National Association of Regional Councils

National Association of Regional Councils: History And Evolution

NARC's History and Purpose: furthering the cause of regionalism

The National Association of Regional Councils (NARC) has been an independent entity for over thirty-five years. "The National Association of Regional Councils (NARC) is the preeminent alliance for fostering regional cooperation and building regional communities.

We advocate for regional approaches with federal and state governments; provide training and technical assistance on the latest regional developments; and conduct research on timely regional topics." (NARC, 2003, (http://www.narc.org/)the National Association of Regional Councils is an integral part of the growth and development of countless communities, be they interstate or otherwise..

In 1998 Beverly a. Cigler wrote an article entitled "Emerging Trends in State-Local Relations" and though it is questionable that regionalism be defined as emerging it is clear that the academic and governmental organizations that entitle change are sitting up and taking notice of organizations like NARC when developing concrete plans of action.

Government" is less important today than the overall "system of governance" that results from the interaction of organizations in policy development and implementation and service delivery across economic regions. Because problems spill over the boundaries of geographic-based local governments, solutions must be sought on a regional basis; watersheds, laborsheds, rural commutersheds, and ecosystems are the new units of organization in which state-local relations often occur. Strong suburbs help cities, but strong cities make suburbs even stronger (e.g., Barnes and Ledebur 1994; Rusk 1993). Intergovernmental relations have shifted substantially toward improving intergovernmental management and intersector relations and management (Cigler 1996a).

(Cigler, 1998, p. 53)

It is not reasonable to discuss the history of NARC without a general understanding of what regionalism is and what it sprung from, as the history of NARC was determined by much more far-reaching national goals and conflicts. As early as 1935 the United States government was giving recognition to the problem of regional interests vs. political boundaries. (1935, p. 1) One of the first and most recognizable organizations to stem from this early concern is the Tennessee Valley Authority, charged with lofty goals of federal decentralization, employment issues and energy conservation development through the construction of a large group of regional power producing dams.

1935, p. 14) (Carey, 1938, p. 26)

To be sure though it is clear that regionalism was an international issue addressed in nearly every nation during the 1930s and developing into many regionalism movements and organizations thereafter. (Minahan, 1996, p. 342) (Thomas & Thomas, 1963, p. 492) Even with the normal outgrowth of conflict addressed through the urban movement of the late 1930s and early 1940s regionalism still held its ground. (Queen & Thomas, 1939, p. 42) in part because urbanization had caused so many encroachment issues that regionalism became the paramount plan as what used to be neighboring towns and/or cities were reevaluated as neighborhoods of each other. (Studenski et al., 1930, p. 1) (Adams & Savitch, 1997, p. 179)

In the cold war era as reflected by the 1960 President's Commission on National Goals saw the resurgence of the popularity of decentralization and therefore regionalism as a natural out growth of anti-communist sentiments (President's Commission on National Goals, 1960, p. 2) Yet to be sure the development of national organizations to promote the cause of regionalism weather through fear or any other source is a valid and useful outcome. "In its more modest and pragmatic form, the main argument for regional organizations is hat they are needed to respond to the problem of "scale" that arises when functions spill over state boundaries without, however, requiring nationwide action." (Derthick & Bombardier, 1974, p. 6)

One issue that has garnered a very large body of conflict and therefore one of the sources for the development of regionalism and the creation of organizations such as NARC is water use rights. In the following demonstration Derthick and Bombardier use and east coast example but people in the west and central United States also have similar use issues and many will remember the heated, emotional and ongoing debates surrounding water usage in California and the states whose water and borders it shares

The problem of scale may arise when actions in one state jurisdiction substantially affect the welfare of a neighboring jurisdiction, as when New York City's withdrawal of water from the Delaware River in upper New York State threatened cities downriver in Pennsylvania. As an economist would put it, adjustment of jurisdictional boundaries becomes necessary to encompass "externalities." Rivers obviously invite regional organization, for they make their way to the ocean without regard to man-made boundaries of government. It is not surprising that three of the cases to be covered are organizations with a concern for water resources, or that some of the most powerful current arguments for regional organization come from specialists in water quality management. (Derthick & Bombardier, 1974, p. 6)

It is therefore important to understand that NARC grew out of a need to organize on a national scale to ensure the abilities of regional organization. The sometimes-arbitrary political boundaries that separate cities from other cities and states from other states do not encompass all the issues that any given community might face. Yet, at the same time those political boundaries engender pride and isolationism that charges the environment surrounding collaboration in regional issues.

The history of NARC itself as an organization dates to the late 1960s when community collaboration, especially on issues of fair housing and equitable employment for minorities came into national focus. The foundation provides many services to regionalism and expresses its own mission thusly: "For more than three decades, NARC has represented multi-purpose regional councils of government that assist community leaders and citizens in developing common strategies for addressing cross-cutting transportation, economic development, air and water quality, social equity, growth, and other challenges." (NARC, 2003, (http://www.narc.org/)

During its long history as mainly an advocacy organization it has served communities well in their ability to find, above all else, regional role models for change and growth.

NARC has developed a collaborative functioning organization that serves regional councils all over the country and has even began to be used as an information gathering agent for international organization development. As a concept regionalism, has been widely accepted as one of the dominant social action networks present today.

Regional organizations are the fundamental source of change and growth in nearly every local community and in many ways their affect is more fundamental than say that of a national government entity with a similar focus.

According to the NARC regional councils are defined as:

Regional councils of government -- more than 450 of them across the nation -- are multipurpose, multi-jurisdictional, public organizations. Created by local governments to respond to federal and state programs, regional councils bring together participants at multiple levels of government to foster regional cooperation, planning and service delivery. They have a variety of names, ranging from councils of government to planning commissions to development districts. (NARC, 2003, (http://www.narc.org/)

Though one of the main purposes of a regional council is the effective disbursement of national and state funding sources the, within the guidelines of the allocations regional councils are the determining factor of change. In a sense you could say that the regional councils of any given entity be it a town, city, county or even districts are the source of nearly all action in local and regional government. The NARC website offers a foundational definition of how regional councils make a difference in their respective communities:

Regional councils are typically governed by a board of elected officials and other community leaders. Together with an executive director and staff, they provide forums on regional issues, conduct regional planning, provide information and technical assistance services to local governments, and administer federal, state and local programs of a regional nature, such as senior programs, job training, housing and community development, and disaster services. (NARC, 2003, (http://www.narc.org/)

Regional councils address issues ranging in importance and in difficulty but are often the main source of change and the first line of defense against federal funding and regulations encroaching on the actual needs of their own communities. (NARC, 2003, (http://www.narc.org/)

Tough Challenges: Transportation and traffic congestion...air and water quality...economic development and growth...inter-community disparities, workforce training, and housing...information technology and the digital divide

These are all tough challenges that cross jurisdictional boundaries -- challenges that can best be addressed through regional cooperation, planning and action. (NARC, 2003, (http://www.narc.org/)

There is not a publication about federal, state and local collaboration that does not include some bit of information gathered and dispersed by the NARC.

Another report from the National Association of Regional Councils finds sixty-six recent examples of substantial regional government participation in water resources planning, each aiding states in meeting federal water quality and resource standards. This planning took place in twenty states and the District of Columbia, and several instances involved regional governments encompassing portions of more than one state (e.g., Ohio-Kentucky-Indiana Regional Council) (National Association of Regional Councils 1993a). (Hanson, 1998, p. 153)

It is difficult to find any regional council that does not at least in some way utilize the services of the NARC whether just as an information clearing house for their own gathered sources or as a source for collaborative and networking opportunities with other local and regional entities. According to the NARC, "Today, NARC welcomes membership from other public, private, academic, nonprofit, and civic regional organizations and interests as we work to engage the regional community in achieving regional excellence." (NARC, 2003, (http://www.narc.org/)Apart from bridging the gaps between state, federal and local governments the organization envelops the concepts of regionalism as a global solution and continues to advocate for safety and access on a national and even international level.

Through the catch phrase "Think Globally Act Locally," an individual voter may begin to understand that during the media blitz associated with the national and especially presidential election season the real responsibility of the voter should lie not only in the understanding of national platforms but in the more at home reality of the need to elect and appoint local and regional officials with wisdom and understanding. Though the elected and appointed bureaucratic entities of the national government may garner more attention and are responsible for many decisions that effect local entities the funding is only the beginning and regional officials decide how that funding is spent.

Local and regional entities decide how our children are educated and how industry impacts our regional environments, as well as many other important and sometimes very personal issues. It is through regional government that many dreams are realized and many key decisions are made. A regional government can decide if a local city or town will have sustainable industry, by these decisions the number of local jobs is impacted. Regional government decide if it is cost effective to employ mass transit that works for a community or to continue to focus on systems that are ineffective and/or behind the times. Through organizations like NARC regional officials gain knowledge of how other similar sized communities deal with issues of racial divide and education focus and quality.

Chapter 2

NARC in Form and Function: equal representation and global focus

NARC serves as a central entity to combat the sometimes heated and sometimes emotional issues surrounding state and local welfare. The personality and drive of individual members of governing boards often issue forth perceived conflict in decision making forums. Adding to this the integral function of public input and the often very personal nature of the issues being discussed at these same forums can lead to a near explosive environment for the development of plans and practices. "Collaborative processes and other new ways of interacting are a growing part of elected officials' environment. The states play an important role in building local government capacity in the use of collaborative skills and alternative dispute resolution (ADR). It is at the local level where problems are encountered face-to-face." (Cigler, 1998, p. 63)

Exploring the form that the NARC takes in the development of goals and functions can be a helpful tool in understanding the interdependence that an independent entity might show NARC. Like many of the organizations it serves NARC is governed and administered through the entity of a Governing Board. Having the special knowledge of working with this form of decision making in itself may prove invaluable to a local entity seeking the assistance of a NARC program.

Though the purpose and function of a board of directors system is to establish an internal system of checks and balances among decision makers in any given organization, the dynamic is often challenging and some would even say cumbersome. Even in its imperfect state governance by a board of directors is an almost universal establishment, enabling organizations to maintain accountability and determine functionality of and given group. Once again NARC finds itself in a position as a model for the groups it assists.

The practical enlistment of national experts on issues that govern the development and practice of regional councils has strengthened the function of NARC over the years.

The officer core of NARC includes names from many areas and of coarse fluctuates in form through elections and terms of service:

Officers

President: Richard Butler, Wilbraham Planning Board, Wilbraham, Massachusetts

President Elect:F. Wayne Hill, Chair, Gwinnett County Board of Commissioners, Lawrenceville, Georgia

Vice President: James L. Kennedy, Chairman, Butler County Government Center, Butler, Pennsylvania

Immediate Past President: Oscar Soliz, District Clerk, Nueces County, Texas

NARC, 2003, (http://www.narc.org/)

Yet, the collaborative form of NARC does not end with just the officers as in its entire board of directors there are Regional Representatives, at-Large Representatives, Executive Directors Committee Representatives and other Appointees, in all the NARC governing board currently encompasses members from more than twenty three states who represent regional entities that govern all fifty U.S. States. The regional representation includes designations for groupings of state or states with regional interests:

Region I (Connecticut, Maine, Massachusetts, New Hampshire, Rhode Island, Vermont)

Region II (Delaware, New Jersey, New York, Pennsylvania)

Region III (District of Columbia, Maryland, Virginia, West Virginia)

Region IV (North Carolina, South Carolina)

Region V (Georgia, Florida)

Region VI (Indiana, Illinois, Minnesota, Wisconsin)

Region VII (Kentucky, Tennessee)

Region VIII (Alabama, Arkansas, Louisiana, Oklahoma, Mississippi)

Region IX (Michigan, Ohio)

Region X (Texas)

Region XI (Iowa, Kansas, Missouri)

Region XII (Idaho, Montana, Nebraska, North Dakota, South Dakota, Wyoming)

Region XIII (Arizona, Colorado, Nevada, New Mexico, Utah)

Region XIV (California)

Region XV (Oregon, Washington)

Each region then has a regional representative who resides and serves some regional office or function in the state or one of the states of interest to the region. (NARC, 2003, (http://www.narc.org/)it is in part because of this regional representation and because of the very practical development of a partner, workhorse if you will through the ITRC (Institute for the Regional Community) that NARC continue in its roles as an effective regional leadership organization.

NARC sees its role as three fold: Advocacy, Member Education and Regional Outreach. In these functions NARC defines Advocacy as representing the legislative and regulatory interests of regional councils, advocating at both the state and also the national levels for regional initiatives that will serve to improve the quality of life in regional communities. (NARC, 2003, (http://www.narc.org/)in Developing Regional Strategies:

NARC advocates for regional approaches with federal and state governments -- including campaigns such as "Regional Councils Make Growth Smart," and "Regional Councils Make Federal Programs Work." NARC monitors legislative developments impacting regions and advises member regional councils through the electronic bulletin, NARC Legislative Update. (NARC, 2003, (http://www.narc.org/)

NARC provides member education to help them address tough regional challenges through an always-active system of conferences, publications and technical assistance and training.

It defines Member Education as, Fostering Regional Cooperation, "NARC provides training and technical assistance on the latest regional developments, conducts research on timely regional topics, and promotes regional cooperation through its conferences and publications -- including the Regions newsletter, the eRegions electronic bulletin, electronic List Serve bulletins, and our Web site." (NARC, 2003, (http://www.narc.org/)

NARC sites functions of its role as an educating force by sighting its annual Washington

Policy Conference which brings "regional leaders together to discuss federal legislation and policies impacting regions, and to set NARC's legislative priorities for the year." (NARC, 2003, (http://www.narc.org/)NARC and its ITRC (Institute for the Regional Community) also sponsor the National Regional Summit held simultaneously as the Washington Policy Conference "to explore regional initiatives and innovative approaches to regional issues." (NARC, 2003, (http://www.narc.org/)Additionally NARC holds an Annual Conference and Exhibition, hosted by a different regional council every year and an annual Executive Directors Conference affording local officials from all over the country opportunities, "to network, take advantage of professional development offerings, and share information and ideas on the latest regional projects." (NARC, 2003, (http://www.narc.org/)

NARC brings members and other outside individuals and organizations together to develop and promote regional cooperation. NARC credits its development of its Institute for the Regional Community (ITRC), to cooperate with NARC as it hosts a national Regional Agenda at its annual Regional Summits, preparing periodic national State of the Regions reports, and awarding Regional Honors to individuals, organizations and regions that achieve regional excellence. (NARC, 2003, (http://www.narc.org/)NARC defines it final role, Regional Outreach, Engaging Community Leaders, Citizens and Organizations as:

NARC founded the Institute for the Regional Community in 1994 as a forum for exploring regional initiatives and bringing together different regional organizations and interests. The ITRC, which publishes the quarterly journal, the Regionalist, is currently studying the creation of an alliance of the regional community to strengthen regional cooperation in the new century, and is looking at the concept of a regional information clearinghouse -- a national database to help communities address regional challenges. (NARC, 2003, (http://www.narc.org/)

Through these formidable roles NARC establishes a baseline for the development of pockets of regional growth that added together make a whole state and a whole nation. Above all else, NARC fosters community growth and community independence through interdependence.

Chapter 3

NARC Acts and Achievements: both micro and macro

Through the tried and true scientific standards of the academic world of sociology and other social sciences NARC has developed a set of educational tools that rival all others with distinction.

Vogel, 1997, p. xi) Not withstanding the basic and fundamental issues that both established and gave focus to NARC water rights issues, collaborative government entities for law enforcement, stable employment equality and the like a review of NARC's most recent publications gives the reader a complex picture of how the organization has grown and evolved with the changing times to develop a complex set of regional goals and concepts that match our modern cultural needs.

Having answered the call of each associated era of its development the most recent focus of the NARC is the development of equal access to technology. As technology becomes more and more complicated and more and more integral to professional and even personal growth of the individual and the community issues of equal access become evident. Those who cannot afford to access technology independently must be given the opportunity to do so publicly either through public institutions like libraries and schools or through grant works that enable personal access through their homes. This cause has been adopted by regional concerns as those organizations are often charged with infrastructural affordability issues and the like. Due to this recent focus on technology by regional councils NARC is doing its part to ensure that regional entities have information and networking tools on which to base policy.

Through its quarterly newsletter Regions one can trace the development of technology as a major issue for regional councils. In the Jan/Feb 2000 issue or Regions the Technology Notes include the announcement of an internet guide produced by the NCSC titled "Getting Online: An Introduction for Local Leaders," that explains all the ways a local council might promote technology-based upgrades in their region. (NARC January/February 2000, p. 9) This is one of many examples of the recent focus on technology issues by the NARC.

Another Interesting finding in the Regions newsletter from the same time is the example of how NARC addresses issues that are specific to each individual region it works with. Through the advertisement for of one of NARC's annual conferences (the Annual Conference and Exhibition), which was held in St. Petersburg, Florida June 17-20-2000, there is an informational guide for the success and the amenities created by it the for the Tampa Bay Regional Planning Council the issue of economic import is tourism.