The Farmer and His Community Part 14

2. _The Process of Community Organization._--As corollaries of the motives for community organization which we have just discussed, there are certain fairly obvious principles concerning the process of organization which deserve emphasis.

The first essential is to determine whether there are unsatisfied desires which cannot be met except by community action and whether they are sufficiently desired to command the united support of the community.

Only as individuals and a.s.sociations have common desires which cannot be satisfied without their united activity can community organization be effected. The mere logical desirability of coordination of effort, however rational it may appear, is too abstract an objective to inspire enduring devotion. The allaying of antagonisms between special interests makes no appeal to any of them until they are unable to achieve their ends without joint action. Therefore, the primary consideration in community organization is to determine what is the most important unmet need of the community which requires united action for its satisfaction, and to enlist all possible elements in the common enterprise.

A community must be thoroughly convinced of the need of some definite form of community organization before it can succeed. Sudden enthusiasm due to the power of a persuasive speaker or a community meeting may result in the formation of a community organization, but unless a considerable proportion of the people representing various interests are firmly convinced of the need and are willing to pool their interests in community activities, such an organization will be like many a convert of a revival meeting, it will soon "backslide." To secure the recognition of the need for concerted action by all elements of the community will usually require time and education, and is a process which cannot be forced too rapidly--all education or learning involves time.

Even when an outstanding need is apparent it may not always be possible to gain the support of a sufficient portion of the community to justify an immediate effort for its achievement. It may be necessary to first arouse good feeling and community spirit by some activity which, though relatively less important, will command more general interest and partic.i.p.ation, and may pave the way for other enterprises. The first and essential step in community organization is to get the community to act together, for only through collective activity is community spirit and loyalty developed. It is for this reason that Old Home Weeks, family reunions, athletic or play festivals, baseball teams, picnics, pageants, dramatics, community fairs, community Chautauquas, holiday celebrations, and kindred events are often the best means for creating better community spirit.[86] It should be remembered that the objective of community organization is not _an_ organization, but the active cooperation of all the people and organizations of the community for the common welfare. The essential is common ideals and loyalties; the mechanism whereby these may be achieved is incidental.

Until genuine local leaders.h.i.+p is available, community organization will be impossible. It is true that often where the need for community activity is sufficiently great that the very necessity develops new leaders.h.i.+p. Herein lies the value of beginning the process of community organization by some enterprise which enlists the enthusiastic support of the whole community, for in such activities new leaders.h.i.+p is often developed.

Any form of community organization which is to be permanent and effective must represent the actual life of the community, which is largely dominated by existing organizations. Most individuals are loyal to certain of these organizations and these loyalties are the social realities which must be recognized in any attempt to unite them in larger aims. Unless most of the leading organizations of a community can be affiliated for community progress, any so-called community organization will be but another organization. The League of Nations hardly represents the world community as long as the United States, Germany and Russia are not affiliated with it, nor would our federal government be representative of our national life if it were responsible only to the direct vote of the people and did not give recognition to the states as states. It is for this reason that community organization will proceed most efficiently where it is initiated by the joint effort of several of its leading a.s.sociations, the churches, the grange, the farm and home bureau, the Red Cross, the business men's a.s.sociation, etc., for without their support a divided loyalty will persist.

For the same reason, a community organization cannot be under the auspices of any one existing organization as a chamber of commerce or farm bureau. Both of these and others are community organizations, but they are for specific purposes. Proponents of both of these have advocated making them community-wide and all-embracing in their functions, but it needs but little reflection to show the impossibility of such a plan. To cite but one objection. The rural church is the most deeply-rooted and in many ways the most powerful of rural inst.i.tutions.

It can cooperate with these other organizations for community purposes, but neither of them can enter into the religious field. The same is true of lodges, schools, health organizations, government, etc. Community organizations, such as the Chamber of Commerce or Commercial Club, the Grange and the Farm Bureau for agriculture and homemaking, the Red Cross for its activities, Church Federations, and others should all be encouraged where needed, but although each of these has certain community functions, no one of them can do or can direct the work of another. The community organization must bring them together so as to best coordinate their work for the good of the community, not through the power of an organic federation, but through the influence of conference, good will and devotion to the common weal.

3. _The Community Council._--Community organizations are, as yet, in an experimental stage and their formal const.i.tutions or by-laws are of many different types.[87] The Community Council, as suggested by the National Council of Defense, has been adopted in many communities with various modifications to meet local conditions. A community council consists of one representative from each general organization which affiliates with it and of a variable number of members-at-large elected by the annual community meeting. All citizens are ent.i.tled to vote for the members-at-large. The usual officers may be elected by the community meeting, or, preferably, be chosen by the council itself. Thus the council represents both the existing organizations and the community as a whole. The council does not attempt any control over existing organizations, but merely provides a means for their voluntary cooperation and is an agency for promoting community activities. In many cases where there are a large number of organizations, and it is surprising how many are found in many average-sized rural communities, the council will be too large to be an effective working body.

Furthermore, the members who represent various organizations may not always be the best persons to carry on the particular enterprises which the council desires to promote. The council may, under such circ.u.mstances, devote itself to the consideration of policies and enterprises, and may create committees of citizens who are best qualified and most interested in particular projects to have charge of their execution. Thus if the council decides to get back of a movement for a playground, a public health nurse, and a band, committees would be appointed to take charge of organizing each one of these enterprises.

These committees should be selected so as to represent the various organizations most directly concerned with or interested in the particular project as far as possible, but they should be chosen primarily for their ability to produce results. Committees should be appointed only for those projects which the council decides to undertake, although one or two committees may be appointed merely to investigate suggested projects and to report their findings for further consideration. Where the council is large, and it is not practicable to have it meet more than once a quarter, it may be well to have its work carried on in the interims by an executive committee consisting of the officers and the chairmen of the committees.

There can be no one best type of community organization adapted to the widely varying conditions of all sorts and sizes of rural communities; each community must have a form of organization adapted to its needs.

The important thing is not the creation of another new organization in the community, but to afford the means for the better team play of those which already exist. The mechanism must therefore depend upon the character and stage of development of the community and will be modified from time to time as its experience, or that of similar community organizations, warrants.

Finally let us remember that community organization is not an end in itself, but that it is merely a means whereby conditions in the community may be made such that every individual in it may have the best possible chance to develop his personality and to enjoy the fellows.h.i.+p of service in the common good. The aim of all social organization is personality, but personality is achieved and can find its own satisfaction only through fellows.h.i.+p. The ideal community but furnishes the social environment in which the human spirit realizes its highest values.

FOOTNOTES:

[84] Much of this chapter is a revision of parts of an article by the author ent.i.tled "Some Fundamentals of Rural Community Organization."

Proceedings Third Natl. Country Life Conference, pp. 66-77.

[85] See Elliott Dunlap Smith, Proceedings first National Country Life Conference, pp. 36-46 and Appendix C.

[86] In this connection, Dr. N. L. Sims in his "The Rural Community" (p.

640. New York. Scribners, 1920), has propounded a most interesting "Law of Rural Socialization":--"Cooperation in rural neighborhoods has its genesis in and development through those forms of a.s.sociation which, beginning on the basis of least cost, gradually rise through planes of increasing cost to the stage of greatest cost in effort demanded, and which give at the same time ever increasing and more enduring benefits and satisfactions to the group."

[87] See pp. 74-5, "Some Fundamentals of Rural Community Organization."

Proc. 3d National Country Life Conference; and, E. C. Lindeman, "The Community," Chap. X. New York, a.s.sociation Press, 1921.

CHAPTER XVIII

COMMUNITY PLANNING

So far we have been considering the community with regard to how its people a.s.sociate, with community psychology and behavior. But we must not forget that the community has a physical basis. The buildings which house these a.s.sociations at the community center, the church, the school, the grange hall, the stores, with the roads which radiate from it and the farmsteads which they serve, these are the structures which, with the natural topography of stream and hill, give material form to the community and condition its life.

One of the chief difficulties in the development of rural communities in the United States is that, like Topsy, they have "just growed." Village centers have sprung up here and there and gradually the surrounding countryside becomes a.s.sociated with them. As a result little consideration has been given to planning the community either for efficiency or attractiveness. Sinclair Lewis' description of Gopher Prairie in "Main Street" may be overdrawn and unjust to many a rural community, but it describes conditions which are so common that it has aroused the public conscience concerning the lack of civic spirit in rural communities.

A community is much like an individual. The man who is slouchy and careless of his personal appearance is rarely a strong character. The community whose cemetery is neglected, whose school grounds are a ma.s.s of mud and the outhouses a disgrace, whose lawns are unkept, where ash-piles and neglected puddles fill the vacant lots, whose roads are tortuous and unimproved, whose farm houses are unpainted and whose barnyards are more prominent than the door-yards--such a community is usually weak. It has little pride in itself or desire for improvement.

In the case of the man who is "down and out," if we wish to give him a new start, we encourage him to take a bath and a shave and we then furnish him clean clothes, so that looking more respectable he may act the part. Likewise in community improvement a "clean up day" is often one of the best means of starting a new pride among its people.

But improving its looks will not remedy the more fundamental structural defects which frequently handicap the rural community. Utility as well as beauty is essential in community arrangement. If the community is to escape ugliness and inconvenience, it will sooner or later come to the time when it must definitely plan the arrangement of its streets and roads, its public buildings and its open s.p.a.ces, so as to best serve all parts of the community. Community planning is as essential to satisfactory "community housekeeping" as the plan of a house is for the convenience of the home. An architect is needed to plan a home for the community, a community structure which is mechanically sound and efficient and withal both beautiful and comfortable, just as much as for designing a house. So the art of "town planning" is extending from the cities to the country and some of our landscape architects who love the countryside and appreciate its life and problems are giving their attention to rural community planning.[88]

This is not the place to enter into any extended discussion of the art of community planning, but we may well consider a few principles which are essential for realizing the ideals of community development.

As the community center is the nucleus of the community life, let us first consider the village plan.

One enters the community at the railroad station or by a main road. It is, of course, impossible to prevent the property adjoining a railroad from being the least attractive, because it is the most undesirable for residence purposes; but it is entirely practicable to have a neat railroad station with well-kept surroundings. Some of our more progressive railroad companies have perceived that it is good business to make their stations and grounds attractive and most of them will be willing to meet the local people halfway in an effort to improve their appearance. In far too many cases the grounds of the railroad station and the adjoining properties are the most neglected spot in the village and give an unfavorable impression of the community. Certainly we would think a man queer who placed the back-door of his house to the street, but the railroad station is usually the back-door of the community instead of the main entrance as it should be. On the other hand, on alighting at a well-kept station, with a neat lawn, good walks and roads, which is not surrounded by the village rubbish heaps and dilapidated buildings, the newcomer feels that here is a place which invites further acquaintance, while the native has a sense of satisfaction rather than of apology.

The same principles apply to main road entrances to the village. The automobile has greatly increased highway travel. Where a village places a sign at its entrance "Welcome to Smithville," and at its exit "Come Again," as is now frequently done, it not only makes a favorable impression on the tourist, but it gives the community a sense of ident.i.ty. In New England these signs are frequently placed, at the towns.h.i.+p line rather than at the village boundary. In a few cases villages have erected dignified stone pillars or arches at the entrance points.

The building of state roads between village centers has almost necessitated paving or hard roads in the village, for people resent traveling over a good road in the open country and then plowing through mud holes in a village. Not infrequently the streets of the incorporated village are much poorer than the state roads outside the village and although incorporation formerly enabled the village to do its own paving and make other public improvements, the unincorporated village now has the advantage of having its main roadways constructed as a part of state or county road systems at less expense to the villagers. In any event the paving of the princ.i.p.al streets of the village should be considered an obligation of the whole community, not only of the village but of the farm area surrounding it--_i.e._, the towns.h.i.+p, for on them the traffic of the whole community centers and in many cases the farmers of the community do more actual hauling over the village streets than do the people of the village. It is, of course, entirely proper, where state laws permit, to a.s.sess part of the cost of village pavements on the ab.u.t.ting property, but it is short-sighted economy for farmers to object to sharing in the cost of such improvements in their community centers.

When we come to a consideration of the general plan or layout of the village, it is obvious that in older communities it is hardly practicable to make material changes. In the old New England villages a part of the original town common has often been preserved as a "common"

or park in the center of the village with a broad expanse of lawn and stately shade trees, while newer communities have frequently been laid out around a central open square. Here is the flagpole and the Soldiers'

Monument or other historic memorials, and possibly a fountain or watering trough, and sometimes a band stand. It is a place where open-air meetings of all sorts, band concerts and community singing, may be held. It is the modern subst.i.tute for the forum of the old Roman town. When one compares a village which is merely strung along a main roadway, or two crossroads, with one which has such a civic center, he cannot but feel that the latter has a physical structure which gives it an ident.i.ty and a common interest which is lacking in the former and which must mean much in the maintenance of community pride and which must give much better opportunity for outdoor gatherings of all sorts.

In planning a new community such a public square should be a central feature. Around it may be built the school, the town hall or community house, the churches, the library and other public buildings. If large enough it should include tennis courts and a playground. Where the main streets are already occupied with business blocks and residences, it may be possible to secure a square not far from the village center where a new school building or community house may be erected and which may include a playground, bandstand, and whatever features are desired, even if it is necessary to place it at the edge of the village. Wherever possible the playground should adjoin the school building or community house, or both. Either as a feature of the playground or adjoining it, there should be a baseball diamond and bleachers or grandstand. Such a civic center will be found to be a powerful factor in the maintenance of community pride and loyalty.[89]

The growth of automobile touring has encouraged the provision of camping sites for tourists on the edge of the village. Wherever a suitable grove or other natural setting can be found nearby a village it should be reserved as a public picnic ground or park. A part of this might also be made available for a tourists' camp, and often it will be a good location for a ball diamond. There has recently been a steady growth of interest in community fairs and such a picnic ground or park might well be arranged with an open s.p.a.ce adjoining it for fair and festival purposes.

These general features and facilities of the village plan are not simply for the advantage or beautification of the village, but they benefit the life of the whole community and should be considered as features of the community's plant.

When we leave the village center and survey the farming area of the community, the most fundamental feature of its structure is the road plan. In hilly regions the location of roads is necessarily largely determined by topography, but over most of the Middle West the roads were laid out on section lines at the time of the original surveys and their location has never been changed. One who has grown up in that section feels a sort of pride in the straight roads and looks askance at the crooked roads of the East, but as a matter of fact the latter are in many cases much better located as regards their utility, for they were laid out to reach certain centers by the most direct route. On the other hand, the location of the village centers of the Middle West was largely determined by the railroad stations, and the roads were located without regard to them. As a result it is almost always necessary to traverse two sides of a square in order to reach the community center. This means that such a route is forty percent longer from the corners of the community than it would be by a straight line. This was bad enough with dirt roads, and if all the roads could be hard-surfaced, the automobile would, of course, lessen the time required for travel. It is, however, economically impossible to improve all minor roads and with the high cost of macadam, concrete, brick, or other hard-surface, not only for original cost but for upkeep, it seems absurd to continue to build the main roads on rectangular lines rather than by the shortest route between the most-traveled points. The saving in cost of construction and maintenance would much more than pay for the cost of all land which it would be necessary to condemn for their right-of-way, and the saving in time and cost of transportation for the whole community would amount to a large sum every year. Far too little attention has been given by road engineers to community planning, and with the vast sums which are now being expended by the federal, state and county governments on permanent roads, it is of the utmost importance that this matter of road location with regard to directness of access to the community centers should receive much more careful study and better supervision by all the authorities concerned, not only with regard to topography, but with regard to the social and economic welfare of the areas concerned. The newer sections of the country, and particularly western Canada, have become aware of this lack of economy in road location and are giving it consideration. In a report on Rural Planning and Development prepared for the Canadian Commission on Conservation, Mr. Thomas Adams, the town planning adviser of the commission, has outlined several plans for the better location of roads so that they will radiate from the community center and has shown that it is entirely possible to retain rectangular farm plans with radial roads.[90] He summarizes his discussion of this matter as follows:

"The main points of contention in this chapter are:--That the present system of surveying land for the purpose of securing accurate boundaries to arbitrary divisions and sub-divisions of land, while satisfactory for that purpose, is not a method of planning land, but only a basis on which to prepare planning and development schemes; that no definite or stereotyped system of planning can be satisfactory for general application; that all plans should have regard to the physical and economic conditions of the territory to which they apply and should be made for the general purpose of securing healthy conditions, amenity, convenience and economic use of the land; and that more complete and adequate surveys and a comprehensive cla.s.sification of land is essential to secure successful and permanent land settlement." (p. 71)

Another feature of community planning which is coming to receive larger attention is the preservation of unusual geological and scenic features for the use of public. One of the scenic attractions most commonly neglected is the land along waterways. Sometimes the land on one side of a stream is occupied by a road, but in many cases it is private property. If reserved to the public many of these watercourses might be most attractive parkways. In many cases the control of waterways has been necessitated for the maintenance of the purity of the water supply and the advantage of having the adjoining land--usually more or less wooded--available for picnic parties has encouraged the extension of public control of waterways. Several states now have legislation permitting counties or towns to acquire such areas for park purposes, and the Province of Ontario and some other Canadian provinces require that a width of 66 feet be reserved around all lakes and rivers.

In order to utilize the waste land of the watersheds and to protect the sh.o.r.es of reservoirs and streams which furnish public water supplies, many cities have reforested considerable areas, which will be maintained as public forests and will be cut as the timber becomes merchantable.

This movement has called attention to the practicability of establis.h.i.+ng town or community forests on cheap land unsuitable for tillage, as a source of income to the community. Communal forests have existed in Europe for many centuries, and at the present time form 22 percent of the forests in France. A movement has now commenced for the planting of town forests in this country,[91] and the better utilization of the community's waste land by planting it in timber should be considered a feature of community planning.

The improvements effected in cities through city planning commissions, both with regard to street location for the better routing of traffic, and the laying out of parks and the location of public buildings, have been so apparent, that the idea has been taken up by rural communities and a few states have pa.s.sed legislation for the creation of special agencies for rural community planning. Thus Ma.s.sachusetts has for several years had a Town Planning Commission and in 1919 Wisconsin pa.s.sed an act[92] creating a division on rural planning of the State Department of Agriculture, and creating rural planning committees in each county. In 1920 thirty-six counties had organized such committees under this law and had already accomplished much under its authority.[93] Some of the more progressive land companies which are colonizing new lands in northern Wisconsin are making definite community plans to encourage settlement,[94] and in California the State Land Settlement Board has done much to encourage better rural planning by the demonstrations which it has made in its farm colonies at Durham and Delhi.[95] The Extension Services of several of the State agricultural colleges have experts on landscape art who give a.s.sistance in the improvement of public grounds and in community planning.

A system of numbering farms has recently been invented which is based upon the relations of farms to their community centers and which therefore makes necessary the definite location of rural community areas and their boundaries. This is known as the "Clock System" rural index and is now in use in four counties in New York State. The county map published in the directory shows the different communities outlined by heavily shaded lines and the farm numbers radiate from the community centers. On the map each community is divided as a spider's web into a number of small s.p.a.ces by twelve dotted lines that extend from each village on the same radii as the hour-marks on the dial of a clock, and by concentric circles which are a mile apart from each community center.

Each set of lines and circles extends to the community boundary, and the farm is given a number which shows the sector in which it is located with reference to the distance from the community center. In front of a farm will be found a number, usually just below the mail box, such as Alton 3-2-K. This indicates that the farm is in the direction of the 3 o'clock mark on a clock, or east, of Alton; the second term, 2, shows that it is between two and three miles from Alton and the letter K enables one to locate the individual farm on the small area between the 3 o'clock and 4 o'clock radial lines and the two and three mile circles.

In the directory accompanying the map the names of all householders are arranged alphabetically and also serially by their numbers, so that the name of the householder at a certain number of his location on the map may be readily ascertained. This system not only makes necessary a definite determination of the center and boundary of every community, but the number itself relates the farm to its community. This is a matter of considerable importance, for since the abolishment of many rural postoffices the farmer's mail address may be on a rural route starting from some railroad station or larger town which he visits only occasionally, and has no reference to the community in which he lives.

The system was invented by a Colorado farmer, Mr. J. B. Plato, who devised it so that it might be possible for buyers to find his farm. As he claims, such a number "puts the farmer on the map" and gives his home a definite location just as does the street number of the city house.[96]

Finally, in any effort toward community planning it must be remembered that most rural communities are, in a way, but parts of what, for want of a better term, we may term larger communities. Not every small rural community can support a library building, a hospital, a high school, a moving picture theater, or a public health nurse. As has been pointed out in the previous chapters, these agencies can be maintained only at such centers as can command the support of several smaller communities.

Obviously they will tend to be located at the larger towns, such as the county seats. Roads should be planned with regard to making these larger centers most readily available to their tributary territory. It would seem to be advantageous to the smaller communities to definitely relate themselves to one of these larger centers in the support of some of the more costly community services which they are unable to maintain, and an understanding should be developed between the smaller and larger centers, whereby the latter will not attempt to displace the former. The larger villages and towns must recognize that the smaller nearby communities are an economic and social a.s.set and that the maintenance of their village centers is essential to successful community life. On the other hand, the smaller communities should recognize their own limitations and should utilize the advantages of the larger centers without jealousy of them. The county library system and the county hospital ill.u.s.trate the advantages to be obtained through the larger community, but which are impossible without the support of the voters of the smaller subsidiary communities.

With the growth of the community idea, and as communities become so organized that they have some mechanism for self-examination and self-expression, more study will be given to the physical structure of the community as essential for economy and utility, and more pride will be taken in making it beautiful and satisfying. Community planning is essential for the highest type of community development.

FOOTNOTES:

[88] For a most suggestive introduction to this whole field see Prof.

Frank A. Waughs "Rural Improvement." New York, Orange Judd Co., 1914.