Reassessing the History of the Community Action Program, 1963–1967

This article reconsiders the history of the Community Action Program (CAP). I argue that the CAP is best understood as a bold attempt at administrative experimentation and reform. Using original archival materials, I show that policymakers involved the CAP’s design outlined three models of community action: coordination, collaboration, and mobilization, which communities drew upon when implementing the program. Drawing upon an original dataset of ninety-eight community action agencies (CAAs), this article provides a synthetic assessment of the CAP’s implementation. I show that while the 1967 Green Amendment curtailed the CAP’s experimental and participatory ethos, most CAAs operated relatively harmoniously with local governments and social welfare groups to fight poverty. By looking beyond the dramatic clashes between CAAs and local governments and focusing on the multiple ways in which CAAs seized upon the CAP’s experimental nature, this article provides a more balanced and comprehensive assessment of the CAP’s historical legacy.

The Fight to Preserve Local Control

This chapter discusses the Office of Economic Opportunity’s shift away from local ideas. This primarily entailed OEO funding fewer projects originating from local people and instead pushing national emphasis programs, such as Head Start, designed by federal officials. Although congressional cuts to OEO’s budget in 1967 played a role, the federal campaign to standardize the types of programs within the nation’s Community Action Agencies was perhaps more in response to other factors. For one, there was growing congressional disapproval for the controversial (and sometimes violent) direction of some local community action groups. Additionally, there was a continuing belief within OEO that national-emphasis programs would be more effective in reaching those most in need than were programs conceived by local people, most of whom were not poor themselves.