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HomeMy WebLinkAbout1991 - Public Works Procedures Committee Final Report •t*4'im -r'; �I y7 i 71577 _�- '',4=107--1711,14,; CITY OF ITHACA 108 EAST GREEN STREET ITHACA, NEW YORK 14850 TELEPHONE: 272-1713 CODE 607 MEMORANDUM TO: Planning and Development Committee Planning and Development Board Conservation Advisory Council Personnel Administrator FROM: Carol C. Reeves, Vice Chair Board of Public Works RE: Public Works Procedures Committee final report DATE: May 8, 1991 In July 1990, the Board of Public Works created a Public Works Procedures Committee. This committee was asked to identify ways in which we might avoid major conflicts with the public such as the problems we encountered regarding the Hudson Street reconstruction. The Committee has completed its work and has produced the attached report which we are forwarding to you for review and comment. We are especially interested in ideas you may have as to implementation of the recommendations without undue cost to the City, either financially or in time delays. We would like to be able to review your comments and establish project procedures before the summer is over. I have • tentatively scheduled a Board discussion of comments and suggestions for July 24th so we will need to hear form you by then. BB/CCR/lac attachment P "An Equal Opportunity Employer with an Affirmative Action Program" • ..�.� X11, ♦l���h�■i slrc 117151171 it ,�; CITY OF ITHACA 108 EAST GREEN STREET ITHACA, NEW YORK 14850 TELEPHONE: 272-1713 COMMON COUNCIL CODE 607 26 February 1991 Hon. Benjamin Nichols, Mayor Chairman, Board of Public Works Dear Ma*Alterr— We are pleased to transmit to you this report on procedures that the City might follow in order to facilitate major municipal projects in an atmosphere of community support. The process outlined here is designed to improve the City's relationship with the public where such projects are con- ' cerned, and to ensure more effective public involvement in the planning of such projects. The identification of a process and procedures for proceed- ing with public works projects in a way that minimizes the likelihood of major controversy has been a definite dhal- lenge. As we all know, Ithaca is a community that readily speaks up on many issues. We hope that we have formulated a way in which citizens can be involved with City projects in an environment that is non-hostile for them and for City staff. How to accomplish this? We don't profess to have all of the answers but we feel that we have identified most of the relevant questions. Having done so, we have provided sugges- tions and recommendations that offer a starting point for new ways of approaching public works projects. We also discovered in the course of our work that many of the same tenets can apply to other types of City activities -- plan- ning and regulatory actions, for example. This report, when coupled with the recommendations included in the Planning Department's report on neighborhood partici- pation, comprises a small library of information on public participation that should be useful to many people in City government. We particularly urge the reader not to overlook the materials included here as appendices. "An Equal Opportunity Employer with an Affirmative Action Program" We have suggested a path to follow, rather than a rigid step-by-step system applicable to every project. We want to emphasize that most projects will not require that all steps in the process be followed and we should pick and choose the appropriate elements as individual projects warrant. Trial and error will help us perfect the approach but we should not expect miracles. We will still make some mistakes and we will still have some controversies that are difficult to resolve in mutually satisfactory ways. As Chairperson, I would like to take this opportunity to thank each of the committee members for their participation. The level of effort was outstanding and we could not have completed this project in a timely manner without the full cooperation of all of the members. Very truly yours, BARBARA BLANCHARD Chairperson, Public Works Procedures Committee REPORT OF THE PUBLIC WORKS PROCIDURFS COM ITTEE February 1991 I 1 i TABLE OF CONTENTS ABSTRACT i ACKNOWLEDGEMENTS ii I PROJECT DESCRIPTION AND METHODOLOGY 1 Purpose 1 I Approach 1 IN II AREAS OF CONCERN AND RECOMMENDATIONS 2 Improving Communications with the Public and the Media . 2 Improving the Public Meeting Process 6 Addressing Environmental Issues 7 Involving the Neighborhood 9 Training and Support for City Staff, Elected and Appointed Officials 12 III PROCESS AND PROCEDURES 13 Step 1. Informal Discussion with Concerned Parties . . . 13 Step 2. Problem Identification and Goal Setting 13 Step 3. Schematic Design Alternatives Developed 14 ! Step 4. Final Preliminary Plan Developed 14 Step 5. Formal Public Meeting Held 14 Step 6. Construction Documents Prepared 15 Step 7. Formal Public Meeting/Hearing 15 Step 8. Preparation for Construction or Bidding 15 IV TYPICAL PROJECT EXAMPLES 15 Major Street Reconstruction 15 Street Gravel Rasing 16 Streambank Improvement 16 Neighborhood Park Improvements 17 Project Procedures Matrix 18 I { BIBLIOGRAPHY 20 APPENDICES I A: Board of Public Works/Common Council Resolutions B: West Hill Civic Association Newsletter C: Excerpt from "Improving Dialogue With Communities" Dl: Visual Simulation and Animation Technique 0 D2: Examples of Graphic Simulation El: "Call to Order" E2: "Nbre Than a Public Hearing" 1 F: Neighborhood Participation Study G: Staff Training Workshop Materials ABSTRACT This report outlines a process for proceeding with major community projects is a way that minimizes public controversy while ensuring more effective ! public involvement in project planning. It is based on the work of a special committee appointed by the Mayor on the recommendation of the Board of Public Works. The Committee focused on five major areas of concern including communications, public meetings, environmental issues, neigh- borhood involvement and the training and support needs of both staff and City officials. Major recommendations include: Improving Communications with the Media and the Public o Initiate field walks with residents. o Hold advance notification meetings for the neighborhood. o Improve visual materials and techniques. o Develop more effective written communications. o Formalize media contacts for improved coverage. o Keep a record of informal contacts. Improving the Public Meeting Process r o Begin early in the process. r o Establish and adhere to parameters and ground rules. o Select a neutral chairperson. 1111 o Include participants from related areas of government. o Plan housekeeping items carefully. Addressing Environmental Issues to Routinely identify projects subject to environmental review. I o Initiate environmental review early. Involving Neighborhoods :: o Formalize representation. o Develop a working relationship. o Facilitate participation. Providing Training ng and Support for City Staff and Officials o Provide a variety of appropriate training opportunities. o Encourage the formation of support groups to reduce stress. o Schedule periodic retreats for staff and other officials. The Committee also developed a step-by-step process for project planning to more fully integrate neighborhood concerns and balance them with the overall needs of the City. These steps provide a framework within which a more effective and positive relationship can be established between City government and the public at large. This report, when coupled with the recently-completed Planning Department report on neighborhood participa- tion, comprises a smell library of information that should be useful to many people in municipal government. f A The Committee wishes to acknowledge the contribution made by the Community Dispute Resolution Center in making its Director, Judy Saul, available to us throughout the course of this project. Her perspective as an "outsider" was extremely helpful to those of us who are involved with City government on a day-to-day basis. We also wish to thank Public Works Commissioner Phil Cox for providing the Committee with a number of useful materials on public participation. COMMITTEE MEMBERSHIP Barbara Blanchard, Chairperson First Ward Common Council Patricia Connor, Commissioner Board of Public Works �! Lynne Gifford, Junior Engineer Department of Public Works William Gray, City Engineer/Acting Superintendent of Public Works Patricia Norton, Department of Planning & Development Carolyn Peterson, Fifth Ward Colman Council Judy Saul, Director Community Dispute Resolution Center Lan Schmohe, City Forester Department of Public Works Matthys VanCort, Director Department of Planning & Development Tom West, Asstistant Civil Engineer Department of Public Works - ii - I. PROJECT DESCRIPTION AND METHODOLOGY Purpose Controversy and lively public comment are increasingly inte- gral parts of larger planning and public works projects in the City of Ithaca. Fbllowing the emerging trend of neigh- borhood involvement, coupled with Common Council's desire for increased citizen participation, public comment is being solicited more thoroughly than in the past. In a seemingly ironic twist, however, a major project that was believed to be designed to keep the public informed and provide oppor- tunities for public comment, the Hudson Street Reconstruc- tion, was roundly charged with failure to adequately respond to neighborhood concerns. With this project and other controversial developments in mind, the Board of Public Works created a committee to re- spond to Common Coyncil's desire to promote "maximal feasi- ble participation" , at least where public works projects are concerned. The Committee began its work in July 1990, meeting on a regular schedule throughout the Fall and Win- ter. This report is the culmination of our work. The recommenda- tions included here are made with a full awareness that, even after following a set of procedures designed to effec- tively involve the public in decision-making, charges may still arise that the City has ignored or evaded neighborhood issues. The Committee believes, however, that use of the techniques outlined here could eliminate many such claims. We learned a hard and painful lesson on Hudson Street and, if we do nothing else, we need to guard against ever again throwing public works projects into the political arena. It is the Committee's hope that following the processes and procedures we have identified will prevent that situation from occurring. Approach The Committee began its discussions by collecting background information on public participation and investigating the procedures followed on selected past projects undertaken by the City. Since at least a part of the reason for undertak- 1 Common Council minutes, April 4, 1990. Resolution included in appendix. This term, with origins in the federal Model Cities Program of the mid-60's, is generally interpreted to mean that the public at large will be given ample opportunity to review and comment on plans and projects that affect them personally. 1 4 ing this project derived from the Hudson Street experience, the chronology of that project was reviewed and discussed at length. Written materials and presentations from the Depart- ment of Public Works Engineering Division were examined. Research on neighborhood involvement in other communities was provided by the Planning Department. Numerous articles and manual excerpts, identified in the bibliography and appendices to this report, were reviewed. After analyzing this body of information, the Committee held a number of "brainstorming" sessions adding personal inter- pretations to the information, where appropriate. During the course of these discussions, we identified several major areas of concern that we were able to organize into topical headings. Within each of these categories, we explored problem areas in need of improvement. Part II of this report summarizes our thoughts on these subjects and includes our recormiendations. Part III outlines a process and procedure that can lead to more effective project planning and provide the framework for integrating our recommendations. Part IV describes several typical projects that might utilize all or parts of the process and includes a matrix format for pro- f ject planning. The Bibliography and Appendices include our basic research materials, some of which are reproduced, others incorporated by reference. II. AREAS OP CONCERN AND REOOMENDATIONS The Committee's discussions focused on five major areas of concern including (1) communications with the public and the media, (2) issues related to public meetings, (3) environ- mental issues, (4) questions regarding neighborhood organi- zations and their role in public decision-making, and (5) training and support for staff and elected/appointed offi- cials. This section of the report capsulizes these discus- sions and presents our best efforts at identifying ways to satisfy the "maximal feasible participation" objective within the context of responsible project management and staff and budgetary limitations. Improving Communications with the Public and with the Media We took a hard look at the way we typically communicate with those outside City Hall and came to the general conclusion that much can be done to improve this part of the process . Our discussions focused on information transfer through the written and visual communications that describe a given project. We noted that projects are often undertaken with little or no explanation about the purpose of the project and the problems it is designed to solve. To remedy this situation, we should introduce the public, in particular the 2 i affected neighborhood, to the project and outline its pur- pose and objectives in the very early stages of project conception. Our observations and recommendations follow. A. Initiate field walks with residents. This type of con- tact can help establish basic understanding between the neighborhood and City representatives. The field walk should occur at an early stage of project development so that neighborhood suggestions and comments can be incor- porated, as appropriate. It can also provide an opportu- nity in an informal, non-threatening setting for neigh- borhood residents to see the project, and the problems it attempts to solve, from a staff perspective. The City "cast" for such walks would vary, depending upon the nature of the project, but would generally include representatives from the appropriate departments. Inclu- sion of Police and Fire officials should not be over- looked if public safety concerns are likely to be in- volved. B. Hold advance notification meetings with neighborhood representatives. Throughout the City we have neighbor- hood organizations in various stages of development. The section of this report dealing with neighborhood in- volvement explores ways in which such groups can play a valuable role in project planning and execution. Where such organizations exist or, in their absence, where key individuals can be identified, it will be useful to conduct an informal briefing on a proposed project and to enlist neighborhood assistance in napping out further public participation efforts. C. Improve visual materials and techniques. Our ways of t conveying information visually could be much more effec- tive. People do not generally understand engineering drawings or plans and are not able to translate two dimensional presentations into a clear visual image. To remedy this, we should: 1. Simplify graphics and present them at a scale large enough to ensure readability. These materials can be based on engineering or architectural drawings but should be less cluttered and enhanced with color, where appropriate. Perspective drawings, either hand drawn or computer-generated, can also be useful in illustrating how a completed project will look. 2. Use videographics for projects where major disagree- ments are likely to occur over visual impacts. Videographic techniques are becoming more and more popular because they can respond to many of the fears of the unknown that often surround project 3 plans . For example, it is one thing to state that extensive landscaping will be installed along a rebuilt street; it is quite another to be able to indicate how this landscaping might look upon com- pletion. (See Appendix for examples of video-graphic techniques) . 3. Use stakes and marking tape to identify boundary lines, rights-of-way, pavement widths and similar on-site features that are difficult to visualize. 4. Use local public access TV and local TV news pro- grams to present project information to the public. This technique could reach residents who may not attend public meetings or follow local newspaper reports about City projects. D. Develop more effective written communications. We often write in stilted language and include technical terms that can be alarming to lay people. On Hudson Street, for example, we learned that "arterial" means one thing to a traffic engineer and quite another to residents along the street. "Standards", "widening" and "State" are other examples of words that can have an inflammato- ry effect. To be more effective in our written communi- cations, we could: 1. Create a public affairs office in City Government that could be responsible for overseeing the devel- opment of messages to the public. We feel that this would be a very useful addition but it seems unlike- ly given current budget constraints. Alternatively, we can heighten our awareness of the power of the written word, either to explain or confuse, and we can set up ways in which communica- tions destined for the public receive an impartial review before they are released. It would be helpful if staff could develop informal networks, perhaps between departments, in which this type of review can be achieved. 2. Develop a list of words and phrases that have nega- tive psychological impacts and work on ways to express these messages in a positive manner. We could also have any currently used form letters, notifications or similar regularly used standard forms reviewed by a professional editor for content and tone. Whenever possible, we should personalize the message by using terms such as "your house", "your street", and by personal signatures on let- ters. (See Appendix G for examples) . 4 E. Formalize media contacts for improved coverage. We are often appalled at the amount of misinformation included in a news story; we are equally distressed when the media do not report on an issue that we feel deserves wide public discussion. We can alleviate the misinforma- tion side of this equation through the use of the fol- lowing techniques: 1. Include media respresentatives on annual public works project tours and conduct media briefing sessions, as necessary. 2. Prepare and distribute press packets that present information correctly and include relevant back- ground material. 3. Provide assistance to media representatives for the development of regular story segments presenting projects in various planning stages, including those that have broad public appeal. Proposed improvements to the water treatment plant and pedestrian/bicycle bridges, for example, would likely be viewed posi- tively. The Committee also recognized the benefits of news articles such as the recently-published Ithaca Journal article on planned street resurfacing projects. 4. Use media outlets to introduce Department Heads and senior staff members to the general public, making their roles in government more understandable. For example, regular TV segments such as "This Month in Public Works." 5. In addition to the recommendations noted above, all of which would improve the City's relations with the public, we should promote greater community aware- ness of the many City services provided by the Department of Public Works. This very important branch of City government is responsible for execut- ing projects that, in a number of instances, origi- nate with other departments and agencies. These projects, added to the projects that the Department takes on under the direction of the Board of Public Works, offer many opportunities for citizen com- plaints. Broader information about the Department's role and responsibilities would help diffuse the anger that often results from misunderstandings. Suggestions include a "Public Works Day" on the Commons, wider distribution of the Department's Annual Report to the Board of Public Works covering projects, accomplishments and problems, and similar positive outreach efforts. 5 F. Keep a Record of Informal Contacts. During the course of a typical public works project, numerous "street corner" or telephone conversations take place between residents and staff. We suggest that any staff members who are not already in the habit of keeping phone logs and field notes documenting these conversations for future refer- ence be instructed to do so. The record should note the parties to the conversation, general points covered and follow-up actions required. Improving the Public Meeting Process Public meetings are an integral part of any project. The act of congregating, however, does not automatically result in improved public understanding of, or support for, a particu- lar project. The Committee discussed public meetings in general and the factors that make for successful, or unsuc- cessful, meetings. Incorporating the following recommenda- tions into the process should result in a greater incidence • of success. A. Begin Early in the Process. Public informational meet- ings, perhaps better referred to as public input meet- ings, and required public hearings should be held as early in the project development process as possible. This will allow for public input before designs are finalized giving residents an opportunity to be a truly functional part of the planning process. B. Establish and Adhere to Parameters and Ground Rules. Every meeting should have an agenda; a totally open meeting where anything can be introduced for discussion is not productive. It is important for the chairperson to define the parameters of the discussion at the begin- ning of the meeting to clarify those elements that are not debatable. These things should be made clear at the outset and should remain as the ground rules for the remainder of the meeting. Meeting rules should prohibit personal attacks or abuse of staff, and other public officials as well as other meeting participants. The chairperson must be willing to set and enforce time limits and to ensure that the meeting does not turn into a lynch mob. C. Select a Neutral Chairperson. The chairperson mist be someone who will be viewed by the meeting participants as fair and impartial. We did not determine a formula for identifying the appropriate chairperson for every occasion; we did conclude, however, that it is a mistake to place involved staff people in the position of chair- ing a public meeting on a project that they may eventu- 6 ally be called upon to defend. Our thoughts on appro- priate chairpersons ranged from Commissioners of the Board of Public Works, to uninvolved Department Heads, to professional mediators, with a range of options in between. We believe that it is reasonable to select the chairperson for a meeting on the basis of meeting con- tent and audience and that this can vary widely. The Committee also recognized that some individuals are simply more adept at chairing a meeting than others and that personal style plays an important part in the chairperson's success or failure. Regular training opportunities in meeting conduct skills, for both staff and elected/appointed officials, is a useful idea to consider. D. Include Participants from Related Areas of Government. As noted above in the discussion of field walks, it will often be useful to include among the meeting partici- pants City staff people who can speak to peripheral issues. For example, if it is likely that a question will arise concerning fire equipment access, it will be useful to have a representative of the Fire Department on hand to respond directly to this concern. Those responsible for planning the meeting are well-advised to consider these questions and ensure that appropriate responders are present. (The Committee notes, however, that it is not necessary to respond on the floor to every question raised in a public meeting. In many instances, it will be preferable to follow up with the questioner on a one-to-one basis.) E. Document Carefully. Records of attendance and meeting notes should be kept, a sign-in sheet that includes names and addresses to facilitate further contact with interested residents should be available, and a follow- up process for unanswered questions or issues of very narrow interest should be established. Each public meeting should conclude with a summary of items upon which a consensus has been reached, items that are unresolved, and the next steps that will be taken. A meeting summary should be available to participants who request such a record. Tape recording the meeting is also advisable; for the permanent record and for prepa- ration of the meeting summary. Addressing Environmental Issues The City's awareness of the importance of environmental concerns is reflected in our local environmental quality review ordinance (CEQR) . The law is quite clear on the environmental review process and, in general, the process 7 appears to work most of the time. On occasion, however, environmental review becomes almost an afterthought treated more as an annoyance than a useful tool in project planning. When this situation occurs, bad feelings are created on all sides, the environmental review process becomes a hindrance instead of a help and the end result is, inevitably, a residue of suspicion and mistrust that carries over to the next project. In order to better integrate environmental review with the planning phase of public projects, we recom- mend: A. Identify Projects Subject to CEQR. We need to routinely identify those projects that will be subject to environ- mental review and schedule the review process as a regular part of project development. A determination could be made as to which projects are subject to envi- ronmental review (a) when the City budget is adopted with capital projects and projects to be funded from other sources identified or (b) at anytime during the year when a project is established`. For the vast ma- jority of projects the City undertakes, identification of projects subject to CEQR and preliminary identifica- tion of Lead Agency would be a relatively simple exer- cise that could be accomplished by Public Works and Planning staff after the City budget is adopted and after the DPW has identified its proposed projects. B. Initiate Environmental Review Early. It is important that CEQR review be initiated early on so that environ- mental concerns can be addressed as the project is being planned. This "early warning" approach can serve not only to flush out serious concerns and identify worth- while mitigating measures, it will also provide an opportunity for the development of a working partnership with groups and individuals whose focus is environmental concerns. This approach would help ensure that advisory review boards feel that their views as citizens are taken into account within the context of their advisory role. 2 As an aside, the Committee recommends that background information on all projects include a description of the origin of the project, ie., neighborhood request, DPW staff/other City staff recommenda- tion, alderperson request, etc; a statement of the project's goals and objectives, as seen by the originator; and the date of the initial submission of the project. This will provide a brief historical record about the project and, at the same time, help identify individuals or groups that have an interest in the project. This information could be incorporated into the Project Justifica- tion and Need section of the capital projects form. 8 Involving the Neighborhood: Associations Ad Hoc Groups and Individual Residents The neighborhood civic association has become an important component in public policy discussions and planning for specific projects. This trend has been a subject of interest to City government for several years. It was the principal impetus for the Planning and Development Board's recently- completed study of neighborhood involvement in other commu- nities. Given that participation by neighborhood organi- zations is an important element in project planning, the Committee discussed in great detail how we can enlist this participation in an effective and constructive way. Our City neighborhoods are diverse in their makeup and in their methods of dealing with proposed projects. Some have on-going, well-organized groups such as the West Hill Civic Association; some groups coalesce around an issue such as a change in bus routes and disperse when that issue is re- solved. Some neighborhoods have no formal organization but have concerns that must be recognized and dealt with. In most instances, staff time will be saved if we deal with representative neighborhood groups. As a City, however, we should never assume that one group or individual speaks for an entire neighborhood. We must work to solicit a cross- section of opinion while recognizing that organized groups will provide important and, in many instances, the only viable and consistent contact within an area. Given these caveats, our conclusions and recommendations regarding neighborhood involvement are outlined below: A. Formalize Representation. Who speaks for the neighbor- hood? The Committee feels that it is important to ensure that neighborhood groups are truly representative and that their comments or suggestions reflect a consensus of resident opinion. Discussion of this one issue occu- pied us for some time and it is a central theme of the Planning Department's report on neighborhood participa- tion. Suggestions for verifying a neighborhood organiz- ation's credentials include the following range of possibilities: 1. Require groups to register with the City identifying their geographic area of representation, membership, by-laws, dues (if applicable), and other evidence of formal organization structure. 2. Short of registration, require groups to demonstrate that membership is open and inclusive, that they follow generally accepted methods of meeting notifi- cation and that meetings are open to the public. 9 3. Require groups to demonstrate some level of continu- ity. This could include regular election of offi- cers, general purpose meetings at least once a year, publication of a newsletter on a regular basis, or other evidence that the group has broad based inter- ests and support. B. Develop a Working Relationship. Neighborhood groups can provide a great deal of assistance, not only in project planning but throughout project execution. If the City wants and expects this level of positive involvement, it rust be prepared to give something in return. As the Planning Board's report points out, this reciprocity can take a number of forms. The following may be especially useful where public works projects are concerned: 1. Provide meeting space, copying and mailing privi- leges within reasonable limits, and similar support services. 2. Include neighborhood representatives on the annual Public Works tour of proposed City projects; sched- ule mini-tours of neighborhoods as a follow-up. 3. Conduct periodic briefing sessions with neighborhood groups to bring them up to date on proposed pro- jects. Projects do not necessarily have to be major construction efforts; they could also include a new traffic control program, changes in street cleaning schedules or trash pickup practices, ordinance modifications, etc. The principal purpose of the briefing sessions is to establish an ongoing rela- tionship. In addition to their value as information exchange techniques, inclusion activities such as 2. and 3. above can have a major positive spin-off benefit in that they can help convey to a neighborhood larger City concerns. The Committee feels that, as we involve these groups, it is important to ensure that they recognize how their 0 specific interests are related to the community at large. Just as we strive to promote intermunicipal cooperation, we need to guard against creating divisive- ness and competition within our own boundaries. In this vein, we feel that it is important for neighborhoods to understand that the ultimate responsibility for public decisions rests with the City. C. Facilitate Participation. As we have noted previously, neighborhoods differ in their level of organized in- volvement in community affairs; outreach methods will need to respond to these differences. This will be most 10 t1 evident when the City wishes to notify an area about a proposed project or public meeting. It will also be important to recognize these differences when we want to solicit general public input on a particular subject. Suggestions for reaching out to neighborhood residents, and to property owners when these differ, include the following: 1. Develop accurate mailing lists that are updated on a regular basis. This task is not as easy as it might seem on the surface. It has been the experience of ( the Committee that several sources of mailing ad- dresses must be cross-referenced if a reasonable degree of accuracy is to be obtained and, even then, mistakes will occur. Useful sources include: a. Property Tax Records - Legally sound and useful in notifying owners. Because of the high inci- dence of rental properties, often will not cor- respond to the current resident. b. City Directory - Some improvement over property tax records, especially for rental properties. Error rate is still fairly high. c. Water/Sewer Bill Records - Many of the same problems as with property tax records. d. Voter Registration Rolls - Helpful as a supple- ment to other sources; can involve some direct expense if labels are purchased. e. Commercial Mailing Lists - Worth exploring, especially if a targeted mailing is contemplat- ed; some direct expense involved. Some combination of sources will be most satisfacto- ry and result in notification of property owners as well as tenants. 2. Place notices on doors. This is labor-intensive but assures that all current residents will be notified. 3. Use alderpersons as resources. Elected representa- tives can provide valuable assistance in developing neighborhood outreach programs. This expertise should be used and will provide the further benefit of involving the appropriate elected officials in project development from the start. 4. Use neighborhood organizations whenever possible to convey information and assist with public outreach 11 efforts. This will be a particularly useful tech- nique when the groups have established formal commu- nications channels ie., newsletters, telephone trees, etc. 5. Maintain periodic contact with the neighborhood as project planning proceeds to keep in touch with residents who do not or cannot attend meetings. Let residents know that minutes of meetings are avail- able if they are interested. 6. Include a contact number and name on all correspon- dence or other written material with an invitation to call with opinions and questions. Training and Support for City Staff, Elected and Appointed Officials Implementing policy and communicating decisions is diffi- cult. Even when representatives of the City are involved in extensive communications with the public, decisions may displease as many people as they satisfy. City representa- tives need special skills in delivering potentially unpopu- lar messages and in dealing with the reactions of others to those messages. Optimizing these skills would benefit the City, its staff, its elected and appointed officials and its citizens. It would also enhance the provision of services by improving the well-being and self-esteem of City representatives, lowering stress and improving interactions with the public. Recognizing that these suggestions overlap with those made by the Wellness Committee and the Affirmative Action Commit- tee, we make the following recommendations: A. Provide Training Opportunities. Training should be made available on a regular basis to City staff and elected and appointed officials in meeting facilitation, con- flict resolution, handling emotionally charged situa- tions, negotiation techniques, human relations and sensitivity to cultural and ethnic differences. B. Encourage the Formation of Support Groups. Individuals involved in particularly difficult situations should be encouraged to form informal and/or formal support groups. Participation in such groups can provide camara- derie and help reduce stress. C. Conduct Periodic Retreats. Periodic retreats should be scheduled, with agendas set by those involved, to allow staff and elected/appointed officials time to share 12 successful techniques and mutually useful information. Events such as this also provide an opportunity for staff and elected/appointed officials to identify prior- ity issues and ways in which they can best work together on these issues. III. PROCESS AND PROCEDURE The Committee did not establish a formula by which all projects would be undertaken. We did, however, consider an approach that would allow for effective public participation as a project develops and one that is transferable to pro- jects other than those of a public works nature. This ap- proach can be summarized as follows: Step 1. Informal Discussion with Potentially Concerned Parties The Committee sees this as an informal discussion that would include the appropriate alderpersons and BPW commissioners, key neighborhood leaders, and senior staff to evaluate the extent and nature of public participation that the project will require. The Committee wishes to reemphasize at this point that we do not feel that all projects require all of the measures outlined in Steps 2 through 7 below. At this step in the process, we hope that it will be possible to identify key elements that need public discussion and set a course that will be satisfactory. Step 2. Problem Identification and Goal Setting This step entails a discussion between representatives of the Board of Public Works, DPW staff, Common Council repre- sentatives and neighborhood representatives to develop mutually acceptable goals for the project in question. What does the City need from the project? What does the neighbor- hood need? How can these needs be matched? A key question at this juncture is "What happens if we cannot agree upon goals and objectives; if the City's inter- ests and the neighborhood's are so disparate that we cannot come to terms?" We do not feel that this will happen often. However, if it appears that an impasse is developing, it is the Committee's recommendation that the resources of the Community Dispute Resolution Center be used to attempt to reach a compromise. We urge that the CDRC be brought into the process early, rather than after positions have solidi- fied, in order to have the best possible chance for problem resolution. While this option will add to the project's up. front costs, it is likely to be cost effective in the long run. 13 In the event that it is not possible to reach a compromise position, a determination will have to be made at the Coun- cil level regarding the best interest of the City and the most appropriate method of proceeding. Step 3. Schematic Design Alternatives Developed After project goals are established, staff3 can develop schematic designs or approaches that outline the physical and financial impacts of meeting these goals. What is the range of alternatives from "super project" to "minimalist solution." Which alternative best meets the goals estab- lished in Step 2? At this stage of the process, we should be dealing with easily-understood schematic materials that do not represent an extensive investment in design time. This is important because, at this stage, all parties may come to the conclusion that the physical and/or financial costs of meeting the goals are too great. If this occurs, it will be necessary to redefine the goals. A formal public meeting should be held at this stage to identify the most appropriate alternative or combination of alternatives. Environmental review should also begin during this stage involving the Conservation Advisory Council and other advi- sory boards or committees, as appropriate. Step 4. Final Prelim nary Plan Developed The alternative selected in Step 3. would be detailed at this point and a firm cost estimate assigned. The level of design detail should still be schematic but should be suffi- ciently detailed so that impacts on particular properties can be reasonably identified. Continued participation by the CAC and other groups as planning progresses can contribute to the process. The CEQR process, begun during Step 3., would be completed at this time. Step 5. Formal Public Meeting Held This may be a formal public informational meeting or a public hearing; any lingering unresolved issues should be 3 The Committee recommends that staff take a team approach to developing alternatives, at least in the conceptual sense, involving all relevant departments in these discussions . 14 addressed at this time. If Steps 1 through 4 have been successful, no major problems should arise at this stage. Step 6. Construction Documents Prepared Construction documents should be prepared by the implement- ing agency, usually the Board of Public Works, at this point. During this stage, the current practice of consulta- tion with individual property owners would continue, as necessary, to work out details that affect each property differently. Step 7. Formal Public Meeting Held, (if appropriate) Depending upon the scope of the project, this step may not be necessary. It is included here for the express purpose of accommodating a public hearing, if required by law. Step 8. Preparation for Construction or Bidding Bidding would occur at this point if the project is not to be undertaken by City crews. If it is to be a force account project, preparation for construction would occur at this time. In addition to these eight steps, public informational meetings can be held throughout the process at a convenient location in the neighborhood, if the project warrants. In any event, regular update bulletins should be sent periodi- cally to all residents affected by the project. IV. TYPICAL PROJECT EXAMPLES The Committee has made the point several times throughout this report that all projects need not be subject to the same procedural steps. Even if such a process was desirable, limited staff resources would preclude the detailed atten- tion required if Steps 1 through 8 above were to be required in their entirety for all projects. With this proviso, we offer the following hypothetical projects as examples of how the process might apply in different situations. The matrix form, which follows the examples, is one possible tool that might be used for outlining the appropriate process when actual projects are under consideration. Major Street Reconstruction The Department of Public Works street evaluation indicates that North Main Street - officially classified as an arteri- al street - has the highest priority for major reconstruc- tion. The project has been included as a Capital Project for 1992. Preliminary in-house evaluation based on pavement 15 history, visual inspection and general engineering review indicates that the project is likely to include minor re- alignment, limited property takings, sidewalk reconstruction (and assessments) and storm drainage improvements . Design and construction will be performed under contract. We suggest that public involvement in the North Main Street project be planned to include all eight steps in the pro- cess. On the basis of the brief project description, it is obvious that it includes many of the elements that make for controversy. We have deliberately included some of the more inflammatory descriptors to emphasize the potential for major misunderstandings between the North Mein Street neigh- borhood and the City. Ie., arterial, takings, assessments. Street Gravel Basing The Department of Public Works street evaluation indicates that North Watson Street from Clifton Street to Eight Mile Creek - a major downtown collector street - requires a new gravel base. This project has been submitted to the City Engineer's office for evaluation and design in September 1991 for construction in 1992. Preliminary engineering evaluation indicates that the street requires curb and sidewalk reconstruction as well as major pavement recon- struction. No realignments or takings will occur. Design and construction will be performed in house. This project can most probably be accomplished with a limit- ed amount of public involvement in the design phase since no major changes will take place. There are, however, a number of elements in the project that will be of concern to the residents along the street. These include duration of the project, costs associated with sidewalks, and landscaping as well as individual property owner concerns. For these rea- sons, the process should focus on the communications aspects with the goal of maintaining a regular information/concerns exchange. Streambank Improvement Erosion along the banks of Spring Creek is undermining portions of Granger Park that are used by picnickers and bicycle riders. Preliminary review suggests three alternate forms of bank stabilization to be considered — gabion mattresses, rip rap or a reinforced soil system. Approvals for the work must be obtained from the Department of Envi- ronmental Conservation and the Army Corps of Engineers. Design and construction will be performed in house. This project does not have a "neighborhood", as such, but it will be of interest and concern to a specialized public 16 including groups and individuals normally associated with open space and environmental concerns. It will be useful to adapt the process in a way that permits their early inclu- sion in the discussion of the various alternatives. Neighborhood Park Improvements The Planning Department, in cooperation with the Youth Bureau, has inventoried neighborhood parks and determined that Benton Park should be improved. The tentative plan includes a play structure, financed through a community fund-raising effort and constructed by volunteers, a paved basketball court, parking area and new sidewalks. The De- partment of Public Works will be responsible for the design and construction of everything except the play structure. This project, while seemingly benign, offers a number of possibilities for both public and interdepartmental contro- versy. The Planning Department and Youth Bureau will view the project as a needed public improvement to satisfy unmet recreation needs. The neighborhood may very well be divided between those who support the improvements and those who see them as a potential nuisance, attracting users from outside the neighborhood and creating law enforcement problems. The Department of Public Works will be caught in the middle, responsible for executing major portions of a project for which it is not primarily responsible. In addition, as the project goes forward, it will be the DPW that will take the brunt of public abuse, in effect becoming "the City" for neighborhood complaints. Given this set of circumstances, it will be wise to employ all eight steps in the process with particular emphasis internally on utilizing the team approach to project plan- ning . 4 In addition to Planning, DPW and the Youth Bureau, the team should include a representative of the Shade Tree Advisory Committee and, when established, the Parks Commission. 17 Note: The matrix included below is only intended as a guide to project planning and scheduling. A standardized form, such as the form used for initiation of capital projects, should be developed for use by all depart- ments. This form, when completed, can become a part of the project file and will provide a ready record of progress. PROJECT PROCEDURES MATRIX Tentative Date(s) Responsibility Steps in Process Project Established Establish CEQR requirements Establish project schedule Identify neighborhood contacts' 1. Informal Discussion 2. Problem Identification/Goal Setting City/Neighborhood Goal Reso- lution Meeting(s) Project goals established 3. Schematic Design Alternative designs develoRed/ reviewed with neighborhood CEQR process begins 4. Final Preliminary Plan 1 May be a formal neighborhood organization or key individuals. 2 Review session will be the first informational meeting following goal setting. This is the meeting where various alternatives should be discussed in an informal, non-hostile atmosphere. Some projects, a zoning change for example, will involve alternative approaches as opposed to alternative designs but the purposed of the meeting is the same. 18 Tentative Date(s) Responsibility 4. Final Preliminary Plan City's preferred alternat,ve presented to neighborhood Unresolved points of conflict identified; procedue for pro- ceeding identified. CEQR process completed 5. Formal Public Meeting 6. Construction Documents Construction documents prepared 7. Formal public hearing, if required 8. Construction Phase Construction bids solicited or DPW construction preparation Award of contract/begin construction or Begin construction with DPW force 3 Second public information meeting. The plan presented here should meet the mutually-agreed upon goals and reflect consensus positions developed at the Schematic Phase public information meeting. 4 This is the point in the process where it may be necessary for the City to override some neighborhood wishes if the project is to go forward. If the project planning process has been effective to this point, conflicts should not be of a serious nature. 19 BTRT.TQGRAPHY Design Procedures Manual, NYS Department of Transportation, 1979. Citizen Participation Handbook, Federal Regional Council, Region II, 1976. Community Planning in Highway Planning & Design, Virginia Polytechnic Insti- tute and Syracuse University, no date. Environmental Action Plan, NYS Department of Transportation, 1974. Improving Dialogue With Communities, New Jersey Department of Environmental Protection, Division of Science & Research, 1990. Improving the Effectiveness of Public Meetings and Hearings, U.S. Department of Transportation, Federal Highway Administration, 1978. Planning, American Planning Association, various issues. Professional Development Seminar Materials, College of Engineering, University of Wisconsin, 1990. Residential Traffic Management, U.S. Department of Transportation, Federal Highway Administration, 1980. tt 20 APPENDIX A: Board of Public Works Resolution Common Council Resolution . Office of Telephone: 272-1713 Mayor Code 607 I To: Pat Connor, Board of Public Works Mike Sprague, Board of Public Works Barbara Blanchard,Common Council Carolyn Peterson, Common Council • Bill Gray,City Engineer Thys Van Cort, Planning Department From: Ben Nichols,Mayor NI Date: July 9, 1990 Re: Committee to Review Public Involvement Procedure for Reconstruction Projects r 1 The Board of Public Works has adopted the following Resolution: HIGHWAY ITEMS: Formation of Committee to Review Public Involvement Procedure for Reconstruction Projects The Board of Public Works reviewed a proposed procedure from Alderperson Blanchard outlining ` a systematic plan to advance the Elm Street project. r Resolution By Commissioner Sprague: Seconded by Commissioner Berg WHEREAS, the Board concurs that there is a need to establish procedural guidelines which could be followed for all street reconstruction projects and other major capital projects to help prevent confusion and delays that are currently being experienced; now, therefore,be it ;•1 RESOLVED,That the Board of Public Works recommends that the Mayor appoint a committee to review, study and propose a written procedure for street reconstruction projects,and,be it further RESOLVED,That this committee consist of two members from the Board of Public Works,two members from Common Council and two members from City staff. r Carried Unanimously By this memo, I am hereby appointing you to the committee specified in the resolution. In order to get the process started I suggest that Mike Sprague convene the first meeting after which the committee can decide on its chair. With the Capital Project decisions coming up in the near future I would urge that you carry out this assignment as promptly as possible. I would appreciate being informed of the time of the first meeting. Perhaps only one meeting will be necessary! At any rate I think two should do it. cc: Narayan Thadani Carol Reeves BN/ta 34 April 4, 1990 Section 3 . Effective Date These provisions shall take effect immediately and in accordance with law upon publication of a notice as provided in section 3. 11(B) of the City Charter. " * 22. 3 Planning and Development Committee - Community Participation By Alderperson Johnson: Seconded by Alderperson Booth RESOLVED, That the following resolution be referred to the Planning and Development Committee for investigation: Carried Unanimously WHEREAS, it is crucial that the City guarantee maximal community involvement in the planning and decision making process; now, therefore, be it RESOLVED, That the Planning and Development Committee investigate approaches to formalize community participation that other cities have used and make recommendations for a formal structure and procedures to achieve maximal feasible participation. / Executive Session On a motion the Common Council adjourned into Executive Session at 12:20 a.m. to discuss land acquisition. ADJOURNMENT: • Common Council came out of Executive Session and the meeting was adjourned at 12: 35 a.m. /L4- ilista F. Paolan 'eli Benjamin Nichols City Clerk Mayor A APPENDIX B: West Hill Civic Association • Newsletter - Nov. 1990 • b1i% ciuica . • •• on NEWSLETTER Volume 9, No. 3 November 1990 WHCA Focus 1990-1991 Whatever Did Happen to That Wonderful West Hill Master Plan? The WHCA Executive Board met in Septem- On October 23, Kathy Sprague and Heft ber to discuss the issues facing the Civic As- Johnson, WHCA Co- Presidents, appeared sociation for the coming year. before the City Planning Board. We presented One of our main concerns will continue to to the Board a letter from the WHCA Executive be the West Hill Master Plan. We would like to Committee asking the Planning Board to ex- see it become part of the official city map this pedite the approval process for the West Hilt year. (See following article) Master Plan. We expressed our concern that Another concern_will be the reconstruction nearly two years had elapsed since the • c�f'Elm`St.,"a project that has been postponed development of the Plan and that we felt it was by the City Dept. of Public Works until the critical to have this Plan approved before any Spring of 1991. There is a committee of Elm projects, such as the Elm St. reconstruction, St. residents, ready to meet with the City, to are undertaken. advise the City of our concerns in this project. We will await a response from the Planning _ It is important that your WHCA Executive Board and City Planning Department. Copi&s Board be aware of any issues which may be of the letter were also sent to our aldorp r- of concern or interest to the people of West sons, Bob Romanowski and Barbara Hill. The following is a list of the members of Blanchard, and to Mayor Ben Nichols. the Executive Board and how they may be reached. Helen Johnson 272-5074 Co-president What's Happening with West Village? Kathy Sprague 273-9181 Co-president Jane Jones 277-1782 Secretary Many of us have been concerned about the Debbie Homsher 272-6351 Treasurer current status and future of the West Village Marie Tischler 273-6575 Membership development, which provide an affordable Celia Lahr 273-5022 Public Relations housing option for community members. Helen Dicke 273-4195 At-large Helen Johnson conducted an interview with Kate/Fernando Diz 272-0824 Newsletter Bruce Abbott, Manager of West Village,on Oc- tober 9th. The following is a summary of the conversation. Mr. Abbott explained that West Village has, A number of recent developments (the na- • in essence, always been privately owned. His tional S&L crisis and recent local rental hous- father, David Abbott, was asked to develop a ing boom) affect Mr. Abbott's interest in pur- moderate to low income housing project in the suing "privatization" of West Village. The rent- early 1970's by the New York State Urban al housing market (the competitive rental Development Corporation. He agreed and housing market) is saturated currently and he federal mortgage money was obtained and feels that it would be too costly for a private West Village was built. Many of these projects developer to renovate West Village and were initiated in the early 1970's (before UDC charge sufficient rents to recoup a profit. went bankrupt) on a 20-year agreement with When the West Village development was developers to provide additional low and undertaken by Mr. Abbott's father,the tax ad- moderate cost housing. The 20-year agree- vantages were attractive enough to make this ment is about to expire project appealing. Since the 1986 Tax Reform Mr. Abbott said that a few months age, Ab- Act, the development of projects like this are bott Associates was asked if they would enter- less appealing, but Bruce feels strongly that tain an offer from the City Housing Commis- even if they wanted to seek private funding and sion to buy West Village. He said that Abbott change West Village, the Federal Government Associates agreed to provide all of the infor- would not be likely to allow that change to take mation that the City required to develop an place because of the severe shortage of affor- offer. To date,that is the last that his organiza- dable housing across the country. tion has heard from the City regarding their The prospect of West Village becoming a proposal to buy West Village. At this time, "private development" responding to competi- Bruce feels that is it unlikely that the City will tive market rents looks unlikely at this time. come up with a purchase offer, but he does The West Hill Civic Association, however, has not rule out that possibility. However, if the asked Mon Cochran, a West Hill resident and City were to buy West Village, it would remain .member of the City of Ithaca Planning Board, a low and moderate income housing develop- to monitor the issue and keep us informed so ment. _ r-C iu[\X)esi rub 9azeue 5 EXTRA ` EXTRA EXTRA EXTRA EXTRA ," EXTRA Bring this card into PETE'S and receive: PETE'S adds deli, NYS Lottery (Ithaca, NY)-Pete's-the family owned store at the corner of A FREE • Buffalo and Taughannock streets-has added a full serve deli and New 32 OZ. SODA York State lotto to its long list of features. The sandwiches(foot-long with any large sub subs, sandwiches and rolls)are made fresh with the finest meats and choice of toppings. Pete's also sells cold cuts and salads from the deli On case and accepts phone-in orders. With the summer months right A FREE • around the corner, boaters,picknickers,and anyone who wants great 16 OZ. SODA food will be stopping at Pete's on their way to to their favorite recreation spot. with any small sub or r Pete's also wants to make it easier for those of you with a dollar sandwich to realize your dream. They've set up a New York State Lotto counter with all the games. Play Lotto! You've got to be in it to win it! Open 7 days a week until 11 p.m. 273-7470 L f that we can pass any information to WHCA maintenance. The water tank on Oakwood members. Stay tuned. Ave. is scheduled for maintenance and repainting in 1991. Update from City Council members Other City News of Interest: Barbara Blanchard and Bob - The new Fire Station #6 on West Hill is Romanowski. operational with facilities for housing 16 bunkers. Engine 906 is stationed there as is Elm St.Improvements-This is an authorized the office of the Fire Alarm Technician. capital project that was scheduled for 1990. Anyone interested in becoming a volunteer Because of the neighborhood controversy and bunking at 36 should contact the Volun- regarding the scope of the project, it has been teer Coordinator, Marcia Lynch, at 272-1234. put on hold until process for more effective -The Department of Planning and Develop- public involvement in project planning can be ment will be movingahead with recommenda- developed. A Public Works Procedures Corn- tions to rezone all f the areas on West Hill that mittee, chaired by Alderperson Barbara are now zoned R-3a to the lower density R-2c. Blanchard, has been established to develop The R-2c zone permits the development of a this process. The Committee members in- variety of different forms of housing, dude residents of Elm St., the City Engineer, predominantly one-family, at about 15 units Barbara Blanchard, and other relevant City of- per acre. This zoning district, recommended ficials. The Committee expects to complete its in West Hill Master Plan, is more compatible report to the Board of Public Works by Decem- with the existing development pattern than that ber. The Elm Street project will not go forward until the process is in place. permitted under the R-3a designation. Route 96 - The Final Environmental Impact - City water and sewer bills received after Statement (FEiS j for niter native A with the op- tional Route 89 alignment is under review by January 1st, 1991, will reflect an increase from the Federal Highway Administration. When $.90 per 100 cubic feet to $1.15 for water and the FEIS is approved and an additional round $1.25 for sewer. These increases were neces- of public comment received, the State Depart- sitated because of the loss of $100,000 in ment of Transportation will proceed with State Aid that is no longer paid to local govern- design of the bridges. In the interim, deter- ments and an anticipated new charge of minations are being made about lands that the $350,000 for disposal of sewage sludge at the County landfill. City will acquire in the exchange for the parkland that will be lost as a result of the _The Board of Public Works is currently dis- project. An Inlet Island Land Use Committee cussing the need to increase the cost of trash with representatives of local businesses, the tags to cover the ever-increasing costs of gar- Board of Public Works, the Conservation Ad- bage and trash disposal. As of this writing, no visory Council and the Interim Parks Commis- determination has been made, but, an in- sion, as well as First Ward elected repre- crease of$2 or$3 on a$10 sheet is under con- sentatives, is working on a plan for the Island. Route 96 construction should finally get under- sideration. way in about 3 years. - The NYS Department of Transportation is The City Energy Commission is recom- proposing to replace two bridges on Route 13 mending that a new traffic light system be in- south of the City and make improvements to stalled at the Octopus to help improve traffic the road from approximately 500 feet north of conditions until the Rte. 96 project is con- the City line past the Route 13A intersection. structed. Several proposals are under consideration for Other Capital Projects - The Elm Street the area south of the City;all proposals include water tank has been replaced with a fiberglass Aquastore unit for more durability and less • a continuation of the present four-lanes on the • Elmira Road in the extreme southern portion . namese restaurant, Wok Village. Located in of the City where the road narrows at the old the Small Mall, just north of the Triphammer railroad bridge abutments. Mall,Wok Village offers Ithacans a great many This proposal is strongly supported by the familiar Cantonese and Hunan dishes, along First Ward representatives to the Common with Vietnamese specialties like Grilled Lemon Council because of the dangerous conditions Grass Chicken and a special Vietnamese posed by the abrupt road narrowing at this Brunch on Saturdays and Sundays. The point and by the bridge abutments that severe- brunch features Dim Sum, a variety of small ly limit sight lines in this area. More information dishes that can be ordered a la carte, like ap- will be forthcoming about this project; it is ex- petizers. The restaurant is open seven days a pected to generate heated public debate be- week, from 10:00 am to 10:00 pm. cause of the opposition of certain groups and Already Wok Village has received attention individuals to the use of automobiles. If you from the press: the Ithaca Times published a have questions or concerns, please contact glowing review on October 11. Trung Lam, either Barbara Blanchard at 277-1374 or Bob whose father owned and operated a hotel with Romanowski at 273-2235. a restaurant in Saigon, explained that he got his first taste of very good food in that res- taurant. "in Vietnam, we had a country in- West Hill Residents Open Their New fluenced by the French, you know. At the Restaurant time, my family was rich, and I ate what my father gave me to eat. The chefs too, they Myle and Trung Lam, who live with their gave me recipes." Mr. Lam named East-West three children in West Village, have recently Shrimp and Vietnamese Steak as his opened the doors to their new ChineseNiet- restaurant's most special Asian offerings, and added, "you should know, I follow the new -- --- — TRUE INSURANCE lun :gg � -P�: : unity_ 2 440 -- ri��'4vJs'Jt`� • ��� 7r 4( J.B. True Company, Inc. 124 Seneca Way, Ithaca, NY 14850 273-7511 Computerized auto insurance quotes provided over the phone from over ten different major insurance companies. Jerry B. True Archie L. Allen Jay B. True CIC Jean E. Baker Jeffrey B. True CLU Ann M. Mays Auto, Homeowners, Life, Renters, Boats, Farms, Workers Compensation, Disability, Commercial,.Bonds. Hospitalization, Mobile Homes, Fire, Flood, Motorcycles, Liability. style of eating and diet. We cut the MSG and County Planning Department, public transit is fat the maximum." now integrated with overall transportation It isn't easy to get a business started, and planning. We hope to have a comprehensive the Lam's decision to keep their restaurant plan in place sometime this winter. Any open seven days a week speaks for their thoughts or comments you might have can be tenacity and determination. Mr. Lam sent to me: described his own efforts to work, learn Deborah Deitrich 221 Dubois Rd. English and train himself in the years since he Ithaca, NY 14850 and his wife came to Ithaca from Saigon in As always,solid waste is the issue which ab- 1980. He attended Denver Automotive Col- sorbs much of our time and effort. Thank you lege for two years, spent two years at BOCES for this opportunity to tell you about some of training in auto mechanics,and worked at TC3 the County Board's other activities. in electronics, but, "I am in my middle age,and I didn't have enough time to get to my target..." with those careers. For the last four years, he A Message From County and Myle have been planning their restaurant. Representative Eric Lemer "My friends help me out,and my relatives,they P help us." Thanks for inviting me to share some Quoc-Bill and Tam-Marion,the Lam's eldest thoughts with West Hillers. I've now been on son and daughter, attend Cayuga Heights the county board of representatives for almost Elementary School, where they are in the ten months, representing the first ward of the fourth and third grades. The Lam's third child, city of Ithaca. During that time, I've also taken a baby daughter, is five months old. a new job on the faculty of Ithaca College, And West Hill? "West Hill is very quiet, quiet teaching Applied Ethics--so it's been quite an people. Ithaca is very nice, " says Trung Lam. exciting year. It's been fascinating and chal- lenging to work on dozens of county issues and projects. I'll write about some areas of News From CountyRepresentative county government that I've worked on in P committee, and that haven't gotten as much Deborah Dietrich media coverage as solid waste. - Pre-Natal Care. Uke much of New York Tompkins County's Department of Plan- state, and the United States, Tompkins Coun- ning is undergoing substantial reorganization ty women have been experiencing a growing to allow the Department to more quickly shortage of obstetricians and gynecologists. respond to requests for assistance by Although county population has grown, there municipal residents. As development pres- are fewer than two thirds as many OBGYNs in sures have increased over the past several Tompkins County than there were ten years years, a number of municipalities have turned ago. It's getting harder and harder to get an to the County for technical assistance in such appointment. areas as updating zoning ordinances and It is doubly hard for low income women,who developing master plans. Soon, the Depart- also have trouble paying for medical care..If a ment will have a"circuit rider"on board whose pregnant woman needs medicaid to pay for job it will be to provide this type of help. her pre-natal care, she may be unable to find The Planning Department is also coordinat- a physician to take her case. Some babies are ing a major public transit assessment. An Ad born at Tompkins Community Hospital whose Hoc Advisory Board on Public Transportation mothers have had no pre-natal care at all. This has been working over the past several may be one of the causes of Tompkins months to prepare a long-term transportation County's rising infant mortality rate. plan for the County. This is a crucial issue I think this is the least publicized important given current world events and rising gasoline crisis in Tompkins County today. As a mem- prices. As part of the reorganization of the •ber of the county Health and Education Com- ..e s I i mittee, I'm now learning as much as'I can' services without having to spend any extra tax about the details of this situation. I want to find dollars. ways to recruit new OBGYNs to Tompkins I always welcome calls from first ward resi- County, and to be sure basic pre-natal care is dents who have questions or ideas or gripes available for every Tompkins County baby. about county government. Call me at home - Human Service Red Tape. The county at any sensible hour at 273-1154. Human Services committee oversees several - county departments, as well as hundreds of thousands of dollars of county contracts with Temporary Bus Route Changes private agencies, such as Task Force for Bat- tered Women, HOMES, the Drop-In Center, Ithaca Transit Bus Routes #1 and #3 have and many more. Many of these important been combined into Route #3 due to the clos- programs are jointly funded by some com- ing of East Avenue on the Cornell Campus. bination of city, county, state and federal The #3 bus now leaves the Bus Station for governments, as well as United Way, founda- West Hill at 22 minutes past the hour during tions and private donors. the hours of 6am - 7 pm; and returns at 5 Unfortunately, multiple funders can corn- minutes before the hour from Day Hall on the pletely entangle a program in senseless red Cornell Campus. Ithaca Transit plans to re- tape. For example, a single program with six store Bus #1 and #3 to their normal routes funders may have to prepare six separate and schedules in the Fall of 1991. Until then, b+ +n special forms designed by each of the Ithaca Transit will closely monitor West Hill ser- funders. Program staff then are forced to vice for problems caused by the change. Bus waste their time on redundant paperwork, in- ridership has increased due to Cornell • stead of helping people. employee bus passes, and may continue to This year the board of representatives sup- rise with the price of gasoline. ported my motion to reduce the red tape in Schedule map for the currant Bus #3 route local human services funding by 50% over a is below. two year period. I'm really pleased to have found a way to improve and streamline human Ithaca Transit Triphammer Bridge i Detour I Effective May 29, 1990 ROUTE 63-DETOUR SCHEDULE 6:22 GREYHOUND(west) eS 6:26 HECTOR&WARREN PLACE 1 6:35 WEST VILLAGE 7 6:40 GREYHOUND(wTaw t) ToRd. • .1 6:45 WOOLWORTHS .2 6:50 COLLEGETOWN .3 6:55 DAY HALL i .4 7:00 COLLEGETOWN 2 .5 7:05 SENECA&TIOGA .6 7:12 GREYHOUND(mhos) 7:22 GREYHOUND(Issve) Campus Rd. .7 7:26 HECTOR$WARREN b4, .6 7:35 WEST VILLAGE .4 2 tv .9 7:40 GREYHOUND % 7:45 WOOLWORTHS s I i St i1 .6 .• W Si t.se 1 1 Onset St. E .s< t 4\ sioner for Tompkins County, the function of Report 1990 WHCA Annual Meeting county government, housing on Meadow St., resurfacing on Rte. 13, Hudson St. reconstruc- The WHCA Annual Meeting was held at the tion, solid waste, hauling waste, baling station Alternative Community School on May 17, and other issues. 1990. A short business meeting was followed The meeting concluded at 9pm followed by by an informational meeting with our City and refreshments. County elected representatives. Thank you to everyone who helped make Kathy Sprague spoke of the highlights of the our annual meeting and the past year a WHCA for the past year:tracking the progress productive one for West Hill. of Rte. 96; the slowing of development on West Hill; progress on the adoption of the Master Plan; and new business. A committee Don't Forget To Pay Your Dues! of Elm St. residents was formed to meet with city officials to advise on the reconstruction of Elm St. Please send dues to WHCA c/o Marie The annual meeting continued with the Tischler 152 Oakwood Lane , Ithaca, 14850 presentation of the slate of candidates for the WHCA Executive Committee for 1990-1991 Individual $4.00 year. The slate was approved as presented. Family $6.00 Following the business meeting each of Senior Citizen $3.50 our elected City and County representatives: Barbara Blanchard, Bob Romanowski, Deborah Dietrich, and Eric Lerner, spoke for a few minutes on topics they had been working on during the past year. The topics were • • -— - many and varied: the new Planning Commis- Ithaca WEST Bankers Dill EdeIman's END Group Pharmacy 1 C_ NORSTAR Full Line Discount Pharmacy BANK, NA Plenty of Free, off-the-street *"�s`,", PARKING! wise • 704 WEST BUFFALO STREET .8..�...xe 1836 ITHACA. NEW YORK 14850 60 MARINE AND ` 40ñrst 607-272-5566 0BANK Lett work ito1f0Dget'er." Federal Monday thru Saturday • 9 AM - 6 PM • All helping to make a better i t i n ! • community. Never any wa g APPENDIX C: Excerpt from "Improving Dialogue With Communities" Note: This publication deals with en- vironmental health risks. The princi- ples outlined here also apply to concerns encountered in public works. ons, NJDEP Assistant Commissioner Donald Deieso pointed out in an interview for ns this manual: "Since the 1970s, I've watched a change. In the early days ... when we came into a public meeting,we were believed. People walked away relieved or alarmed. depending on the message, but they believed us and felt that we were competent and had the best intentions. Now the presumption is that we're incompetent, that we have lap_ a hidden agenda, that they've got to ferret out the truth for themselves, and that the agency is an obstacle in getting to the truth." Deieso's statement reflects the frustration felt by many within agencies,who feel their expertise, experience, and commitment are unappreciated by the communities they seek to serve. Agency scientists and policy-makers are particularly confused and frustrated by ie of public reactions to environmental risk. Tempers flare at a public meeting concerning a ,- risk that the agency estimates might cause considerably fewer than one-in-a-million ling increased cancer deaths. Yet, people will smoke during the break and drive home without seat belts—risks far greater than those discussed at the public meeting. When agency scientists point out this apparent contradiction (ignoring the fact that smoking and driving without a seat belt are risks that people choose, not an environmental risk that chooses them), people become even angrier. Conversely, risks that the agency sees as serious—geological radon in homes, for example—can be met with relative indifter- A ence by the public. Agencies sometimes respond to such community reactions by dismissing them as irrational and concluding that the public is unable to understand the scientific aspects of risk. Consequently, agencies may believe that communities are in no posi- tion to make decisions about how to deal with the risks that confront them. But when agencies make decisions that affect communities without involving those communities. they often elicit even angrier responses. In order to break this cycle, agencies might begin by recognizing that communi- ties are quite capable of understanding the scientific aspects of risk assessment. 'The public" includes doctors, chemists, and teachers, as well as persons with less scientific background, who manage to teach themselves many of the technical intricacies of particular risk situations. In fact,while government personnel may change over the life of an environmental issue, residents of affected communities often remember studies. reports, and agency actions with an impressive amount of recall. Too often government assumes that because communities don't agree with an agency action, they don't understand it. Because outbursts of citizen anger make agencies understandably uncomfort- able, they also tend to forget that public outrage can be extremely positive. In fact. most environmental agencies and a significant number of the laws they enforce are the results of citizen campaigns, fueled by anger over environmental degradation. Funding for these laws, and consequently for agency staff, also depends in some cases on tough legislative battles fought by citizens. In addition, most agencies can admit to a number of environmental problems that wouldn't have been uncovered were it not for commu- nity action. On the other hand, agencies particularly resent anger directed at them rather than at the environmental problem. Unfortunately, agencies tend to act (often unwit- tingly) in ways that provoke such anger. In order to reduce the level of hostility between agencies and the public, those who work within agencies need to understand better how communities perceive risk. FACTORS IN COMMUNITY OUTRAGE Admittedly, public fears are often not well-correlated with agency assessments. While agencies focus on data gathered from hazard evaluations, monitoring, and risk assessments, the public takes into account many other factors besides scientific data. Collectively, it is helpful to think of these non-technical factors as the "outrage" dimen- sion of risk, as opposed to the "hazard" dimension more familiar to agency profession- als. Because the public pays more attention to outrage than the experts do, public risk assessments are likely to be very different from agency risk assessments. Ignoring the variables that influence public perception—or worse, labeling them irrational and then discounting them—is guaranteed to raise the level of hostility between community members and agency representatives and ultimately stand in the way of a successful resolution of the problem. Merely hammering away at the scientific information will rarely help. Most agency representatives can recall instances when explaining the science made little difference—or made people even angrier. While it may be tempting to conclude from this that laypeople cannot understand risk assessment data, research in the field of risk perception, backed by much anecdotal evidence, strongly suggests that other factors are at work. Below are some of the key variables that underlie community perception of risk—and community anger at agencies that treat these factors as irrelevant:' a. Voluntary risks are accepted more readily than those that are imposed. When people don't have choices, they become angry. Similarly, when communities feel coerced into accepting risks, they tend to feel furious about the coercion. As a result, they focus on government's process and pay far less attention to sub- stantive risk issues; ultimately, they come to see the risk as more risky. For example, if you dragged someone to a mountain, put boards under his feet, and shoved him downhill,your actions would be considered outrageous. Ask the same person to accompany you on a ski trip, however, and the picture changes radically. b. Risks under individual control are accepted more readily than those under govern- ment control. Most people feel safer with risks under their own control. For example, most of us feel safer driving than riding as a passenger. Our feeling has nothing to do with the data—our driving record versus the driving record of others. Similarly, people tend to feel more comfortable with environmental risks they can do something about themselves, rather than having to rely on govern- ment to protect them. c. Risks that seem fair are more acceptable than those that seem unfair. A coerced risk will always seem unfair. In addition, a community that feels stuck with the risk and gets little of the benefit will find the risk unfair—and thus more serious. This factor explains, in part, why communities that depend on a particular industry for jobs sometimes see pollution from that industry as less risky. d. Risk information that comes from trustworthy sources is more readily believed than information from untrustworthy sources. If a mechanic with whom you have quarrelled in the past suggests he can't find a problem with a car that seems faulty to you,you will respond quite differently than if a friend delivers the same 'Baruch Fischhoff. Paul Slovic, and Sarah Lichtenstein conducted much of the ground-breaking research that developed an understanding of risk perception variables. 1 news. You are more apt to demand justification. rather than ask neutral ques- tions, of the mechanic. Unfortunately, on-going battles with communities erode trust and make the agency message far less believable. While the above factors are those most frequently stumbled over by government agencies. social scientists have identified a variety of others that also can play a signifi- cant role. The following are also likely to be relevant to agencies dealing with environ- mental health issues: e. Risks that seem ethically objectionable will seem more risky than those that don't. To many people, pollution is morally wrong. As former EPA Assistant Adminis- trator Milton Russell put it, speaking to some people about an optimal level of pollution is like talking about an acceptable number of child molesters. f. Natural risks seem more acceptable than artJlciai risks. Natural risks provide no focus for anger; a risk caused by God is more acceptable than one caused by people. For example, consider the difference between the reactions to naturally occurring radon in homes and the reactions to high radon levels caused by uranium mill tailings or industrial sources. g. Exotic risks seem more risky than familiar risks. A cabinet full of household cleansers,for example, seems much less risky than a high-tech chemical facility that makes the cleansers. h. Risks that are associated with other, memorable events are considered more risky. Risks that bring to mind Bhopal or Love Canal, for example, are more likely to be feared than those that lack such associations. I. Risks that are "dreaded"seem less acceptable than those that carry less dread. For example, an industrial emission that may cause cancer seems much less acceptable to many people than one that may increase the risk of emphysema, even though both diseases can kill. j. Risks that are undetectable create more fear than detectable risks. As an experi- enced war correspondent said at Three Mile Island, "at least in a war you know you haven't been hit yet" Similarly, risks with effects that may take years to show up are more likely to be feared. k. Risks that are well understood by science are more acceptable than those that are • not. Risks that scientists can explain to communities seem more acceptable than those about which scientists have to admit a great deal of uncertainty. The greater the number and seriousness of these factors, the greater the likelihood of public concern about the risk, regardless of the data. As government agencies have seen many times, the risks that elicit the greatest public concern may not be the same ones that scientists have identified as most significant. When officials dismiss the public's concern as misguided, moreover, the result is controversy, anger, distrust, and still greater concern. None of this is meant to suggest that people disregard scientific information and make decisions based only on outrage factors. It does suggest, how- ever, that outrage also matters. and that by ignoring the outrage factors, agencies skew the balance and cause people to become still more outraged. This is the logic that leads to the guideline that follows. 7 t Pay as much attention to outrage factors, and to the community's concerns. as to scientific variables. At the same time, don't underestimate the public's ability to understand the science. Agencies too often focus on the data and ignore the outrage factors. They pay the price for doing so. Insistence on dealing with the "right" risks, the "right"way, may seem to many outside the agency as arrogant at best. If you fail to attend to the out- rage factors and people's concerns from the outset, you will often be forced to attend to them later, after you have angered the public—a far more difficult situation. Unfortunately, this manual is full of examples in which this has happened. Agency practitioners can recall far more horror stories than success stories because it is still unusual for agencies to attend consistently to variables other than scientific ones. There are many examples of agencies failing to realize, for example, that communities resent risks that are imposed and not under their control. As a result, communities which were not consulted during the decision-making process more readily fight agency decisions. Similarly, agency representatives have also been shouted down when trying to present data because communities have felt their concerns were not acknowledged. much less addressed. Nonetheless, there are examples of agency successes. The New York Depart- ment of Health asked office workers their concerns and gave them opportunities for input following a fire that contaminated their office building with dioxin. Trust was built in the process. NJDEP listened to—and responded to—community concerns in Clinton where extremely high radon levels were found, leading to a community response to NJDEP that seemed far more positive than in many other instances. In Virginia a developer involved the community in the risk assessment process, building sufficient credibility that when the risk assessment showed negligible risks, the results were believed. In most of these instances of success, communities that were consulted about their concerns were also helped to understand the science, and their understanding seemed to increase. In short, response to risk is more complex than a linear response to the facts." This does not mean that people don't need to know—or want to know—the facts. It means rather that agencies need to take into account other factors as well. YES, BUT.... • Our job is to protect public health. That means relying on data, not dealing with outrage factors. There are basically three responses to this point. First, if you merely run with the data and ignore the outrage factors, you will outrage the public. As a result, risks the agency deems minimal will become battle- grounds. Agencies will have less time for serious risks. In short, one way or another agencies will have to deal with these factors. Second, in a democracy controversial issues are not merely determined by those with technical expertise. To use an analogy, the experts in the Pentagon have great technical expertise in weaponry, but few people, regardless of their political beliefs, feel that American defense policy should be determined solely by the Pentagon. Third, data are not always complete, and management options are rarely perfect. The public's raising other concerns can lead to better technical solutions. • If it were not for advocacy groups, there would be no outrage. As anyone who has tried to organize a community can attest, it is hard to create outrage when none exists. Advocacy groups can focus or direct the community's anger, but rarely create it. In fact, most environmental activists count on government to create the outrage. Unfortunately, in many cases where environmental officials blame public- interest groups for blocking solutions,the blame needs to be shared by the officials themselves,who unwittingly goaded the outrage by failing from the outset to listen to community concerns. Instead of blaming citizens for not understanding risk, in short, agencies might spend more time trying to understand outrage. II. EARNING TRUST AND CREDIBILITY Agencies achieve trust, in large part, by being consistently competent, caring, and honest. If you communicate with honesty and fairness,your audience will often respond in kind. If you fail to do so, trust is unlikely. Trust is rarely built through slick packaging; a veneer of honesty is easy to see through. According to James Callaghan of Hill and Knowlton, the only way to achieve credibility is to "be credible." Trust and credibility are fundamental to many of the stories told by practi- tioners for this manual. The stories go two ways: interaction between the agency and the public builds mutual respect and understanding ... or degenerates into antagonism and hostility. While many of the stories have their ups and downs, those consistently marked by anger and tension tend to end with regulatory action, legal intervention, or abandonment of agency plans. In most cases the practitioner could, in retrospect, identify a point at which the ending of the story was predictable. Problems with trust and credibility were at the heart and were often linked to the agency's failure to commu- nicate openly or to involve the public early. Of course, even if you deal with communities honestly and involve them in the decision-making process, there is no guarantee that they will agree with the proposed action or that all concerned will walk away happy with the resolution. Also, most experts and practitioners concede that a small segment of the public will not trust you no matter how trustworthy you act. However, if you fail to "be credible,"you will virtually guarantee people's opposi- tion. That opposition will express itself as a confusing mixture of resentment of the agency and disagreement with the science. As Baruch Fischhoff of Carnegie-Mellon University explains, When people are mad, they'll fight on whatever issues they can fight most effectively ... and risk is the Achilles heel of technology." The guidelines in this chapter offer a framework for the more specific recommen- dations that follow in the rest of the manual. While they may seem obvious, these guidelines are often overlooked or ignored. 1. Be aware of the factors that inspire trust. Trust of an agency depends, in large part, on the answers to five questions: (a) Does the agency seem competent? (b) Does the agency seem caring? (c) Does the agency encourage meaningful public involvement? (d) Does the agency seem honor- able? and (e) Is the agency taking outrage factors into account when dealing with the public? Agencies and their staff need to be asking these questions of themselves con- sistently. In essence, instead of pushing the public to trust them, agencies should strive towards acting consistently trustworthy. 2. Pay attention to process. Process is (almost) everything. Everyone—academic experts, practitioners, and citizen leaders—agrees that the process by which agencies make decisions is crucial. According to Baruch Fischhoff: "People read the agencies and their actions more carefully than they read the details of the studies.... That's what we have some general- ized skill at. If the process works, that's all you need to know." In most stories that involved citizen opposition to a government proposal, the opposition was not only to the action but also to the manner in which the agency proceeded towards that action. Ann Fenn of the EPA Superfund program says that many times the obvious is overlooked: "Lots of times ... the telephone calls aren't made, or enough fact sheets aren't taken, or enough individual person-to-person briefings aren't done...." Bruce Bentley of the New York Department of Environmental Conservation says that the controversy over what to do with the PCBs in the Hudson River has been about process more than science. From the beginning, says Bentley, the public was not fully involved in the process. A disposal site for the dredged PCBs was selected without involving the public in either the development of the site selection criteria or the actual selection of the site: "We failed to involve people in determining what the criteria for a site should be and then went ahead and selected the site and then told them, 'Here's what criteria we used and this is what the site is.' By that time, people were not willing to buy into the criteria and certainly, therefore, not willing to buy into the site." Joan Gardner of the Massachusetts Hazardous Waste Site Safety Council says that the "developer-driven" process of selecting sites in Massachusetts shuts the com- munity out: 'The community comes to the table because the state makes them," says Gardner. It doesn't matter that the state is giving the community money to hire its own consultants, because the site has already been chosen by a developer who has been solicited by the state. By the time the community finds out about the proposed site, it is the outsider and uses its consulting money to try to find ways to fight the facility. 3. Explain agency process. Agencies can improve relationships with the community by providing an under- standing of government's internal workings, which are often a mystery to people outside the agency. Communities need a better sense of why agencies and their representatives behave as they do, says Raymond Neutra of the California Department of Health Serv- ices. He says that because government agencies are analogous to black boxes that the public can't see inside of, it is important to open up the "box" and demystify the proc- ess. Bruce Bentley adds that it is also important to explain where the public can fit into the process. Barker Hamill of NJDEP also stresses the need to show that government func- tions in a logical manner. Hamill cites a case in which private water-supply wells were contaminated. At a public meeting he and other agency representatives explained the agency's problem-solving approach and constraints as well as the technical information. "Sometimes people want to see that you've put an effort into the problem." says Hamill. 4 4. Be forthcoming with information and involve the public from the outset. There are numerous examples throughout the manual, especially in Chapter III, "Deciding When to Release Information." that illustrate loss of credibility because an agency held onto information too long or failed to involve the public from the outset. In most of these situations, once credibility was lost it was difficult or impossible to regain and the situation deteriorated. Practitioners recommend being up-front with all infor- mation—good and bad—or it will come back to haunt you later. Early involvement of the public can lead to a cooperative effort to solve a prob- lem. Alternatively, interest can dwindle as the public finds that its major concerns have been addressed. Failure to involve the public early, on the other hand, causes the public to mistrust the agency and puts the agency on the defensive. Thomas Burke of the New Jersey Department of Health says: "When you are faced with difficult decisions, the effectiveness of implementing those decisions has to do with the public trust in you.... An agency has to develop credibility by showing that it is responsive, that it is involving the public in the decision-making process, that it is open to suggestion, that it is a two-way street, that the decision-making is a dialogue between the affected publics and the agency. The best way to shut out credibility is to shut out that process." S. Focus on building trust as well as generating good data. Agency scientists are dismayed when their science seems to be overlooked by the public. As we have discussed previously, however, people's risk judgments are seldom based solely on the data, but rather on a combination of the data, their percep- tion of the risk due to other variables, and their feelings about the agency. Agencies should monitor not only the environment but also the impression they create. In the controversy over whether to dredge or leave PCBs in the Hudson River, Bruce Bentley says that there are basically two choices: to leave the PCBs in the sedi- ment and water column or to remove them and place them in containers in secure landfills. Although this is by no means an easy decision, Bentley feels that the public's responses have more to do with lack of faith in government than with the scientific information: "They [communities] don't trust government, and therefore despite the fact that it would seem logical that containing them in one place is better than leaving them free in the environment ... because they don't trust us they forget what is logical. The reason they don't trust us is that we didn't involve them in the decisions." 6. Follow up. Get back to people. Do what you say you are going to do. Check to see if what was promised actually happened. These suggestions may seem overwhelmingly obvi- ous. but they are not easy to implement. Few officials arrange to have notes taken about the small and large commitments they may make during a public meeting. Even fewer go as far as NJDEP's Grace Singer, who has her staff follow up with memos to officials about the promises they have made. Singer's staff, whom she calls"profes- sional nudges," also keep track of whether the commitments are carried out. Without such a system. staff at all levels of the agency would be hard-pressed to know if commitments were being kept. Just as important, there should be a clear system for handling telephone calls from the public, to avoid their being bounced endlessly or falling through the cracks. Singer gives people her name before transferring calls and promises that if the person to whom she has referred the call is not appropriate, she will handle the matter herself. Susan Boyle of New Jersey's Hazardous Waste Facilities Siting Commission feels it has been critical for her to return telephone calls from people considering whether to buy homes near a proposed site, and then to explain the process as clearly as possible. 7. Make only promises you are sure you can keep. Agency employees are often tempted to make unrealistic promises when pressed by the public. Or they promise something they genuinely expect to be able to deliver, only to find out later that they can't. Grace Singer says she has learned to be extremely careful about making commitments, because Superfund is so technically and adminis- tratively complex that progress can be slow. Instead she states goals, with an explana- tion that there could be hold-ups. Perhaps most important, her bureau gives people progress reports in the interim. 8. Provide information that meets people's needs. Agencies should anticipate what people need to know in order to make deci- sions. (See Chapter V, "Explaining Risk.") Agencies should not only answer questions that come up at meetings but also prepare ahead of time for questions that they feel the public might ask. (See Chapter IV, "Interacting with the Community.") Additionally, agencies should give people the information they need even if they don't ask for it. Bruce Bentley says that often communities do not know all the questions to ask to get at the information that is important. Agencies should point that information out to communities if it is key for communities'understanding of the problem. Citizens sometimes accuse agencies of stonewalling—that is, refusing to honor requests for information and instead providing rationalizations for the refusal. If there are reasons why you must withhold information, they should be explained. 9. Get the facts straight. Clearly, agency representatives work hard to provide information that is accu- rate. Occasionally, however, wrong information gets to the public, or key information is left out that causes people to feel misled later on. Make sure that all information has been checked and double-checked for accuracy, and that it is complete and truthful. If a mistake does slip through, acknowledge it and correct it as soon as it is discovered. Don't assume that people overlooked it. It is important that agency scientists are seen not only as competent but also as honest. While getting all the data and other information correct will not guarantee trust, inaccurate or incomplete information will almost guarantee distrust. 10. Try to coordinate with other agencies. Practitioners say that when agencies do not coordinate their actions and their responses to the public, the result is very confusing. Ultimately, trust is eroded. When there are honest differences of opinion among agencies, they should be acknowledged. (Of course it is difficult for agencies to deal with these differences on an ad hoc basis. In some areas of the country, regional boards consisting of the health and environmental officials from several states encourage discussion and consensus among participating agencies.) More often, however, agencies give different responses because they have failed to coordinate sufficiently. Marc Alston of EPA Region VIII says that when the EPA Superfund program found trichloroethylene (TCE) in wells surrounding the Rocky Mountain Arsenal in South Adams County, Colorado. neither the EPA drinking water program nor the state health department had known that EPA had been sampling the wells for the contaminant. To make matters worse, different messages were given out at different times by the various agencies. Initially, people were told that the levels they were finding were not an immediate problem because the proposed standard was based on lifetime exposure and the contamination was relatively recent. Several months later, the health department advised people to drink bottled water. People found it very difficult to decide which agency they were supposed to believe, and basically felt that all the agencies were in "cahoots with the Army."which the people blamed as the source of the problem in the first place. (Subsequently, other sources were identified.) 11. Make sure to coordinate within your agency. Lack of coordination within the agency creates confusion and an impression of agency ineptness. Responses to various issues should be consistent from one division to another, or the differences should be acknowledged and explained. (See Chapter IV. "Interacting with the Community.") Richard Dime of NJDEP says that an agency increases its credibility problems "by having ten different people give ten different answers to the same question. The public gets a different viewpoint depending on who they are talking to. It gives the impression that no one knows what they are talking about." According to Dime, "If someone asks, 'Should I shower with this water?, I might say'no.' Someone else might say'yes.' And someone else might say'yes,but.'" Dime says that the problem is not the difference in technical analyses so much as the internal organizational problem of how to coordinate a response. 'We don't share enough internally about how to apply it [risk assessment] and how to share it with the public.... [There is] not enough internal guidance on how to deal with these issues." 12. Don't give mixed messages. Risk issues are difficult for people to understand and deal with, and agencies frequently make the situation worse by giving the public mixed messages. For example, agency safety policy may dictate that under certain conditions field personnel must wear protective gear while collecting samples. However, says June Fessenden-Raden of Cornell University, "Don't tell [the community] there is nothing wrong and then come in and sample with moonsuits on." If you have to take an action such as this, which may seem inconsistent, explain before you take the action in order to reduce confusion. Likewise, the agency's multiple objectives may at times seem conflicting to communities. An effort should be made to review agency objectives for congruence and address up-front those that may seem disparate. Agencies may not be aware of the mixed messages they give—for example, saying that a particular action or facility is low- risk and then issuing regulations or criteria that imply a higher risk to those outside I I the agency. As a citizen asked at a hazardous waste facility siting hearing: "If it's too dangerous to put where there are endangered species of animals and plants, isn't it too dangerous to put where my children live?" Another example, says John O'Connor of the National Campaign Against Toxic Hazards, is the conflicting messages about Superfund. Top officials, says O'Connor, have stated that there was no need for expanded funding for Superfund because they could not possibly spend that much money. However, he says, site managers say that the agency doesn't have the resources to clean up a site as fully as the community is demanding. O'Connor says that these different messages create a situation in which no one is trusted. 13. Listen to what various groups are telling you. Avoid offending any group. Some agencies have had running battles with activist groups. Officials in sev- eral states have suggested that were it not for outside "rabble-rousers" coaching local communities, the agency would encounter relatively little opposition. However, as pointed out previously, agencies overestimate the power of activist groups. These groups can't create outrage; they can only focus such feelings and direct the energy. In • most cases when communities are angry, the agency precipitated the hostility and the activist organization took the opportunity to make a case. Agencies should try to be particularly aware of seeming insensitive. Kay Jones of Pennsylvanians Against Radon tells the story of an agency spokesperson who said in a newspaper interview that the affluent communities were handling the radon problem well but the people in Jones's area were different and would cry over anything. Jones and her neighbors were deeply offended and felt that the agency thought they didn't deserve to have a voice because they weren't wealthy. 14. Enlist the help of organizations that have credibility with communities. It may be helpful to the agency to enlist the help of trusted and respected groups to explain risks. Some agency representatives have worked with such groups as the League of Women Voters in helping to educate people about risks. Others—Brian Strohm of the New Hampshire Division of Public Health Services, for example—rely on groups that involve a range of experts, such as the Northeast Center for Environmental Health, to help them provide answers and lend them increased credibility. Still others, such as Raymond Neutra of the California Department of Health Services, have used the advisory group concept to communicate with and involve interested parties. In some instances, practitioners have used physicians to help them communi- cate environmental risks to people, because doctors have a sort of"built-in"credibility with their patients. This works only when the exchange between physicians and health or environmental agencies is on-going, however, because the physicians need to be up- dated about epidemiology and other environmental health issues. Agencies can also work effectively with groups that disagree with them on some issues. For example, if a group disagrees on the extent of the risk, but agrees on a recommendation, it might be helpful for the agency to acknowledge the area of disagree- ment while citing the recommendation: "Citizens for Clean Water have said that the risk is greater than our estimate, though they agree with us that bottled water isn't called for at this time." Of course, be sure that you are citing the group accurately; the goal is to build—not tear down—trust. Associations such as those described may enhance credibility,but agencies cannot rely on them to replace agency forthrightness or community involvement. Ken Brown of the New Jersey Environmental Federation cautions that there is a distinction between using other organizations as a front and working in partnership with them. Further, says Brown, agencies cannot expect groups to want to work together unless the agency is addressing their concerns. Brown notes as well that agencies are often not familiar enough with the community to identify correctly the groups that have credibility. 15. Avoid secret meetings. When trust is high and the public is actively involved in decision-making, the agency has leeway to conduct private meetings. However, when trust is low, even routine private conversations can look like evidence of untrustworthiness. This does not mean that the agency should conduct all its business publicly, rather that it should be sensitive to community concerns about secrecy. Obviously, there are distinctions between different types of meetings. Casual meetings—the routine turning of government wheels—are generally not suspect. Pri- vate meetings—those that are closed to the public—are more suspect, and agency staff should ask whether there is truly a need for privacy. If not, open them up to the public. Secret meetings are the ones the agency feels that it can't afford for people to know about. However, these are the very meetings that the public eventually hears of. When this happens, the agency loses trust and credibility because of the cover-up. Consequently, a private meeting that you must keep secret is rarely worth the cost in credibility. You probably should open the meeting or, at least. inform people that it is happening—and be prepared for questions about the secrecy. If you want to hold private meetings with industry or elected officials or local government agencies, it is usually wisest to schedule meetings with community groups soon after, and to tell all parties about both meetings in advance. Better yet, solicit community input about other groups you should contact. (See Chapter IV, "Interacting with the Community.") Bruce Bentley says that some aspects of the siting of a dumpsite for the disposal of PCB-contaminated river sediment were decided at closed meetings with town boards. He attributes some of the resulting citizen opposition to this type of"private" activity and to the public's not being at the center of the decision-making. Faith Schottenfeld of the New York State Department of Health says, "One thing we learned from Love Canal is that secret meetings are a disaster.... Even if you're not hiding anything, the damage that's done ... is so extreme that you're better off having an open meeting where nobody understands what's going on." In the case of the Bing- hamton Office Building fire, the department decided to make all working sessions of the technical risk assessment committee open to the public and the media. The committee, which consisted of people from the county and city, union members, and technical people not connected with the health department, held all discussions and made deci- sions in full view of anyone who wanted to attend. Schottenfeld says that the meetings were not "public information meetings,"but that there was time allotted for questions at the end of each session. (Other meetings were designated as public information meet- ings.) In addition to avoiding the suspicion that surrounds a closed-door meeting, Schottenfeld says that there were other advantages to the open meetings: "It was interesting to see that the people on the committee were struggling with the same kinds of issues the people [in the community] were. It was really helpful for people to see the kind of interchange that went on between these 'experts'when it came to making difficult decisions." From a community relations standpoint. says Schottenfeld, the open meetings gave her an opportunity to prepare background materials for people and to assist the media in their coverage of the situation. 16. If you are dealing with a situation in which trust is low. consider taking the following steps. a. Review the outrage factors listed in Chapter I and the guidelines in this chapter, and consider which ones may have been violated. b. Acknowledge the lack of trust: "I know you may feel I can't be trusted because the person who handled this case before me delayed in giving you informa- tion...." c. Indicate what steps you plan to take to prevent the trust- eroding actions from happening again: "In order to make sure you get information as quickly as possible, I am going to send you biweekly updates about the status of the situ- ation. These updates will include all new data? d. Ask those who distrust you what they feel would make them more likely to trust you. To the extent possible, implement their suggestions. e. Personalize your responses when appropriate. (See Chapter IV, "Interacting with the Community?) f. Try to reduce the need for trust by sharing information and involving the public in developing solutions to the risk problem. (See Chapter IV, "Interacting with the Community.") g. Be patient. Don't expect all the people to trust you all the time, even if you feel that you are totally trustworthy. The practitioners interviewed who had recouped trust spent considerable energy doing so. (See, in particular, the stories related in Chapter IV.) Expect to go out of your way for people and to bend over backwards to meet their concerns. If you are the person who aroused the distrust (as opposed to walking into a situation damaged by someone else's mistakes), try not to be defensive. Acknowledge your mistakes. Expect to work twice as hard at the above steps. YES, BUT.... • It seems that no matter what we do, some people will never trust us. True. However. the fact that you can't earn the trust of all the people all the time does not imply that the agency should forgo making the effort to be trustworthy. It may take some time to overcome a long history of distrust. The agency should check to make sure that—despite its commitment to trustworthiness—there is not some basic violation of the principles in this manual. (The best way to find this out is to ask those people who don't trust you why they feel as they do.) The agency may also be confusing trust with agreement: people can trust each other's integrity and still disagree on fundamental issues. ifo ••..12 Planning July 1988 i-,...,."' Ll• vibudi Jlmulatjon anal Animation Technique D— The Next Picture Show: The Next Picture Show APPENDIX D2. Examples of Graphic Sim- a Lewis ulation to Show Mitigation f and Other Actions Young Associates, LA To David Ciaccio,paper is a thing of the cludes an IBM PC AT with one hard disk Ciaccio says that,while it's no cheaper or past.Ciaccio,owner of an Omaha plan- drive and one tape drive, a Minolta cam- faster to produce video simulations than ning and landscape architecture firm, is corder, and a JVC editing deck. For soft- traditional renderings, the audience is in- using a combination of videotape and still ware, he uses a Truevision product. variably more enthusiastic about what they photos for planning presentations. What To produce his simulations,Ciaccio starts see.Even a heavily retouched image looks he's come up with is a low-cost version of with a videotaped scene.This is transferred more realistic than an artist's rendering. the simulations that others are doing with in digital form to the computer,where it can "People believe what they see on television" expensive scale models or sophisticated be retouched or combined with other im- he says. CADD systems. ages using Truevision software.An editing In Council Bluffs,Ciaccio offered recom- Ciaccio first used his system in Council deck is used to combine the altered images mendations for upgrading an unsightly Bluffs,Iowa,where the Iowa West Racing with other videotaped scenes,resulting in commercial strip that is also the main route Association(the nonprofit group that runs the simulations. to Omaha, across the Missouri River. He the local greyhound racetracks)contracted with him for a preliminary plan to upgrade West Broadway, the city's 20-block corn- .. mercial strip.Later,as a result of local tele- }, vision stories and a Wall Street Journal • article,he began to branch out,using video �ttil�I Nc t•,: ,yt,7 for a variety of site planning projects. In- s a► k,..._. terest in his technique has been so wide- ' _„ spread that he is thinking of spinning off a - --- :. • separate company to use video for nonplan Ciaccio begins ,. �I t ` — �" ning uses,including surveying,interior de using°video camera ": '_ .__ ,,. sign,and real estate appraisals. to record scenes as ..- •. ._..s++mow+ •' ' + " Ciaccio calls his product visual simula they now look.Here: '1........ _. _ i `. '.;• an intersection on ::.-+�t•-'ow. tion; others call it image editing, image West Broadway in f processing,or electronic cut-and-paste.To Council Bluffs. ! show how a site could be changed, he r makes a videotape of it and then adds other images(photos,drawings,models,maps). • 4. The result is a more lifelike television sub- stitute for traditional renderings. • P.,' ..- -iv': One drawback is that the images are sta- . tionary,not animated;animation,Ciaccior' �' c says,would require more computer mem- After the video scene is a! •• _ ory than his small firm can afford. At the • digitized into the .• a - , moment the microcomputer doesn't have computer,sample areas • • •. � w .. the horsepower for animation,"says Brian of the°dj°cent sky c°" >� _ I Orland,a pioneer in simulation techniques - beckoned'tocaver _ ! who teaches landscape architecture at the — �` ' University of Illinois in Urbana."Increas `'F::;..."." ., ing realism is accompanied by increasing , v costs." .9 Without animation,Ciaccio cannot repli J cate a windshield survey of a street,for ex ample, or a walk around a city block. Nor , , Rr •.'•,�,. �;i I can he change images on demand during a Finally:shwa b s. -', - - �j;,, tr . presentation—to show what a building bledatayileg,and S • •itt+:Y:4 .. would look like if it were oriented differ ` . . -- vonwet, entlyon itssite or if it were shorter or bulk ,•��•, atm' • ,`': • _� ,,,�..� h:' ier. That type of animation is next on his t' �'" , agenda. '�'scads tbre breast - ` — F.. - - whichwhichcan b1 ... .-. '� \`. 1, it , ,:p. ,i,, ,1 •nonsfernedbaehto 't, .f t. What Ciaccio has come up with is a rela- ° r tively cheap way to produce lively presen- Nn.--_-;� .. _ tations. The equipment and software `` needed to produce his video simulations • cost about $20,000. The equipment in- 13 For planning presentations,video simulations offer some persuasive advantages. videotaped all 20 blocks and then added fer 35mm color slides to videotape. In ects:design concepts for a 15-mile stretch 'i photos to show what the strip would look addition, AutoCAD images can be super- of U.S. 101 in Oregon;siting new roads and like if trees were added—and overhead imposed on videotape or sandwiched onto bridges on national forest land in Arizona; power lines and freestanding signs were aerial photos. Finally, the end product of design guidelines for highway corridors in taken away.Both the city and the racing as- video simulation can be something besides Thousand Oaks,California;and proposals sociation liked what they saw and hired videotape—photos or slides, for instance. for scenic overlooks along the Columbia Ciaccios firm to help put the changes into Charles Cornwall, an environmental River Gorge. effect.Seven projects are now in the works, planner with the San Francisco office of To produce his simulations, Cornwall and he is involved in all of them. consultants Dames and Moore, says his uses photos,CAD drawings,and digital ter- Ciaccios is not the only method of video firm is using a variety of video simulation rain data from a geographic information simulation.Instead of superimposing still techniques for both big and small projects system as well as videotape.He notes that photos on videotape,other planners trans- on the West Coast.Among the major proj- videotape is never wasted;besides simula- tions,it can be stored as documentation and to provide backup for field notes and aerial photos. What's ahead - As for the future of video simulation,Ciac- cio says animation is definitely the way to go.Meanwhile,though,he continues to get An agricultural coop inquiries not only from public agencies but wanted to preview the results of moving a from a slew of private firms ranging from • liquid fertilizer tank to sign companies and utilities to real estate t a containment developers and appraisers,telecommuni- ,, _- ' .!•7 structure,required by a cations companies, and the fast food in- .-1 .. new state law.First the dustry. -- "— —�- existing scene was Other experts also see an expanded hori- _- _ � videotaped. zon for video simulations.Joseph Gerdom, a planner with the Lincoln-Lancaster ------....,...„4.. County Planning Department in Nebraska, says that site plan review would be much improved if public agencies used video • simulations to assess development Adjacent ground cover proposals.His agency is taking the first step and sky were cloned in by budgeting for software that can be used • to mask the big tank. The mixing equipment for simulations. �I . •A , , . • in the rear was put "Video simulations are to the built en- E L? 4' into the picture by vironment what Lotus 1-2-3 is to financial ~ _ : , �' , -,!„&„„,= -- - -....it combining two images, calculations;'he says.In other words,both — Iphotographed from systems extend the possibilities for playing •'17,:.,•..;„,., points on either side of with new ideas. Y —• ----_... ,�.., the tank to be removed. One caveat: Having used video simula- �=— • tions for the last 18 months,Chuck Corn- wall says that,while the planning benefits are obvious,there are potential problems, too.Above all,he says he worries about bad simulations—those that look good but are Finally,a second tank based on weak field work or sloppy analy- wasplaced beside the sis.The result might be completed projects rzxone at the right,and a that look only vaguely like the simulations r�: ' • _ new containment presented during public hearings.To avoid ,it I;.7 structure,concrete pad, such an outcome, he suggests that public r .... •;. + - - - --- and truck loading area agencies should take a hard look not only at �I s were added by drawing .t simulations but at the background data —_ - Iii,-..'‘ _ .,�";:; directly on the screen. t used to create them. - • - Sylvia Lewis is Planning's editor and associate publisher. t D -Z • f �� C n St `. s . <sN'' 4 <St ( < Lare ' t : Ifi t�py IJ �,y���'aM� �• ��' �M` �. 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J S� + x 3G `: tom' \?C 2 vac• E q rt > h { t { #: APPENDIX El."Call to Order" E. 1 16 Planning November 1990 APPENDIX E2."More Than A Public Hearing" Two articles with insight into public ------? N . meeting conduct/organization C Call to Order By Elaine Cogan An expert tells how to run more effective public meetings and hearings. 10)Dards,commissions,corn- another language if the au- may have a point.A welcoming = i Dmittees, task forces, fo- dience warrants it. environment is essential for the • ���"��, rums, workshops, strategic Before composing any notice success of a public meeting. •• planning sessions—meetings to that is sent or delivered to the Sometimes planners have no • get information and give infor- public, think first about what choice; the meeting must be • mation,to seek advice or solve will motivate the public to at- held in the city hall boardroom • / problems. So many meetings tend.Then consider the infor- or some other,similar location. / !. :f and hearings take place every mation that needs to be con- If there are options,pay atten- day that, by now, you'd think veyed. The notice must cover tion to the following: • l 1 we we would know how to do these points clearly and • Location, location, loca- • t �� • • • them right. succinctly: tion. Your ideas will go over i , . . Yet all too many public • Purpose of the meeting. better if they are presented in a • �` ; 1 meetings—those called by You'll be clearer about this if site that is acceptable to the ma- • + government officials and open you take time to figure out your jority of the participants.Chose Z W to the public—are disappoint- objectives beforehand. a site that is well known and - " iii ing to both sides.And planners • Date, time, and place. easily reached by the people - Z ! often find themselves caught in Don't bury this information in you are inviting. • the middle between elected of- the text or assume that Schools,churches,and corn- ; �, ficials with political agendas everyone knows the location of munity centers most often fill and angry citizens seeking a city hall. If there is available the bill because they are cen- solution to an immediate parking or access forthehandi- trally located, generally pro I , :':_/ problem. capped,say so. vide parking,and are often ac- , c I�lEih 4�'' What follows is a description • The public's role. Will cessible by public transit.In ad !f + t�l„tl�l+�i of some of the mistakes most citizens be allowed to present dition, rental charges are usu- + jjIIIIIi1 itt commonly made in preparing testimony or information?Will ally minimal,and the facilities `/ l for public meetings—and sug- decisions be made, and what can supply the chairs and vii/ _�11�} gestions for avoiding them next kind?Make clear how the ac- tables needed for the meeting. , ASP•�p :.' time. tions taken at the meeting will Maintenance people are also R affect citizens. available. If the meeting is 'a•ie`;!f!`` Get the word out • Optional explanatory likely to be controversial,hold // \• ID, •i•1elf f Reader-unfriendly notification material. Here is where you it in a school library; people s is a common problem.A typical can attach your legal form as won't shout there. • '' 1 scenario: The notice of a well as illustrative maps and • Signs. Even with a well- / II "I1, meeting on a proposal to rezone charts. known location,don't assume // c a property from single-family Lining up cosponsors is also that everyone will know ex- (1r ' residential to commercial ar- a good idea—the more the bet- actly where to go.For example, l rives at a neighbor's doorstep ter.Ask each cosponsor to send adults who haven't been in a 1'11 ii , along with a pile of bills and 10 people to the meeting. Fi- school for years may not know I junk mail.The notice looks of- nally,send community leaders that media center is a new term Il ', ficial, so it probably is not special invitations. Find out for school library. Post clear / thrown away. But when it is who they are by checking with and readable signs to direct --------- opened, the reader finds a the planning commission, the people to the meeting. / � _ }. single-spaced, jargon-loaded chamber of commerce, the ••Date and time.It should be // e ` missive that is nearly impossi- mayor's office, real estate obvious that planners who ex- ble to decipher. groups. pect the public to attend their `` Planners often justify the meetings should schedule .A . legalese by claiming "the at- Chose the site with care them for the convenience of the �------- torneys make us do it." But We laugh when we hear of public. This usually means even if such language is needed diplomats spending weeks sometime in the early evening chairs may hamper discussion. i to protect against lawsuits,it is arguing over the proper con- or on a weekend, not during The sloped floor and fixed seats , still possible to translate the in- figuration of tables and chairs normal business hours. of a college lecture hall, for formation into understandable, in preparing for an important • Room set-up. The wrong example, may work well fora concise English—and into international meeting.Butthey configuration of tables and professor imparting wisdom to T., r • 17 L A N N I N G R A C T I C E OJ \\ ,�,,.,,,,\\\\\. and tables;adequate wall space presentation sets the tone for 0 for posters, charts, maps, and the discussion that follows , \\�'S..� MEETINGS other illustrations;ample and The first step in organizing ME nearby restrooms. any presentation is to think about who will be in the 1 a Think visually audience—and what those peo- ,77 Too often, planners rely on pie need to know. That may i. audiovisual aids as their mean a different approach for a / primary means of conveying presentation toaplanning com- 11111 _—' information to the public.They mission than to a city council— ©• 7TfflT should,instead,use the audio- or to a community meeting. 0 visual devices to supplement Other points: and reinforce their verbal • Choosetherightpersonto -MtIII message. make the presentation. Plan- .....---•--, illii go a a_ Materials available range ping directors can get them- from the simple—plain butcher selves in trouble by always in- paper and blank charts; sistingontakingcenterstage.A Y chalkboards or whiteboards; staff member may, in fact, graphs, maps,and diagrams— know more about the subject at \if-``�� ( to the more technologically hand.Often,the best role fora sophisticated—overheads; department director is to chair Qi"1©(r videotapes; slides. Planners the meeting,while leaving the 1,-,Ii 'A/// preparing for a meeting should technical presentations to the l/�/►rbe ready for any eventuality; experts. sr,\; 1 hill�/1 / that means bringing projector • Translate the bureaucratic Q�� bulbs, extension cords, mark- jargon into commonly used i , �/� ing pens, masking tape, and words and phrases. other necessities.In our office, • Keep it short. Break up \ \ ) we stock a meeting first aid kit long presentations into small W. .. ,>":,? Nr. ii.)1 that we always take with us.It segments, presented by dif- I. � � is equipped with all the above ferent people.The first(maybe g 1 11 j essentials plus a bottle of the planning director(gives an A o GESi , / /�I aspirin, which sometimes overview, the second, the r becomes the most important details. The third speaker aid. should be a technical expert iii Practice using the audio- who can answer questions. ► visual aids so that you can point • Always rehearse, even if 0 / It/ to charts and graphs without only around the water cooler. / /! '//I// \ uI completely turning your back Make sure the important points )i. , on the audience. Most impor- are covered, and eliminate QNM \ / tant,keep in mind that one pic- redundancies. m \ ture is indeed worth 1,000 • Admit your stage fright. , w'v words—but only if it is the right You'll probably find that others h , ra' picture. suffer from it as well. Keep slide shows under 15 The same rules apply to par- minutes. And keep-the lights ticipants in a panel discussion. '_ on;people tend to fall asleep in One addition: If you have a a dark room. choice of a position,volunteer to be either first or last. A The art of public speaking skillful lead-off speaker sets the Well-organized and well- tone for the discussion,while a ager college freshmen, but features: flexibility to accom- presented remarks help plan- good summarizer leaves a reate an atmosphere that dis- modate unexpected crowds; ners set the scene for a produc- lasting impression. ourages audience interaction. proximity of presenters and au- tive public meeting.While too Meeting rooms for public dience; good acoustics and slick a style may overpower the Take the lead iscussion should have these sight lines;comfortable chairs audience, a clearly expressed Confusing, unclear,and inept 18 Planning November 1990 P L A N N I N G .4 c P R A C T I C E mak; i �4. . �' Meet the Expert .-ate: 'Vt. h According to Elaine Cogan,planners are among the worst of .At fenders when it comes to ineffective public communication. "I'm sorry to have to say that,but it's true.Planners are goe.: people,who have the interest of the community at heart,b:- leadership is the bane of public from the press and from televi- they talk too much and too long,and use too much jargon. meetings.The role of the chair- sion and radio—is another im- For 15 years, Cogan has been working with planners and man,or facilitator or discussion portant skill. Public meetings others to break those bad habits.She's a partner,with her hus- leader,must be well defined if are a major source of news for band,Arnold Cogan,and AICP president Sumner Sharpe in the a public meeting is to be suc- reporters and editors,and they Portland, Oregon, firm of Cogan Sharpe Cogan, which cessful. The effective leader, generally make a point of specializes in planning and public affairs.Cogan's niche is im- moreover,displays energy and covering them.Thus,it's wise proving communications—in groups, as a designer and enthusiasm—traits that are not for planners to understand how facilitator of public meetings,and individually. often enough exhibited by print and broadcast reporters' Last year, for example, she spent a week in Gainesville, planners seeking to maintain a needs differ. Florida,talking with planners who were holding meetings on . tone of neutrality. First off, planners must the city's comprehensive plan."I helped them look at the fin& Showing emotion about a understand that reporters are document from the public's viewpoint,"she says. "We spe;: project—a new park or the looking for short answers.That a lot of time getting the jargon out of it.Then we talked about chance to preserve a row of means mastering the art of the how to present it orally.By the time we were through,I think historic townhouses—may 10-second sound bite. the staff had a new appreciation of the process" generate excitement and In Clackamas County, Oregon,last month,Cogan worked support from the public. Bone up with a county agency on the design of a public hearing related Failure to attend to details to a new plan for children and youth.Beforehand she had sug- Be ready to respond beforehand is the fatal flaw that gested that the sponsors focus their presentation on the"well" Often, the most effective part will doom your public meeting child rather than the"sick"child."I'm always looking for new of a public meeting is the inter- to mediocrity or worse. Con- ways to present information and to discuss it,"she says. change between staff and citi- sider organizing public meet- The meeting was held in a high school,often the most ap- -zens that follows the presenta- ings as part of your job descrip- propriate place in Cogan's view—as is clear from her artic':- • tions.Poorly prepared,rude,or tion and set aside time to do it "I try to practice what I preach,"she says,noting that she real.. defensive answers are sure to right.You'll know you're doing does take that meeting suitcase wherever she goes. leave a bad impression. the right thing when the au- Emphasizing preparation,Cogan notes that she herself was Prepare for the question dience responds with enthu- thrown off stride at an APA Planners Training Service period by listing the questions siasm and creativity.At the end workshop when a promised flip chart had to be replaced by an most likely to be asked.Then of a successful meeting, you overhead projector. She has also spoken at APA national rehearse succinct answers. and your colleagues will feel conferences. If you are leading a panel, tired but satisfied because you In 1984, Cogan coauthored a book called You Can Talk to decide beforehand who will have succeeded in taking plan- (Almost)Anyone about(Almost)Anything:A Speaking Guide for start off, call on questioners, ping out of the office and into Business and Professional People(available from APA s Planners and keep an eye on the clock.In the public arena. Press for$7.95,paperback).Soon to be published(by Jossey- general,he polite and firm and Above all,try not to be guilty Bass of San Francisco)is a second book,tentatively titled H- , maintain your sense of humor. of the deja vu approach: "It to Hold Effectitte Public Meetings. In it.Cogan sums up her a- . Be careful to treat all worked the last 254 times we did vice for involving the public,dealing with controversy,and an- members of the audience— it this way—or at least,we didn't ticipating the myriad things that can go wrong.As an example even the most unruly—equally. get into serious trouble,so why of the latter,the book will include an account of a park depart- Don't argue back or lose your change?"If you're thinking that ment meeting where coffee was served to a group of composure. way, your presentations will environmentalists—in nonrecyclable styrofoam cups.The en- show it. vironmentalists were furious. Says Cogan: "Those planning Understand the media the meeting should have considered community values:' Dealing with reporters, both Copyright 1990 by Elaine Cogan. Ruth Knack, Planning _�'f I • -- �� _ _ -..ate` • '.• •••••,41.V.... ;II ... • ‘.;•'•'' '''. '•• •Ioil'•• •••.-.--........, .... .;_.... ....,...... .::? .;--41-10411 lei, 1 ...,42...„:. •_„ ,•• ___ ., . .., ., . ....,.. . .., , ._.. , . , ,.., . I ,! , l • ,, _JO •.3= . �"lY-ter =— .�• .� • �'`. = i r t/tel► F —.;.,--,f0. ve----0----1-%- �-il� -_� ' Ag ,1,t t-.. '1gg % ' -• /t,�'; tis•- ile', '-'ill& ..- I 4, PAP Ai W i OVii ', 4ea A //,'4. ;- � d/r MORE THAN A , PUBLIC HEARING Public involvement as - wetland (the Everglades Training mandated by law should Facility in Florida) stirred public hat's all this controversy and a growing distrust avoid passivity and bring public-involve- of government agencies. From such the public into the ment red tape? confrontations came the National process. Why can't we Environmental Policy Act of 1969. just build it? The act mandated public in- GEORGE R. HUFFMAN After all, the public needs it," la- volvement as part of the decision- ment developers, design profes- making process for federally sionals and public administrators• funded projects and those over Too often, required community which federal agencies have per- input is reduced to the sometimes mining jurisdiction. More re- dreaded public hearing. In fact, cently, similar requirements have many formal public-involvement been passed in states and in many programs are comprised of no more local jurisdictions for non—federally than this minimal, yet essential, funded projects. activity. An effective program, however, BEGIN AT THE BEGINNING is not so passive. It is not a single The first step in creating a pub- event in the development of a lic-improvement program is to in- project but a continuing process. corporate probable negative and In the 1960s, the sitings of a nu- positive public-interest issues into clear powerplant on an earthquake the request for proposal. Also, in fault line (Diablo Canyon in this precontract stage, it is essen- Northern California), an urban tial to include the program in the expressway along a historic and project budget. scenic waterfront (Embarcadero Next, the client and design con- Freeway in San Francisco) and a sultant should discuss and agree on pilot training airport in a natural the program's goals. The basic 62 CIVIL ENGINEERING 0885-7024/90-0008-0062401 00+ 156 per page goals for most are: establish the Meanwhile, you should respond Throughout an entire afternoon, project's credibility; inform the to inquiries and requests for addi- members of the project team an- public on all relevant aspects of the tional information on the alterna- swered questions at several stations project, including its scope and the tives. If the budget allows, a hot- supplied with maps outlining the impact of scheduling alternatives; line telephone number or a public- possible corridors and aerial pho- identify all public concerns; and involvement program office in the tographs of the area. attempt to achieve at least general area can keep the public informed That evening, the hearing was public acceptance. and communication flowing. held complete with a profession- Note that these goals do not in- Next, a small, informal public ally narrated slide show, formal dude any one-way communication workshop or series of workshops comments and an opportunity for or "selling"of a project. The corn- should be held where the public public statements. The project's EIS munity's confidence is gained only can review all the engineering, en- was approved by the Federal High- by providing objective studies, an vironmental and community im- way Administration and is now in I openness to public input, access to pact findings, see comparisons of the design phase. consultants and clients, and re- alternatives,and discuss them on a Another new technique used in sponses to all community input in one-to-one-basis with the client/ Florida is computer graphic imag- the final recommendations. consultant team. ing. This simulation process is dif- Typically, the next stage of any If the public-involvement pro- ferent from computer graphics that project is a work program that in- gram is successful so far, very little use cartoon-style images. cludes data collection and anal- new information will come from This high-resolution process pro- yses, development of alternatives, the workshops. If significant new duces photographic-quality color evaluation of alternatives and a issues are raised, they should be images that realistically depict be- draft report, a public hearing, a fi- incorporated into the alternatives fore-and-after views of proposed nal report and selection of an al- to be presented in the draft final projects. The images are superim- ternative, and a final design plan. report and at the public hearing. posed on computer-scanned pho- Requirements vary between agen- tographs and are easily modified. cies and jurisdictions as to specific NOW,THE HEARING Renderings and models do not requirements, but most projects The public hearing is a formal have the realism or the flexibility have these tasks in common. opportunity for public input. The for changes. When collecting data, you best public hearing is one where all After the hearing and written re- should review with the appropriate of the issues have been heard and sponses to comments made during agencies the issues that may affect addressed in prior meetings with the hearing, the final report is the development of alternatives, all agencies and special-interest published. This, however, is not and ask these agencies to help groups. While not free from con- the end of of the public-involve- identify the project's interested troversy, public hearings are de- ment program.The consultant and public and key individuals. This is void of the surprises from uniden- client should continue to work a good time to seek out special-in- rifled and unaddressed issues and closely to cover problems and to terest groups, listen to their con- of the discovery of new segments of answer any questions that arise cerns and begin explaining the the public. during construction. scope and process of the study. A new format for public hear- Periodic news releases, newslet- ings has been developed by Geor- ters or other mailings are good for WHO ARE THEY? gia DOT, allowing for a large infor- community relations and for reaf- The"public" is virtually any for- mal meeting where statements for firming that the project is under mal or informal organization or in- the record are made directly to control. Noise, safety, dust and dividuals, other than the devel- court reporters positioned disruption of traffic are typical oper and the consultants, with an throughout a meeting hall. It en- problems. It is important to define interest in a project. It includes courages more serious statements, the contractor's responsibilities for federal, state and local regulatory with less inflammatory speeches or the public-involvement program as and advisory agencies, and elected other public posturing typical of opposed to the design consultant's and appointed officials with juris- auditorium style hearings. at this point. diction over the project, as well as Howard Needles Tammen & Public-involvement programs are potential project users, impacted Bergendoff, Tampa, Fla., and Flor- unique for each project: An effec- residents and businesses, economic ida DOT used this approach for the rive one is an ongoing process dur- gainers and losers, environmental- environmental impact statement ing the life of the project's devel- ists, and the media. (EIS) hearing on the highly contra opment. The enlightened client is This public is not a single body versial $250 million Northwest concerned with public acceptance with the same interests or levels of Hillsborough Expressway in 1985. of the project and the image of understanding of the project. In About five possible corridors were being a responsible developer at fact, elements of the public are fre- considered, some almost a mile each phase of development. o quently in disagreement with one wide. Notice of meetings and the another. When developing alter- hearing were sent to more than George R. Huffman is director of plan- natives, this public should be in- 7,000 potentially affected property ping for Howard Needles Tammen & formally contacted, and their in- owners. Bergendoff, Orlando, Fla., where he de- put used to create reasonable op- More than 2,000 people at- velops public-intolvement programs for tions and published in a tended the public hearing at the Florida state and local government pub- preliminary engineering report. Tampa Convention Center. lic-works projects and planning programs. AUGUST 1990 63 APPENDIX F: "Neighborhood Participa- tion Study" Planning & Development Department Report Neighborhood Participation Study This report was prepared in response to a City of Ithaca Planning Board initiative. The Board is interested in finding more effective ways for soliciting public participation. The focus of the report is on neighborhood involvement activities in U.S. cities with profiles similar to Ithaca. The information presented here was gleaned from a number of interviews with neighborhood planners and city officials from Burlington Vermont, Madison Wisconsin, Eugene Oregon, Aurora Colorado and Ithaca New York. A series of recommendations are made to improve citizen participation in Ithaca. Citizen participation programs have been created in many communities across the country during the last decade. The main purpose of these programs is to facilitate public involvement in local government planning and decision making. These trends are evident in Ithaca. The Board of Public Works created the Committee to Review Public Involvement Procedures for Reconstruction Projects in July 1990. The committee has been meeting twice monthly and has come up with many innovative mechanisms to improve participation. The work of this group has contributed much to this report and will be cited later. Before proceeding with recommendations, it is important to recognize that City government has limited human and financial resources to devote to public participation. The recommendations that follow are from cities considerably larger than Ithaca which have access to more financial resources than Ithaca. Accordingly, they must be adapted to Ithaca' s circumstances. Opinions on Neighborhood Participation In interviews with citizens, City staff, elected officials, and neighborhood planners, it was evident that people feel strongly about the issue. The following is a small sampling of those comments: Report on Portland' s Office of Neighborhood Associations. . . "The decision to encourage citizen participation is not cost free. " It is extremely time consuming to solicit, receive, and follow up on information provided by neighborhood groups, often resulting in delay of projects. " Local neighborhood organizer. . "There is no flow of information between the community and city government. . .why does the neighborhood always have to ask for services. . . City Planners. . . "It is hard to organize nieghborhood groups and to maintain that organization beyond the standard opposition phase. . " City planner, Dayton, Ohio. . . "The key to successful neighborhood involvement is to set parameters for the debate, and to keep the actors within those parameters. . . " Planning board member. . . "It is important that in the initial phase in projects there is a commitment between the city and neighborhoods to sort out priorities. . . " Neighborhood planner, Eugene, Oregon. . "Despite all efforts made to involve neighborhoods, there are inevitably conflicts, which are sometimes resolved awkwardly by the city. . . " Planner, Eugene Oregon. . . "There must be an access point to city hall. . . " Local official. . . "The problem is to define what type of citizen 3 participation we are looking for, and who is asking for it. There is an overabundance of committees. . . " Elected official. . . "It is important to agree on the problems first. .to find common goals. .there is a need for formal, legitimate neighborhood groups with operating by-laws. . . " Public Works employees. . . "Neighborhood needs and input have to be put into a citywide context. . " Elected officials. . "We need more input from the neighborhoods. . " Citizen. . "People are too busy trying to earn a living to get involved in neighborhood affairs, especially when they feel that government is unresponsive. . .there is a neighborhood association here, but I have no idea when they meet or what they discuss. . " Neighborhood leader. . . "The neighborhoods don't want to be told what is good for them. . .the engineers don't consider the quality of the neighborhood. . .neighborhoods must organize to overcome apathy. . " Planning Board member. . . "People don't know how to access city government, there should be an outreach program. . . " Public Works Board member. . "There is a fine line between citizens suggestions and engineering designs. . .the attitude of neighborhoods has really changed, it is much more negative. . . .There is a need for impartial mediator at public meetings and improved documentation. . . " Neighborhood planner, Burlington. . . "It is important not to glorify the concept of the neighborhood. . . " Advantages/Disadvantages As the comments indicate, there are advantages and disadvantages to neighborhood participation. - Advantages 1. Give citizens an effective opportunity to voice their opinion on public actions that influence them. 2. Help reduce public conflicts and hostilities that arise from a misunderstanding or exclusion from the process. 3. Create a more receptive environment for effective implementation of public policies. 4. Help city officials know view of people h/she represents. 4 5. Enable decision-makers to tap expertise and resources of a community which can result in better or more informed policy. - Disadvantages • 1. All citizen groups do not participate equally. Some groups are better organized, or have more political influence, which can lead to decisions which are not representative or equitable. 2. There are also problems if neighborhood groups are confused as to how much influence they actually have. People can assume that they have the authority to dictate public policy. If the parameters of citizen participation are not made clear, and expectations raised, frustration and distrust of city decision making can result. 3. Participation can also lead to allocation of resources to low priority projects. Long term underlying problems can be ignored in favor or the short term, more popular issues. Recommendations The following recommendations were derived from neighborhood programs nationwide. They reflect the most often found activities of these programs. They are not meant to be strict rules governing neighborhood involvement activities for Ithaca. Rather they can be altered and adapted to fit Ithaca' s special circumstances. 1. An effective communication program between the city and neighborhoods should be developed and maintained. Communication programs can reduce the frequency of the question every public official dreads hearing. . . "Why weren't we notified. " They are the backbone of a well functioning neighborhood participation program. An effective system usually consists of an early notification system and possibly a newsletter. 5 Notification System In 1983, Aurora Colorado instituted a notification system. The purpose of the system is to inform neighborhood organizations of opportunities to participate in the operating and capital facilities budgeting processes and to get involved in the development review process through the neighborhood referral system. Neighborhood groups register with the Planning Department. Registration entails informing the city of a group' s boundaries and officers. All residents, businesses and tenants in the area are eligible for membership. The city informs each registered group of all proposed land- use changes within a mile of its boundaries. Registered groups have a formal sign-off on proposed development projects, but no veto power. Their sign-off is seen as a formal step in the review process. The notification system in Madison Wisconsin is similar. The planning office maintains a database of neighborhood leaders, groups, and community and business organizations. This list is updated periodically and made available to other city departments. Neighborhoods are automatically notified, by the corresponding city department, about any project in their neighborhood which goes before the City Commission. The neighborhood associations are involved in the concept stage. 6 Newsletters Newsletters are also an excellent means of communication. In Eugene Oregon, each neighborhood organization publishes a newsletter. Neighborhood residents, all of whom are members of the neighborhood organizations, contribute articles. The neighborhood planner provides information on proposed projects, hearings and meetings. The groups receive technical assistance from the liaison and some financial support from the city to cover printing and mailing costs of the newsletters. The newsletters is a way to maintain interest in neighborhood issues beyone the typical opposition phase and keeps city hall informed of community issues. A community newsletter does not have to be published by city government or with city funds. Neighborhood groups and city staff could make better use of available means of communication. For example, articles could be written for local newspapers, or existing community newsletters could be used as a forum for informing people. Other Communication Options More creative means for communicating with neighborhoods should be explored. Some of the ideas suggested in the Public Works Procedures Committee include utilization of the cable television for announcements, periodic orientation sessions with neighborhood groups, a column in the local newspaper, and tours of ongoing or proposed capital projects. During public information 7 meetings, alternative mechanisms for complex engineering drawings should be sought, such as scale models of proposed street widenings. Communication may also be improved by creating a staff position which is charged solely with public relations, and making city government more accessible to the public. In some cities there is a city ombudsman, and information specialist, or a neighborhood planner who acted as an "access point" to city government. This person can conduct orientation sessions can cover topics such as city functions and processes, how to conduct meetings, how to deal with the media, and conflict management. 2. "Establish a well-documented detailed organizational structure that clearly specifies the powers and responsibilities of the various groups involved and the operating procedures to be followed. " A clear definition or roles and responsiblities is paramount in any successful neighborhood participation effort. A 1985 study conducted by William Rohe and Lauren Gates surveyed 51 neighborhood planning programs nationwide, researching the accomplishments and limitations of the programs. One of the most frequently mentioned problems was that of unclear responsibilities and goals. This lack of specificity can lead to raised expectations among neighborhood groups over how much weight their opinions have. The resulting 8 frustration and distrust of the decision making process inevitably leads to problems. Well defined guidelines include a clear definition of city policy and resource constraints, and the understanding that decisions are made by city government considering the welfare of the city as a whole. Neighborhood groups need to be made aware of city wide priorities like the siting of special needs housing, or the widening of a main thorough-fare into town. These guidelines can be included in operating by-laws of neighborhood groups or in Common council resolutions sanctioning neighborhood participation. There are inherent conflicts between the priorities of neighborhoods and cities. While a system needs to be put into place to mediate and resolve differences, the system won't be able to resolve all situations to the satisfaction of all parties. This is to be expected and is not a failure of a neighborhood participation program. 3. Encourage the establishment of formal neighborhood groups, each having by-laws, elections, and well-publicized meetings open to all residents and businesses in the area. Groups serve in an advisory capacity. The groups and their role should be approved by a Common Council resolution. They would serve as the voice of the neighborhood be accountable for 9 information dissemination in their neighborhoods. Membership in Burlington' s neighborhood assemblies is open to any resident who is registered to vote. A minimum of 15 people must attend an Assembly meeting in order for it to be considered an "official" meeting, and all decisions and recommendations must be made in meetings open to all. In order to register with Lakewood City Colorado, neighborhood organizations must demonstrate that they are keeping a current list of members, their addresses, and telephone numbers, meet at least once per year, establish geographical boundaries, and be open to all residents, business people, and property owners within the boundaries. Representative groups enhance the government process by ensuring participation in an organized manner. A Burlington resolution of September 20 states, " . .the Council and various City Commissions could be must assisted if the views of the general public with respect to the needs of the City could be communicated to it in a regular and orderly fashion. " Representative groups enable city departments to more effectively notify neighborhoods of planned or proposed changes in their areas. Lakewood City Colorado sends out written notification to registered neighborhood organizations. In turn, each neighborhood organization appoints one representative who acts as liason with the Planning Division and the neighborhood group. 8 10 In the Rohe and Gates study, there was a direct tie between the success of neighborhood participation efforts and official recognition. Formal approval demonstrates a commitment on the part of local government. Conclusion This report does not intend to provide all the answers on citizen and neighborhood participation in Ithaca. The options presented are those already employed successfully in other cities, and thus merit further investigation by the City of Ithaca. Any program developed must be done in a way which balances city-wide and neighborhood priorities. 4 Westwood Professional Services, Inc. APPENDIX G: Examples of Workshop Materials for Staff +F ; Training in Improved Public Relations and 7101 York Avenue Soutt, Communications Edina, Minnesota 55435 612-921-3303 Brooklyn Park.612-424-88Z PUBLIC RELATIONS FOR INSPECTORS RICHARD L. KOPPY, P.E. UNIVERSITY OF WISCONSIN SEMINAR I. INTRODUCTION TO PUBLIC RELATIONS: DEALING WITH PEOPLE A. Public sector/Private` sector nature of people relations 4 B. Technical skills and people skills in the Public Works profession C. Areas of Discussion for today's presentation 1 . Image 2. People Contacts: Direct and Indirect 3. Follow-through: Execution D. Public Works "mood slides" II. IMAGE -- YOUR CONTROL TOOL IN DEALING WITH PEOPLE A. People label you and the impression you give affects the communication process (Hand-out] 1 . Appearance 2. Body Gestures: Eye Contact, Facial Expression, Posture, Arm/Hands Movement and Space B. First Impression: Icebreaker -- Class exercise (Hand-out] III. PEOPLE CONTACTS A. Direct Contacts -- Face to Face �JJ 1 . Personal Identification a. Face to Face Emotional Encounter b. Verbal Discussion Responses [Hand-out] c. Defensive Reaction 2. Communication Process -- Effective Listening [Hand-out] 3. Emotional Filters -- barrier to communication a. Language of the Technocrat -- differences in understanding of words b. Emotionally-Charged People Interaction B. Indirect Contacts 1 . Telephone Contacts -- Snowbird Tape [Hand-out] 2. Correspondence [Hand-out] C' IV. FOLLOW-THROUGH: EXECUTION A. Feature of private sector: if the task is done well, the results are usually appreciated B. Government failure is usually based upon monopolistic behavior C. Don't promise what you can't deliver D. Place a time factor on the delivery promise E. What happens to your people relationship when "follow-through" does not adequately occur? V. SUMMARY -- CLOSING REMARKS Westwood Professional Services. Inc. 7101 York Avenue SO-T Edina, Minnesota 55435 612.921.3303 1 Brooklyn Park,612-424.8862 IMAGE 1 "Building a More Professional Image" Greater than 50% of the communication process involves body language and gestures (i.e. , a picture is worth a thousand words) . Four simple ways to build a more professional image. It's not just what you do, but how you do it. Eve Contact: - Maintain it 80% of the time. - Acknowledge the fact that you are listening. - Get the person's complete attention by becoming silent. Use a direct gaze. Facial Expression: - Use your smile as a reward; smile when you are pleased, not to please. - Your attitude is communicated through your facial expression. Body Posture: - #1 way we radiate energy and project confidence. - Stand up straight with head erect. - Keep your feet shoulder width apart. - When sitting, lean forward slightly to show you are listening and a positive attitude. Controlling Your Space: - Space, 24" radius from us is the area we should control; keep one hand out of your pockets to help you control this space. - If we stand over 6 feet away, the experts say we are uninterested or intimidated by the other person. - Don't get closer than 3 feet to another; this makes the person uneasy. ' - Correct distance in business is approximately 4 feet apart. i Westwood Professional Services. Inc. 7101 York Avenue South Edina.Minnesota 55435 612-921.3303 Brooklyn Park.612-424-8862 KEYS TO EFFECTIVE LISTENING i • These keys are a useful guideline to better listening. In fact, they're at the heart of developing better listening habits that could last a lifetime. 1 . Work at listening; exercise your mind. a. Listening hierarchy of choices b. Exercise your mind c. Find areas of interest • d. Listen for ideas 2. Judge content, not delivery. 3. Deal with distractions. • 4. Deal with emotionally-charged language. 5. Take notes. 6. Capitalize on thought speed: 150 wpm - verbal 750 wpm - mental 7. Restate or paraphrase the speaker's facts, feelings and/or beliefs to his/her satisfaction before moving forward with the conversation. (2) Westwood°•oiessiyal Services. Inc. f 7101 York Avente SouM VERBAL DISCUSSIONS Edina. Minnesota 55435 -7 RESPONSES 51.921.33)3 /1 . r 1 or Brooklyn Pan.612.424.8862 Positive Responses Comment I 'm responsible Don' t apologize all the time but take the lead I don' t know Admits to truthfulness and adds to your credibility I understand Shows empathy and indicates • you are listening • I 'm not sure Use this to try to find who you are talking to over the telephone (I can help, I want t Indicates a willingness to help the person I, not we I accepts ownership, we passes the buck •Negative Response Comment (:: -2 I can' t ToOdefensive. Tell people what you can do, not what - you can' t do. • You have to Hardly ever appropriate. Too direct I 'm Sorry Give facts first and then . . use. Too often used too early in conversation. • • I know how you feel You don' t know how they feel so don' t say it and cause resentment guess, I ' ll try, Can put doubt as to the • 1, Pt Dia' I think, or Probabl action that will be taken in the public's mind. .20-/A1L4 You never, you always They allow no exceptions. Be careful with these . Obviously It may not be so obvious to the citizen--a putdown! Westwood Professional Servicas. Inc. . CORRESPONDENCE 7101 York Avenue South Edina,Minnesota 55435 612-921.3303 Brooklyn Part.612-424.8862 The following guidelines will help you keep your written image in line . Periodic writing courses are suggested if your position requires considerable activity In this area. 1 ] Before dictating/typing, write out a sentence outline of what you intend to say, arranging your ideas more clearly and concisely . Remember to consider your audience during the composition of the letter . 2] It goes without saying: business letters must be typed. Assume they will be shown to other people when you think about the letter's ultimate appearance . If there are mistakes .or the stationery is not clean , complete a new draft . 33 Writing in a professional capacity means you're representing your agency/company . Use paper with the correct logo, name , and address printed on it . 4] Promptness is important ; answer business letters as quickly as time allows. Follow through when appropriate . 5] The greeting should bear the correct name and title Cif appropriate) , of the person to whom you're writing. Be sure the information is cur.•ent . Address the individual by the last name unless you're on a first name basis. Double check your spelling and punctuation within the letter. 6] The primary purpose of the written message Is to increase efficiency and provide a record of the communication . Use as few words as necessary to make your point . Don' t , however, sacrifice clarity for brevity . Because the letter often becomes part of the " record" , make sure your information is accurate. 7] Avoid using technical jargon that those outside your office might not understand. If they need to be used, explain the terms within the letter document . 8] Use a business tone but don' t be unfriendly or dictorlal . Be clear, concise and direct . 9] Be sure to personally sign the letter . 10 ] Make sure copies go to those who should receive them, as well as, to the file. Adapted from: "The Winning Image" , James Gray , 1982. Westwood Psctessionat Sesvices.km.. W — 1 4 1 ,. ,, . , 3 _ 7101 York Avenue South 1 • Edina.Minnesota 55435 y p > &doklim Park 612-424-8862 ill ' ' - • ' , . TELEPHONE' CONTACTS iMake sure the resident on,_the.'telephone in connected to the correct department . Always speak .clearly and' distinctly. _ j As in face to face contacts, remain courteous and patient - In Control . ` Listen carefully to the caller and give him/her your complete attention - take notes Tryto use the caller's name during the telephone conversation - more ( personal . Remember, to the citizen on the other end of the line, you- are the government - Image. • ) 1 . C . •, . .• eø :4-ep4 4ttv eeemes. ntawde) • //) 4 catagodicitq, 12at-oi(*(Pfrvi 4, 14,(121:wrie„-- • 41 ...4, Ji, • ro cAw,Aceoz. (Yr- (.ex.vafey.1, 0--) J 6( fAro‘flafF-(4jitirle9 lz-wtait-rti,,p. f, kme/.4 rAt-re. 4a,,A -et"- c'eti6e -tkreb-wiLy Tb-Wifyi,br 6of ahottr.7 triaW ay. (2 - viawo„. N/tu ve, 4)7ergr a..rt fake, Pitt ectaae- (1az10 -1cluct -zef ) 194tpal 4(//q cavock --ra:b u-aireptz-udke,-( ' CiPritpealikk- oat -Iv urthietdArn " 70F3L-1 IK)For w, • e--clt. , . .. _... .. AL - - . 0 q 17o „CI '2 kg)((11011i VUA)) iD (1454 ' ‘(- ' \AL:AVA A e 1 iki-Ylevt• SiA ePVIN Qf - - ‘ • (5.0'-' " 1-AAilvv'' na'Anc°' Ot'L, 04-,ti° Jr) . ) \66,1 -1-0'11 , ehefAi, , ‹.- , C CI 1 t• a i 5.,_) '0, _ R.).- r 0A-ajov(ii \4 A 91.$A4L o' ,4/ , C . -6pla)6'\` 7\Cd/----- -"--(\, \ b , CDIPt•r'- 1 AViCylivi --- 100V-. 7.1-j - -VOU 1 1 V ( in WILD ' ??1A1 - 6.a -e'll`htv1/4: , ,&sp,tis C`\Wr 64/ 9'68A.;) I ,. / , • (1/2".k citArtil ‘ / it------ . 0 7 Comments on BPW's Public Participation Plan, from Betsy Darlington July 7, 1991 Overall, the plan looks excellent. My biggest question/concern has to do with how it will be implemented. Will someone be designated as having charge of this? Some specific comments: 1. Page 5, re keeping the public informed: be sure the media receive regular updates. 2. Page 6, "B" re controlling the discussion at public meetings: While I see what you're getting at, there is the danger that if people don't have an opportunity to raise concerns on things not specifically on the agenda, they will go away feeling that the meeting was just a PR ploy and not an oppor- tunity to provide real input. Perhaps there could be a time at the end of the agenda for comments from the public on concerns not on the agenda (but of course, related to the topic at hand?)? 3. Page 6, "B": perhaps at highly controversial meetings, someone from the Dispute Resolution Center could moderate the discussion? Also, it's very important that those holding the meeting restrain themselves and not react in kind to attacks from the public, no matter how outrageous or rude these might be. This is hard to do; the suggestion on page 12 that staff and others receive training is an excellent one. When DPW activities will have some effect on someone's home, this can become a highly emotional thing for the homeowner. It's vital that no one on the receiving end of this become hostile, rude, intimidating, or sarcastic. Unquestionably, their property will mean more to them that it does to anyone in the Department. Concerns from the public, no matter how obnoxiously put, should be treated with tact rather than being treated as irrational or of no concern. Appendix C has many valuable comments ("Excerpts from "Improving Dialogue with Communities," "Factors in Community Outrage," "Yes, But...," "Earning Trust and Credibility.") An interesting idea is presented in Appendix E2--"More than a public hearing," suggesting a different way of getting public comments. (It might be too labor-intensive, however.) 4. Page 8, "B", re environmental review: if major changes occur in a project after the EAT has been done, a revision should be prepared and circulated for comments (e.g. to CAC). Some help from P&D for DPW staff in filling out EAF's might be useful since the latter rarely have to do them. Note: a long EAF is required under SEQR for any Type 1 action. Also, EAF's have two parts, at least, and often a Part 3. 5. Page 9, "A-1", re neighborhood representation: How about changing "Require" to "Recommend"? Otherwise, this sounds bureaucratic and autocratic. Registering could also lend legitimacy to groups that may not in fact represent the views of many in the neighborhood. And those not in the association should be just as free to express their views, and not stifled. 6. P. 10, #3, re group continuity: Again, I suggest taking out "require," for the same reasons as above. Also, continuity is no guarantee of broad representation. 7. P. 11, "1-b", re mailings: How about mailing to "occupant" at each address? 8. P. 13, re problem identification, etc.: it's important that "public participation"not just become window dressing. The public quickly catches on when they are not being listened to, but are just being given the appear- ance that they are. It's important to keep an open mind and be ready to accept that someone from the public may actually have a good idea. 9. Appendix F, page 7, re having a PR person deal with the public: In general, people prefer to deal directly with those who make and enact the decisions. Cornell is a good example, with many complaints that their PR people aren't the ones who should be interacting with the public on impor- tant issues since they aren't the decision-makers. People are not easily deceived, and to many, Cornell is just trying to make them feel good without actually doing anything to address their concerns. (Window-dress- ing.) The same could happen with the City. 10. 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