n a g e r form o f m u n ic i
p a l governm ent r e f l e c t e d g r e a t f a i t h , hope, and e n th u sia sm
i n i t by w e ll o v er 83 p e r c e n t. A sm a ll m in o r ity who
fa v o re d th e form o f f e r e d s p e c i f i c q u a l i f i c a t i o n s d epending
upon p e r s o n a l i t y , t r a i n i n g , and t a l e n t s of th e c i t y man
a g e r . Only 3 p e r c e n t w ere a g a in s t i t *
B ackground t r a i t s w ere r e l a t e d to i n t e r e s t s and
a t t i t u d e s i n o rd e r t o a s c e r t a i n c o r r e l a t i o n s . T hese a re
summ arized below .
■~t
I
Backgrounds and I n t e r e s t s . I n r e c a p i t u l a t i n g th e
r e l a t i o n s h i p s betw een backgrounds and i n t e r e s t s , i t was
found t h a t th e sex o f th e l e g i s l a t o r had no r e l a t i o n s h i p
to th e s p e c i f i c a r e a o f i n t e r e s t i n l o c a l governm ent.
iFemale l e g i s l a t o r s fa v o re d g e n e ra l a d m in is t r a tio n i n ap -
)
ip ro x im a te ly th e same r a t i o as th e whole r e p o r t i n g g ro u p ;
I
j how ever, th e y had l e s s a m b itio n f o r h ig h e r p u b lic o f f i c e
I th a n th e m a les.
j Age o f l e g i s l a t o r s d id have a r e l a t i o n s h i p w ith
I t h e i r i n t e r e s t s . O ld er councilm en fa v o re d p u b lic w orks,
I
I f i r e p r o t e c t i o n , and c i v i l d e fe n s e r a t h e r th a n th e g e n e ra l
! a d m in is t r a tio n p a t t e r n . F u r th e r , th e s e n io r c i t i z e n s on
c o u n c ils had more i n t e r e s t i n h ig h e r p u b lic o f f i c e th a n d id
th e j u n i o r s .
A lth o u g h le n g th of r e s id e n c e b o re no r e l a t i o n s h i p
! to I n t e r e s t s i n s p e c i f i c a s p e c ts of m u n ic ip a l governm ent,
!
councilm en w ith l e n g t h i e r r e s id e n c e s so u g h t o f f i c e a t a
h ig h e r p o l i t i c a l l e v e l th a n th o se l e g i s l a t o r s w ith s h o r t e r
I
! l o c a l r e s id e n c e s .
! D ata r e p o r te d on y e a rs o f l o c a l p u b lic s e r v ic e
' r e v e a le d an i n c r e a s in g i n c l i n a t i o n tow ard a l l a s p e c ts of
: l o c a l governm ent by l e g i s l a t o r s having th e lo n g e r s e r v ic e
i r e c o r d s . Those councilm en h av in g l e s s th a n one y e a r of
I
I s e r v ic e had l e s s i n t e r e s t i n h ig h e r p u b lic o f f i c e th a n d id
I
I th e whole r e p o r t i n g g ro u p . F u r th e r , th e l e g i s l a t o r s w ith
86
e ig h t y e a rs o f s e r v ic e and o v er in d i c a t e d an even l e s s e r
e a g e rn e ss i n h ig h e r p u b lic o f f i c e .
E d u c a tio n and i n t e r e s t s . L ev e l o f e d u c a tio n a l
a tta in m e n t had no b e a rin g on th e i n t e r e s t i n s p e c i f i c a r e a s
o f m u n ic ip a l governm ent. C o lle g e g ra d u a te s and n o n - c o lle g e
g ra d u a te s as i n d iv i d u a l groups r e p o r te d i n th e same p ro p o r
t i o n a s a l l r e p o r t i n g l e g i s l a t o r s .
Gf th o s e se e k in g h ig h e r p u b lic o f f i c e , o n ly c o l le g e
g ra d u a te s so u g h t e l e c t i o n to th e o f f i c e o f c o u n ty s u p e r
v i s o r , s h e r i f f , and f e d e r a l s e n a t o r . The s t a t e l e g i s l a t u r e
was so u g h t e q u a lly by c o lle g e g r a d u a te s and n o n - c o lle g e
g ra d u a te s*
O ccu p atio n s and i n t e r e s t . As a group th e f o u r le a d
in g o c c u p a tio n a l c a t e g o r i e s , c o n s i s t i n g o f m e rc h a n ts,
m anagers, m is c e lla n e o u s wage e a r n e r s , and r e t i r e d c i t i z e n s ,
w ere co n cern ed w ith th e g e n e r a l a d m in is t r a tio n a s p e c t o f
l o c a l governm ent by a g r e a t e r p e rc e n ta g e th a n a l l l e g i s
l a t o r s r e p o r t i n g . Fem ale c o u n c il members fo llo w e d th e
g e n e ra l p a t t e r n e x c e p t t h a t none of them had any i n t e r e s t
i n p u b lic w orks, f i r e , and u t i l i t i e s .
The o c c u p a tio n t h a t e x p re sse d th e g r e a t e s t d e s i r e
f o r h ig h e r p u b lic o f f i c e was c a te g o r iz e d as m erchant# Only
te a c h e r s and p r o f e s s o r s a s p ir e d to be f e d e r a l s e n a t o r s ,
w h ile th e l e g a l f r a t e r n i t y so u g h t e l e c t i o n t o th e s t a t e
87
assem bly and th e low er house a t th e f e d e r a l l e v e l . E n g i
n e e rs e x p re s se d d e f i n i t e i n t e r e s t i n any o f f i c e a t any
p o l i t i c a l l e v e l .
A long w ith v a rio u s i n t e r e s t s , r e p o r tin g councilm en*s
a t t i t u d e s o f f e r e d c e r t a i n r e l a t i o n s h i p s w ith t h e i r b ack
ground t r a i t s .
Backgrounds and a t t i t u d e s . Among 2 o u t o f 3 fe m a le
l e g i s l a t o r s an a t t i t u d e was p r e v a le n t t h a t a fo rm a l educa
t i o n was im p o rta n t f o r s u c c e s s i n l i f e . F u r t h e r , th e
c o u n c il-m an a g er form of l o c a l governm ent was unanim ously
en d o rsed by a l l fem ale l e g i s l a t o r s .
B ata on th e r e l a t i o n s h i p o f age and a t t i t u d e s on
e d u c a tio n r e v e a le d t h a t l e g i s l a t o r s w e ll a lo n g i n y e a rs
c o n c u rre d w ith th e p r a c t i c a b i l i t y o f a fo rm a l e d u c a tio n ,
w h ile th e v e ry young d id n o t have any a t t i t u d e s a t a l l .
I t was found t h a t 25 p e r c e n t o f th e councilm en
s i x t y - s i x y e a rs and o ld e r had d e f i n i t e r e s e r v a t i o n s r e g a r d
in g th e co u n c il-m a n a g e r form o f governm ent.
Councilm en h av in g l e s s th a n s i x y e a rs o f r e s id e n c e
and more th a n f o r t y - s i x y e a rs o f r e s id e n c e a l l fa v o re d th e
co u n c il-m a n a g e r form o f governm ent. One r e p o r t i n g l e g i s
l a t o r q u a l i f i e d h is a p p ro v a l w ith th e n o t a t i o n t h a t a c h i e f
a d m in is t r a to r would be more dem o cratic*
Councilm en w ith o v er two te rm s of p u b lic s e r v ic e
w ere f a v o r a b le i n t h e i r a t t i t u d e s tow ard fo rm a l t r a i n i n g
88
and th e eo u n c il-m a n a g e r concept o f governm ent i n g r e a t e r
p r o p o r tio n th a n l e g i s l a t o r s w ith l e s s th a n one y e a r o f
p u b lic s e rv ic e #
E d u c a tio n and a t t i t u d e s # B oth f o r m a lly t r a i n e d and
n o n -c o lle g e g ra d u a te s were overw helm ing i n t h e i r a t t i t u d e s
tow ard th e a d v i s a b i l i t y and u t i l i t y o f a fo rm a l e d u c a tio n
i n th e b a t t l e o f economic and p o l i t i c a l l i f e .
I n r e f e r e n c e t o th e a t t i t u d e s to w ard th e c o u n c il-
m anager c o n c ep t o f governm ent, th e r e p o r t i n g g ro u p s were
most e n t h u s i a s t i c i n i t s accep tan ce* However, 50 p e r cen t
o f th o s e a g a i n s t th e form were o n ly tr a d e sc h o o l g ra d u a te s
w ith no t r a i n i n g beyond th e e le m e n ta ry o r h ig h sc h o o l l e v e l
O ccu p atio n s and a t t i t u d e s . From an o c c u p a tio n a l
s ta n d p o in t, a g r e a t m a jo r i ty i n d ic a t e d a f a v o r a b le a t t i t u d e
tow ard fo rm a l e d u c a tio n . Two l e g i s l a t o r s who d id n o t
concur in c lu d e d one h o u sew ife and one a g r i c u l t u r a l w orker.
A lth o u g h a l l o c c u p a tio n s fa v o re d th e manager form ,
i t was s i g n i f i c a n t t h a t th e o c c u p a tio n a l c a te g o r y w hich had
th e g r e a t e s t number o f q u a l i f i c a t i o n s r e l a t i v e to i t s s u c
c e ss was th e m a n a g e ria l g ro u p . R e tir e d c i t i z e n s and a g r i
c u l t u r a l w orkers were o th e r o c c u p a tio n s t h a t fo rw a rd e d
q u a l i f i c a t i o n s to t h i s form o f governm ent.
M isc e lla n e o u s a t t i t u d e s . T w en ty -fo u r councilm en
v o lu n te e r e d o p in io n s on v a rio u s a s p e c ts o f l o c a l governm ent.
89
A m a jo r ity i n d i c a t e d t h a t t h e i r d e s i r e t o se rv e was m o ti
v a te d by th e s a t i s f a c t i o n o f a c h ie v in g e f f i c i e n t c i t y
a d m in is tr a tio n # A sm a ll m in o r ity had p e r s o n a l c o n s id e r a
t i o n s t h a t made p u b lic s e r v ic e p a r t i a l l y s a t i s f y i n g l y
a t t r a c t i v e , and u n d e r c e r t a i n n o - s a l a r y c o n d itio n s p a r t i a l
l y u n a t t r a c t i v e #
An even s m a lle r m in o r ity v o lu n te e r e d " p e t p eev es"
t h a t bespoke o f th e d i s r u p t i o n newcomers to C a l i f o r n i a
c i t i e s have c a u se d , and t h a t te a c h e rs sh o u ld be members o f
more l o c a l c o u n c ils#
I I# CONCLUSIONS
A f te r t a b u l a t i n g , a n a ly z in g , and sum m arizing th e
d a ta s u b m itte d by C a l i f o r n i a co u n cilm en , i t was a p p a re n t
t h a t c e r t a i n c o n c lu s io n s were i n o rd er# These c o n c lu s io n s
r e l a t e d t o th e d a ta on background t r a i t s and th e a v e ra g e
s e r v ic e o f co uncilm en, th e co u n c il-m a n a g e r form o f g o v ern
m ent, and th e c a l i b e r o f l o c a l l e g i s l a t o r s #
The One-Term Councilm an
Based on th e background d a ta s u b m itte d , t h e r e
emerged a s i g n i f i c a n t p u b lic s e r v ic e phenomenon i n t h e
l o c a l l e g i s l a t o r who gave o f h i s tim e f o r a p p ro x im a te ly
f o u r y ea rs# Many a s p e c ts o f th e d a ta te n d ed t o s u b s t a n tia te
t h i s co n c lu sio n # B e sid e s many v o lu n ta ry rem arks by th e
r e p o r t i n g councilm en t h a t one term was s u f f i c i e n t , f a c t u a l
d a ta o f th e com plete group in d ic a t e d a g e n e ra l te n d en cy
t h a t r e s t r i c t e d p u b lic s e r v ic e to one f o u r - y e a r te rm .
Nine p e r c e n t o f a l l councilm en were a p p o in te d some
tim e d u rin g a f o u r - y e a r te rm ; th e o v e r - a l l a v e ra g e o f
c o u n cilm an ic te n u r e was 3*7 y e a r s , so t h a t t r a n s f e r o f
g overn m en tal knowledge t o new c o u n c il members c o u ld n o t
l a s t more th a n one o r two y e a r s ; th e f a c t t h a t many council-
men to o k su p p le m e n ta l e d u c a tio n a l c o u rse s i n P u b lic
A d m in is tra tio n , Law, and E n g in e e rin g i n d ic a t e d an a d m issio n
t h a t many were i l l - p r e p a r e d to assume o f f i c e ; th e g r e a t
m a jo r ity o f m u n ic ip a l l e g i s l a t o r s were n o t o n ly a l i e n to
C a l i f o r n i a , b u t had a c h ie v e d a d u lth o o d else w h e re a s e v i
denced by an av e ra g e age o f k7*5 y e a r s , th e l a s t tw en ty
o f w hich w ere sp e n t i n th e C a l i f o r n i a c i t y th e y were r e p r e
s e n tin g ; th e f a c t t h a t th e m a jo r i ty o f r e p o r t i n g councilm en
had no p r i o r govern m en tal e x p e rie n c e must have made th e
f i r s t few y e a rs a h arro w in g o r d e a l ; d a ta t h a t were a n a ly z e d
f o r p e r t i n e n t e d u c a tio n p o in te d o u t th e d e a r t h o f fo rm a l
t r a i n i n g i n P u b lic A d m in is tr a tio n and P o l i t i c a l S c ie n c e ; a
g r e a t p re p o n d e ra n c e o f l o c a l councilm en r e p o r te d no p o l i t i
c a l a m b itio n s tow ard r e - e l e c t i o n o r h ig h e r p u b lic o f f i c e ;
even t h a t sm a ll segm ent o f l e g i s l a t o r s whose y e a rs o f s e r v
i c e amounted t o more th a n th e 3 # 7 .y e a rs a v e ra g e i n d i c a t e d
by a g r e a t e r p e rc e n ta g e a la c k o f i n t e r e s t i n co u n cilm an ic
r e - e l e c t i o n o r h ig h e r l e v e l s o f s e r v i c e ; th o s e l e g i s l a t o r s
91
la c k in g a fo rm a l e d u c a tio n were g r e a t e r i n p r o p o r tio n to
f o r m a lly e d u c a te d ones i n a v o id in g p u b lic s e r v ic e a t any
l e v e l .
A ll th e s e e x p re s s io n s o f f a c t proved t h a t v a rio u s
background t r a i t s in h e r e n t i n l o c a l councilm en te n d e d t o
r e s t r i c t p u b lic s e r v i c e to a p p ro x im a te ly one te rm .
/
The C ouncil-M anager Councilm an
An em ergence o f a p r o to ty p e councilm an was i n d i c a t e d
by th e t a b u l a t i o n s and r e l a t i o n s h i p s o f th e d a ta s u b m itte d .
A lth o u g h d e s ig n a tin g a group o f t r a i t s , i n t e r e s t s , and
a t t i t u d e s may be an a r b i t r a r y r e c a p i t u l a t i o n o f j u s t what
th e i d e a l councilm an w as, i t was w a rra n te d t h a t a p a t t e r n
of t r a i t s and r e l a t i o n s h i p s was i n c l i n e d to f i t b e s t th o s e
councilm en who fa v o re d th e co u n c il-m a n a g e r form o f g o v ern
m ent.
The councilm an who most fa v o re d th e co u n c il-m an a g er
form would have th e fo llo w in g a t t r i b u t e s a p p l ic a b le to
b o th m ale and fe m a le :
1 . The l e g i s l a t o r was u n d er f o r t y - f i v e y e a rs o f age
upon f i r s t assum ing o f f i c e .
2 . B ir th p la c e and u p b rin g in g had b een i n a c o u n c il-
m anager community.
3* At l e a s t tw e n ty y e a rs o f r e s id e n c e i n th e c i t y
th e l e g i s l a t o r r e p r e s e n te d was i n d i c a t e d .
k* A c o lle g e d e g re e , p r e f e r a b ly i n P o l i t i c a l
92
S c ie n c e , P u b lie A d m in is tr a tio n , Law, E conom ies, B u s in e ss
A d m in is tra tio n , o r E n g in e e rin g , was an e d u c a tio n a l t r a i t o f
th e p r o - c o u n c il-m anager l e g i s l a t o r *
At l e a s t f o u r o r more y e a rs o f p r i o r s e r v ic e
on a c i t y c o u n c il was an a t t r i b u t e to b e t t e r com prehension
o f l o c a l governm ent and r e s u l t e d i n f a v o r in g th e c o u n c il-
raanager p la n .
6* O c c u p a tio n -w ise , a m erchant o r m anager w e ll
v e rs e d i n th e s e p a r a tio n o f p o lic y and a d m i n i s t r a t i o n was
r e v e a le d as a n o th e r t r a i t *
7# A councilm an who had undergone su p p le m e n ta l
e d u c a tio n a f t e r e l e c t i o n to th e c o u n c il i n P u b lic Admin
i s t r a t i o n and Law fa v o re d th e counci1-m anager plan*
8* A l e g i s l a t o r w ith c i v i c e x p e rie n c e accu m u lated
d u rin g m em bership and p a r t i c i p a t i o n i n chambers o f commerce
and s e r v i c e c lu b s was acknow ledged as b e t t e r d is p o s e d
tow ard t h e plan*
9* I n t e r e s t i n g e n e ra l a d m in is t r a tio n r a t h e r th a n
any one d e p a rtm en t o r f u n c t i o n o f l o c a l governm ent was
a n o th e r a t t r i b u t e .
10. A councilm an who e n t h u s i a s t i c a l l y fa v o re d th e
manager p la n was aware o f i t s need o f c o n t i n u i t y o f o p e ra
tio n *
11. No i n t e r e s t i n h ig h e r p u b lic o f f i c e was i n d i
cated*
93
12* A d e s i r e t o s e rv e th e community u n s e l f i s h l y
and to s t r i v e f o r e f f i c i e n t s e r v ic e s a t re a s o n a b le c o s t was
a s t a t e o f mind p e c u l i a r t o th e l e g i s l a t o r f a v o r a b ly d i s
posed tow ard th e counci1-m anager plan*
On th e o th e r hand, t h e d a ta s u b m itte d by th e r e p o r t
in g co uncilm an and th e su b se q u en t r e l a t i o n s h i p s b ro u g h t to
th e f o r e s p e c i f i c t r a i t s , i n t e r e s t s , and a t t i t u d e s t h a t
were p e c u l i a r l y in h e r e n t i n th o s e l o c a l l e g i s l a t o r s who
d is f a v o r e d th e counci1-m anager form o f l o c a l governm ent i n
C a lif o rn ia * These c h a r a c t e r i s t i c s were a s fo llo w s ;
1* L e g i s l a t o r s o v er s i x t y - s i x y e a rs o f age upon
f i r s t assum ing o f f i c e c o n s id e re d th e c o u n c il-m an a g er p la n
u n fav o rab ly *
2# B ir th p la c e and u p b rin g in g i n a g eo g rap h ic a re a
where th e co u n c il-m a n a g e r p la n was unknown was an o b s ta c le
t o speedy a d a p ta tio n !
3* Less th a n t h r e e y e a rs o f r e s id e n c e i n th e c i t y
r e p r e s e n te d d id n o t p re p a re a l e g i s l a t o r , a d e q u a te ly , f o r
o f f i c e i n c o u n c il-m a n a g e r c i t i e s *
T rad es sch o o l g ra d u a te s w ere most in im ic a l t o
th e co u n c il-m a n a g e r plan*
5* L e g i s l a t o r s who i n d ic a t e d t h a t e d u c a tio n was n o t
im p o rta n t t o s u c c e s s , and d id n o t ta k e su p p le m e n ta l c o u rse s
a t anytim e b e f o r e o r a f t e r e l e c t i o n were c o n s id e re d as
poor r i s k s to f a v o r th e co u n c il-m an a g er c o n c e p t.
9if.
The C ouncil-M anager Form o f Government
A lth o u g h th e c o u n c il-m a n a g e r form o f m u n ic ip a l gov
ernm ent was f ir m ly e n tre n c h e d i n th o s e c i t i e s p r e s e n t l y
o p e r a tin g under th e p la n , i t was co n clu d ed t h a t background
in f o r m a tio n o f councilm en supplem ented th e o v e r t m a n if e s ta
t i o n o f th e o rd in a n c e o r c h a r t e r s e c t i o n t h a t a d o p te d th e
p la n .
A cc ep ta n ce» A ll d a ta g a th e re d and a n a ly z e d r e l a t i v e
to th e co u n c il-m a n a g e r form o f governm ent r e v e a le d v a rio u s
s u b s t a n t i a l b a s e s f o r i t s w id e sp re a d a c c e p ta n c e and f a v o r .
The f a c t t h a t w e ll e d u c a te d l e g i s l a t o r s were i n th e m ajority
as shown i n T ab le XXI, l a i d a fo u n d a tio n f o r i n q u i s i t i v e
n e s s and u n d e rs ta n d in g i n th e th e o ry and o p e r a tio n o f t h i s
form o f governm ent ; o c c u p a tio n a l d a ta p o in te d to th e re c o g
n i t i o n o f sound and e f f i c i e n t b u s in e s s o p e r a tio n s as
r e f l e c t e d i n th e p re se n c e o f many m e rc h a n ts, m anagers, and
wage e a r n e rs as th e le a d in g o c c u p a tio n a l c a te g o r ie s on th e
l o c a l l e g i s l a t u r e s ; f u r t h e r , councilm en w ith more th a n one
te rm o f p u b lic s e r v ic e r e p o r te d a g r e a t e r endorsem ent of
t h e c o u n c il-m a n a g e r form p e rc e n ta g e -w is e ' th a n th e r e p o r t i n g
group as a w hole; a l s o , 12 p e r c e n t o f a l l councilm en had
p r i o r p r o f e s s io n a l g o v ern m en tal e x p e rie n c e . Broad p r i o r
c iv ic a c t i v i t i e s e x p e rie n c e exposed numerous l e g i s l a t o r s
to c e n t r a l i z e d management.
The a c c u m u la tio n o f th e s e background t r a i t s and th e ir
r e l a t i o n s h i p s added argum ents t o th e a c c e p ta n c e and r e t e n
t i o n o f th e co u n c il-m a n a g e r form o f government#
Some Q u estio n s
I t was a p p a re n t from th e l i m ite d scope o f th e t h e s i s
s u b je c t t h a t some q u e s tio n s would be l e f t unansw ered.
S p e c i f i c a l l y , q u e s tio n s co u ld l o g i c a l l y be ask ed as to
(1) th e co m p arativ e d e a r t h o f fem ale l e g i s l a t o r s on C a l i
f o r n i a c o u n c ils ; (2 ) th e v e ry sm a ll p e rc e n ta g e o f m u n ic ip a l
l e g i s l a t o r s who so u g h t h ig h e r p u b lic o f f i c e ; and (3) th e
v a l i d i t y o f th e a t t i t u d e s a g a in s t th e c o u n c il-m a n a g e r form
o f government#
A nother im p o rta n t q u e s tio n t h a t could, be ask ed
r e l a t e s t o th e re a s o n s why th e m a n a g e ria l c a te g o r y o f occu
p a tio n s had th e m ost r e s e r v a t i o n s tow ard th e s u c c e s s and
a c c e p ta n c e o f th e co u n c il-m an a g er p la n . Does th e m anagerial
and a d m i n i s t r a t i v e o c c u p a tio n a l backgrounds o f councilm en
have any e f f e c t on t h e i r a t t i t u d e s tow ard th e p la n ? S u re ly
th e le a d in g c a te g o ry o f m e rc h a n t, who n o t o n ly makes p o lic y
b u t c a r r i e s i t o u t, would te n d to in v o lv e c e r t a i n e o u n c il-
men i n a d m in is t r a tiv e m a tte r s . Are r e p e r c u s s io n s due to
t h i s in v o lv e m e n t m o tiv a tin g councilm en to e i t h e r q u a l i f y
t h e i r a c c e p ta n c e o f th e p la n o r i n d i c a t e o u t r i g h t d is f a v o r ?
These q u e s tio n s can otily be answ ered upon f u r t h e r i n v e s t i
g a tio n and a r e l e f t f o r o th e r r e s e a r c h e r s t o c o n s id e r .
96
C a lib e r o f C ouncilm en
The l a s t se v e n ty y e a r s # How th e n , does th e C a l i f o r
n ia councilm an compare w ith th e g e n e ra l consensus o f th e
A m erican councilm an? T h is a tte m p te d co m p ariso n , i t i s con
ced ed , may n o t be to o v a l i d inasm uch as l e g i s l a t o r s i n one
s t a t e a r e b e in g compared w ith l e g i s l a t o r s th ro u g h o u t th e
c o u n try o f an e a r l i e r e r a . However, t h e r e w ere no p r i o r
d a ta a v a i l a b l e f o r C a l i f o r n i a councilm an to be u sed as
c r i t e r i a ; n e i t h e r were th e r e d a ta f o r l e g i s l a t o r s o f c i t i e s
i n o th e r s t a t e s . T h e r e f o r e , th e o n ly p o s s i b le com parison
would have to be a tte m p te d by u t i l i z i n g th e l i t t l e g e n e r a l
m a te r ia l t h a t was a v a i l a b l e from v a r io u s a u t h o r i t i e s i n th e
f i e l d o f m u n ic ip a l governm ent. Such m a te r ia l in c lu d e d some
f a c t u a l d a t a , b u t most was o b s e r v a tio n a l and commentary.
The l i t e r a t u r e o f n o te d a u th o rs o f th e l a s t se v e n ty
y e a rs has n o t been to o co m plim entary. M acdonald w ro te :
"T here i s no e v id en ce t h a t th e c a l i b e r o f c a n d id a te s f o r
p u b lic o f f i c e has been m a t e r i a l l y im proved#” ^
Many s tu d e n ts o f governm ent forw ard ed th e concept
t h a t s a l a r i e d l e g i s l a t o r s a d e q u a te ly p a id f o r t h e i r p u b lic
s e r v ic e im proved t h e c a l i b e r o f c a n d id a te s f o r p u b lic
o f f i c e . One w r i t e r on l o c a l governm ent had t h i s t o r e p o r t :
1
A u s tin P. M acdonald, A m erican C ity Government and
Admi n l s t r a t i on (New York: Thomas Y. C ro w ell Company, 19l|8),
p. 260.
97
I t may be n o te d i n p a s s in g , how ever, t h a t th e
c a l i b e r o f councilm en i s a p p a r e n tly n o t c l o s e l y r e l a t e d
to th e s a l a r y p a i d , a t l e a s t th e c a l i b e r does n o t
im prove as s a l a r i e s i n c r e a s e .^
The same w r i t e r f u r t h e r commented: "Nor a r e a b i l i t y ' o r
accom plishm ents a p p a r e n tly p r a c t i c a l p r e r e q u i s i t e s to
s e c u rin g th e o f f i c e . "3
Many o th e r w r i t e r s on m u n ic ip a l governm ent f u r t h e r
r e f l e c t e d th e above view s. These a u t h o r i t i e s fo rw ard ed a
p rep o n d eran c e o f e v id en ce on th e p a u c ity o f w e l l - t r a i n e d
and e x p e rie n c e d c i t i z e n s s e e k in g counoilm anic o f f i c e .
C h a rle s K n e ie r rem arked on th e c a l i b e r o f councilm en i n
t h i s f a s h io n : " G e n e r a lly , a h ig h e r ty p e o f i n d i v i d u a l
has b een a t t r a c t e d to o u r sc h o o l b o ard s th a n to o u r c i t y
c o u n c i l s ." ^ The c o n tin u e d t r e n d o f su ch u t t e r a n c e s was
r e f e r r e d t o by Munro when he w ro te t h a t s in c e 18$0 c i t y
c o u n c ils everyw here seemed t o have d e c lin e d i n th e c a l i b e r
o f t h e i r m em bership.5 A uthor Munro f u r t h e r commented on
th e a b i l i t i e s and b u s in e s s c a p a c ity of s e e k e rs o f c o u n c il-
manic o f f i c e by s t a t i n g :
2
Herman G. Jam es, L ocal Government i n th e U n ite d
S t a t e s (New Y ork: D. A p p leto n and Company, 1 9 2 1 ), p. 333*
^I b l d . . p. 3 3 2 .
C h a rle s M. K n e ie r, C l t j Government i n th e U n ite d
S t a t e s (New York: H arp er and B r o th e rs , P u b lis h e r s , 19i|.7) ,
p. 2&A.
^W illiam B en n ett Munro, The Government o f A m erican
C i t i e s (New York: The M acm illan Company, 1921^.77 p. 1Ü3.
The m u n ic ip a l c o u n c il, e s p e c i a l l y i n th e l a r g e r
c i t i e s , does n o t a t t r a c t men o f r e a l a b i l i t y o r b u s i
n ess c a p a c ity , a f a c t w hich has b een so o f te n commented
upon t h a t i t has ceased t o e x c ite any s u r p r i s e . I t
Goes n o t even g e t f a i r m a t e r i a l .
He s u b s t a n t i a t e d rem arks on s a l a r i e s to councilm en by t h i s
s u c c in c t a d d i t i o n : "The c a l i b e r o f councilm en seem s, how
e v e r, to be i n no way r e l a t e d t o th e s a l a r i e s p a id .
L in c o ln S t e f f e n s , m uckraking i n h is famous book,
a s s e r t e d t h a t th e b u sin essm an had f a i l e d i n p o l i t i c s J u s t
as he had f a i l e d i n c i t i z e n s h i p . T h ere were two re a s o n s
f o r t h i s f a i l u r e ; th e f i r s t was t h a t th e b u sin essm an was
d i f f e r e n t from , b u t no b e t t e r th a n , th e p o l i t i c i a n ; th e
second b la zo n ed th e ch a rg e t h a t p o l i t i c s was n o t th e b u s i
n e ssm a n 's l i n e . ^
P erhaps th e coup de g ra c e was a d m in is te re d by th e
w r i t e r who a sk ed th e v e ry p r o v o c a tiv e q u e s tio n : " I s i t
u n d em o cratic to be p re p a re d f o r th e job one s e e k s , sim p ly
b e c u a se i t happens t o be a p u b lic e l e c t i v e o f f i c e r ? " ^
C o n tin u in g i n th e same v e i n , he p ro p o sed an e x a m in a tio n to
a s c e r t a i n th e p r e p a r a t io n and s k i l l o f th e counoilm anic
c a n d id a te s . He s t a t e d :
A c i v i l s e r v ic e p rim ary would be in e x p e n s iv e f o r
th e c i t y and th e c a n d id a te s , and has th e f u r t h e r advan
ta g e o f n o t r e q u i r i n g th e p re s e n c e o f th e v o t e r s .
% b i d . , p . 1 8 9 . 7 l b l d . . p. 1 9 0 .
a
L in c o ln S t e f f e n s , The Shame o f th e C i t i e s (New
York: M cClure, P h i l l i p s and Company, 1 9 0 5 ), pp. 6- 7 .
^Henry G. Hodges, C ity Management (New Y ork: P . S.
C ro fts and Company, 1939)» p . 703*
Anyone co u ld g e t on th e g e n e r a l e l e c t i o n b a l l o t by
o b ta in in g a p a s s in g g ra d e o f som ething l i k e s e v e n ty
p e r c e n t i n th e "p rim a ry " e x a m in a tio n on h is chosen
f i e l d . I t would be i n t e r e s t i n g to see how th e v o t e r s ]
would r e a c t to a l i s t o f c a n d id a te s w ith p e rc e n ta g e s !
a f t e r t h e i r nam es, i n p la c e o f , o r i n a d d i t i o n t o , t h e i
b ig m it t and b ro ad s m i l e . I
The consensus o f th e fo re g o in g w r i t e r s d id n o t i
I
ap p e ar to o com plim entary. However, i t must be b ro u g h t o u t ;
t h a t some o f th e s e w r i t e r s w ro te o f c o n d itio n s t h i r t y t o j
I
s e v e n ty y e a r s ago. F u r t h e r , th e c o u n c il-m an a g er form o f |
governm ent was e i t h e r unborn o r i n i t s in f a n c y , and th e
councilm en and c i t i e s r e f e r r e d t o were g e n e r a lly a p p lic a b le
j
t o th e w hole o f th e U n ite d S ta te s # On th e o th e r hand,
I
th e t h e s i s to p ic s p e c i f i c a l l y d e a l t w ith C a l i f o r n i a c i t i e s i
i
i n 19^6 w ith a c e n t r a l i z e d management p la n u n d er a n a p - j
p o in te d p r o f e s s i o n a l a d m i n i s t r a t o r . These d if f e r e n c e s
i
te n d e d to b r i g h t e n th e p i c t u r e b e c a u se th e t h e s i s d a ta
I
p r e s e n te d c o r r o b o r a tin g ev id en ce o f th e im proved c a l i b e r
I
o f C a l i f o r n i a councilm en.
The C a l i f o r n i a co u n cilm en . I n s p i t e o f th e d e p r e s s -
j in g comments o f a u t h o r i t i e s i n th e f i e l d o f m u n ic ip a l
I governm ent, th e f a c t s r e c a p i t u l a t e d i n th e t h e s i s su rv e y
I
[ in d i c a t e d t h a t i n c e r t a i n background a r e a s C a lif o r n i a
j councilm en m a n ife s te d a r a t h e r h ig h c a l i b e r .
I
! Those m a n if e s ta tio n s were c o rro b o ra te d by th e
I „
I 1 0 0
I
! f o llo w in g f a c t s o f t h i s s u rv e y :
I 1# The m a jo r ity o f C a l i f o r n i a councilm en w ere c o l-
I
le g e g r a d u a te s .
2. The a d m issio n t h a t fo rm a l, p e r t i n e n t t r a i n i n g ,
was u s e f u l and n e c e s s a r y f o r s u c c e s s f u l s o c i a l , econom ic, |
and p o l i t i c a l l i f e . '
3 . E vidence was p r e v a le n t o f su p p le m e n ta l e d u c a tio n
a f t e r ap p o in tm en t to th e l o c a l c o u n c il i n such f i e l d s as
P u b lic A d m in is tr a tio n , Law, and E n g in e e rin g .
I
If. A m a jo r ity o f l e g i s l a t o r s were s u c c e s s f u l b u s i- |
i
I nessm en and m anagers ; f u r t h e r , p r o f e s s io n a l men l i k e !
; la w y e rs , d o c t o r s , e n g in e e r s , and p r o f e s s o r s made up approx-f
I I
j im a te ly 20 p e r c e n t o f a l l C a l i f o r n i a councilm en.
I i
I 5 # Over 12 p e r c e n t o f th e r e p o r t i n g l e g i s l a t o r s
I ;
e x p e rie n c e d p r i o r p a id p r o f e s s i o n a l governm ental e x p e ri-
: ence.
6 . L ead ers and a c t i v e members o f cham bers o f com-
I m erce, s e r v ic e c lu b s , and r e l a t e d c i v ic o r g a n iz a tio n s
I com prised a m a jo r ity o f l o c a l l e g i s l a t o r s . T h is f a c t was
I f u r t h e r s u b s t a n t i a t e d by a le a r n e d s o c i e t y w hich acknow l-
; edged t h a t th e most s u c c e s s f u l and b e s t l o c a l c i t i z e n s i n
sm a ll c i t i e s w ere u s u a l l y found on th e council.-*-*'
^ ^ I n t e r n a t i o n a l C ity M anagers A s s o c ia tio n , M unicipal
F in an ce A d m in is tra tio n (C h icag o : The A s s o c i a t i o n , 1 9 ^ 5 ), ^
p . 379. I
101
7# Over 13 p e r c e n t d e f i n i t e l y d e s ig n a te d an
i n t e r e s t i n h ig h e r p u b lic o f fic e # T h is p ro b a b ly i n d i c a t e d
c o n fid e n c e i n a b i l i t y to h an d le a more im p o rta n t jo b .
8 . The u n s o l i c i t e d e x p re s s io n s o f r e p o r t i n g
councilm en v o lu n te e r e d th e in f o rm a tio n t h a t th e y w ere
m o tiv a te d to e n te r and f i n i s h t h e i r term i n th e p u b lic
s e r v ic e f o r th e cau se o f e f f i c i e n t l o c a l governm ent.
The d a ta o f r e p o r t i n g G a li f o r n ia councilm en were
n o t a lo n e i n t h e i r r e s u l t s d e n o tin g an in c r e a s e d e f f i -
ciency._and a h ig h e r c a l i b e r o f m u n ic ip a l c a n d id a te s . One
a u t h o r i t y w r i t i n g as r e c e n t l y as 19lf.9 rem arked t h a t th e
c a l i b e r o f councilm anic c a n d id a te s had im proved d u rin g
th e l a s t f i f t y y e a r s . S i m i l a r im provem ents may e x i s t
i n o th e r p a r t s o f th e c o u n try . T h e ir r e v e l a t i o n w i l l
be due when f u r t h e r s tu d i e s a r e com pleted by o th e r
r e s e a r c h e r s i n t e r e s t e d i n th e c a l i b e r o f l o c a l l e g i s
l a t o r s .
W ith th e te n d e n c y o f b e t t e r c a n d id a te s se e k in g and
a c h ie v in g l o c a l p u b lic o f f i c e , b e t t e r lo c a l governm ent has
r e s u l t e d and w i l l c o n tin u e . C o n d itio n s have d e f i n i t e l y
im proved s in c e I 888 when Lord Bryce penned h is c l a s s i c
^ ^ E rn s t B. S c h u lz , A m erican C ity Government (New
Y ork; S ta c k p o le and Heck, I n c . , 19if9)7 p. 353*
I d e n u n c ia tio n o f A m erican c i t y governm ent a s th e one con-
I sp ic u o u s f a i l u r e o f th e U n ite d S t a t e s # D e c i d e d l y , c o n d ij
I t i o n s have changed, e s p e c i a l l y i n C a lif o r n i a c o u n c il- |
I m anager c i t i e s .
13
Lord James B ryce, The A m erican Commonwealth
(New Y ork: The M acm illan C o m p a n y ,1 8 8 8 ), p. 281. 2 vols#
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p p E N D I X
APPEUDIX A
CALIFORNIA COUNCIL-MANAGER CITIES
PARTICIPATING IN TMESIS SURVEY
1 Alameda H anford Oxnard
1 Alhambra Hawthorne P a c i f i c Grove
iA lv iso Hayward Palm S p rin g s
1 A rcad ia Hemet Pasadena
:A valon Hermosa Beach Petalum a
1 B a k e r s f ie ld I n d io P i t t s b u r g
j Banning La Mesa P o r t e r v i l l e
B e lv ed ere L in c o ln Redding
B e rk e le y Lodi R edlands
1 Burbank Long Beach Redondo Beach
I B urlingam e Los G atos Redwood C i ty
C a rls b a d Lynwood Richmond
C hico M anhattan Beach R iv e r s id e
Chula V is ta M a rtin ez R o s e v ille
C larem ont Menlo P ark Sacram ento
C o lto n M ill V a lle y S a lin a s
;Compt on Modesto San Bruno
!Concord M onrovia San C lem ente
1 Corona M onterey San D iego
1 Coronado M onterey P ark S anger
C o sta Mesa Napa San Jo s e
iC ypress N a tio n a l C ity San L eandro
D aly C ity N eedles San M arino
D elano Nevada C ity San Mateo
E l C ajon Newark San R a fa e l
:E1 C e n tro Newport Beach S a n ta C la ra
:E1 C e r r i t o N o rth Sacram ento S a n ta Rosa
1 E scondido Oakland S a u s a lito
F illm o re O ceanside S unnyvale
Fremont G jai West Covina
G lendora O n ta rio
n o
APPENDIX B
Dear Councilmans I
! I
jUpon no condition v i l l the information you submit below be published in |
aiiy way connected with your name. The information w ill only be repro- i
jduced in summary form without id en tificatio n . !
I j
iThis request for simple data is an attempt to accumulate facts in an |
jarea you are interested in and where l i t t l e or no research is available^
G O Ü N C IL M A N IC B A C K G R O U N D S - A MASTiE'S TBESIS PROJECT
1. Councilman's name C ity of
2. Place and date of b irth "
3. Number of years residing in City
4. Date f i r s t elected (or appointed to) Council T o ta l years service
5. ED U CA TIO N : Circle higiest level co#)leted: Elementary High School
Trade School Junior College College or University
1 2 3 4 y rs.
6. I f College graduates Degree(s)_______ Major Field of Study________
7. Comments regarding educations ;
8* O CCU PA TIO N S Prior to your f i r s t serving on the Council what was i
your specific occupation? (If re tire d , please sta te |
"retired salesman," "retired math teacher," etc*)
9. Prior to your f i r s t term on the Council did you have any govern- !
mental experience or any participation in civic ac tiv ities? Please
10. What aspect of City government are you most interested in?
Police U tilitie s
Fire Parks & Recreation^
General Âdndnis t r a t i on lib ra ry
C ivil Defense Other
Public Works
111. Are you in favor of the Council-Manager form of government?
1 12. What are your future p o litic a l ambitions, i f any?
Thank you for your participation.
M R. and M RS. V. B A R T O N
139 Brisbane St.
Monrovia, C alif.
iPlease return th is questionnaire
to above address.
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Barton, Victor E.
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A study of councilmanic backgrounds, interests, and attitudes in California council-manager cities
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School of Public Administration
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Master of Science
Degree Program
Public Administration
Degree Conferral Date
1958-01
Publisher
University of Southern California
(original),
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