Citizens' voluntary governing boards: Waiting for the quorum

In complex societies formal power, legitimacy, and responsibility are typically allocated to councils, or governing boards. This is an old strand in American political culture, strengthened by the growth of private not-for-profit organizations and concern for citizens' representation. It is also a growing trend in Great Britain, West Germany, and other modern societies. Such boards are often taken for granted; we think we understand them, hence the value of investigating the obvious. In this essay they are examined with respect to their external and internal relations (or structure), their problems and performance (or processes), and the blurred nature of their authority in an interpenetrated society where public and private interests are inextricably intertwined. Illustrations are derived from the author's research in the governance of labor union locals, municipal governments and reform movements, urban renewal efforts, community mental health centers, and private hospital governing boards.This paper is based in part on research supported by The National Center for Health Services Research, Department of Health and Human Services, U.S. Government Grant No. R01-HS-03238-02.