manpower and educational service of the school systems to instruct the young public in fundamental matters of legal consequence.

Any effort to make "lawyers" of everyone must also be disclaimed. It will never be possible to give the kind of instruction to everyone that will make each individual competent to handle his own legal problems. Even lawyers generally agree that an attorney should not represent himself in litigation in which he is a party. It is necessary, however, to give everyone enough fundamental information to be able to avoid unnecessary legal problems and to enable them to recognize the best time to seek legal services.

The eradication of the poverty cycle is a major goal of the Office of Economic Opportunity, the parent of the Legal Services Program. Necessarily, the goal should be reflected in the legal services education program. This recognition is achieved in part by devoting the major efforts of the program to impoverished or low-income residents-those who are caught in the poverty cycle. This factor is important in determining priorities, since different groups require different techniques and since the poverty-level group has had relatively little specifically developed for it. Further recognition of the purposes of OEO is given by making the major thrust of a legal services community education program the development of information to promote direct and enlightened action to: (1) make the best use of present funds and property; (2) secure maximum services and benefits accruing to them from all sources; and (3) maintain the best possible legal posture in all daily situations and relations. There is a very important subordinate function that must be performed to assure the success of these major goals. This additional subordinate function is to compose and disseminate to the entire community information to promote an awareness of the need for, an understanding of, and an appreciation for the work of the legal services program. Without at least the tacit approval of the local bar association, gentry and politicians, the program will not obtain results.

Of substantial assistance in such an effort is the development of materials and promotion of programs whose purpose is to increase lay-group awareness of legal rights, protections, problems, and services.

The development of materials must proceed in an orderly fashion with specific goals in mind. All of the media should be used: TV, radio, print-newspapers, newsletters, posters, calendars, wallet cards, bumper stickers, pamphlets, etc. All materials or techniques must be composed or effected considering fully the peculiar needs, abilities, and tastes of the target group; otherwise, completely ineffectual materials will be produced, wasting valuable time and money.

There are four broad categories of persons who should receive some kind of message; but each category requires a different message or technique. The type of communication that should go to each group provides a convenient mode of classification:

1. direct communications to target-level residents and legal aid clients, both actual and potential;

2. indirect communications to employees of public and private agencies who work with or serve target-area residents;

3. collateral communications to a legislative or a decision-making body; and 4. concurrent communications to the public at large, mainly the non-client public.

A basic element of communication is the symbolic representation of the source of the information. In business, this symbol is known as a trademark, in design. a logo. The scales of justice have been traditionally recognized as denoting the profession of law. The scales with an upward pointed arrow, which appear on the current legal services poster, were refined to become the attention getting, symbolic representation of the organization. This symbol, together with the name of the legal aid society is to appear on all material to be produced. A poster and two bumper stickers were developed to introduce this symbol and generate community interest in the agency.

The most urgent need is to get helpful information directly to potential clients. The direct information to be disseminated should be designed to inform the client group in such a way as to aid in making their personal lives less dependent on the decisions of others. The nature of this information is both preventive and remedial. Preventive information will aid the reader or listener to avoid the specific communicated problem by acting a certain way in specified situations. Remedial information will inform a person who already has the problem of the

best way to try to resolve it, i.e., seek the aid of an attorney, report housing violations, demand a hearing, etc.

The materials developed by our program to date present to the client group an actual problem and suggest ways it could have been avoided, to help those who do not have the problem currently. Those who have the problem presented are directed to seek assistance from legal aid in order to resolve it. Consumer problems, housing problems, and income-maintenance problems were the first ones selected for initial development (see figure 4 for the first three posters to be printed). A year-at-a-glance wall calendar was provided and distributed to clients and potential clients for home use. It contains basic information regarding four areas: consumer, housing, welfare, and police problems (see figure 5). Radio must be used more intensively to promote direct communications with actual and potential clients. Instructive, stimulating messages have been developed in Illinois by the Community Legal Education Program of the Illinois State Bar Association.

The messages start with a rhyme or jingle set to lively, popular music. A voice reads the message with the music in the background and the chorus closes.1 These announcements are specifically for a black urban population, but the technique can be easily adapted for use by and for any group.

Several excellent television messages of a general nature were also developed in the Illinois program. They are animated in order to hold the attention and capture the imagination of the viewer. The animation helps to "burn" the message in the viewer's mind and enables him to retain it for a much longer time period as compared to a non-animated announcement.

Indirect communications include both general and specific referral information written for persons who assist or work for public and private agencies that have contact with the target residents. Recognition of when a problem is one that may have a legal solution is difficult for both the target resident and the service worker. The most apparent need is for material that each individual can retain and refer to whenever necessary. This material should also be attractive, personalized, and in language as simple as possible. A pamphlet best fulfills all of these requirements.

Our pamphlet contains short narrative comments in six basic areas. Enough information is included to enable the service worker to recognize common legal problems and then to make the referral to legal aid. The short narrative statement is made personal by its placement next to a personal photograph (see figure 6).

We are also planning to make a poster with the message, "legal counsel for everyone,” along with the name of the legal aid society, with the same pictures that appear on the pamphlet. This poster will be displayed in a conspicuous place in the reception and waiting rooms, to remind the staff and the persons served of the existence of legal aid.

Collateral communications consist of visual materials specifically created to emphasize acute problems and specific solutions thereto, i.e., charts, photographs, panels of graphs, etc. This material would be for presentation to legislative or decision-making bodies. We have not yet been able to pursue to a satisfactory conclusion such a presentation.

Concurrent communication is the dissemination of material designed for the public at large. The major thrust of this material is to apprise the non-client public of the problems faced both by the legal aid clients and by the legal aid office itself as it seeks to help resolve client's problems. At the same time, these

1 Radio Message:

Don't buy a pig in a poke, no, don't buy a pig in a poke.

What does it mean for the present scene

What does it mean for the present day

It says add, subtract and multiply

Before you know what you are going to buy

It says to read the print before you sign your name on any page on the dotted line. What does it mean? It means that you see a fancy appliance and the price seems right, only a few dollars down and a couple of dollars a week- don't figure that you can afford it until you find out how much it is really going to cost you. Find out how many weeks you pay a couple of dollars and multiply. That is letting the pig out of the poke. You know what It means to buy a pig in a poke? It means you are paying for something you don't know too much about. In fact when you buy an item marked "as is" it means there is no guarantee of quality and if anything goes wrong with it you will probably be stuck with the repair bill-so if the salesman tells you the store will guarantee to repair an item marked "as is" you make sure that the guarantee is in writing, on the sales contract. Don't buy a pig in a poke.

materials will promote a general awareness of the legal aid society and its goals. Their aim is to generate broad community support, acceptance, and understanding of the purposes and philosophy of legal services for the poor. This information is extremely important for areas that currently exhibit hostility or distrust toward legal services projects. It is may personal feeling that such hostility is due to a void of information or actual misinformation when not based on acute self-interest.

Now we have three types of visual presentations in this category. The largest and unique is a thirty-four-panel display of photographs and separate printed quotations along with our other materials. The photographs show actual environmental conditions that are unsatisfactory and obviously need to be corrected. The panels repeat basic rights.

Additional photographs are mounted on twelve-by-eighteen-inch hardboards. The same photographs are on transparencies. Both are used as lecture aids in making presentations to groups regarding the legal aid society and its work. There is also a lecture that accompanies the visual aids both to explain and to reinforce them.

In order to create and produce all the materials, I learned of and sought out the chairman of the graphic design department of the Kansas City Art Institute. After much persuasion, I was able to interest and enlist the aid of five senior graphic design students and their professor. They worked with me for their senior class project this past spring. It was necessary for me to work extensively with them to introduce them to legal services, the Legal Aid and Defender Society of Greater Kansas City, the community and its problems, and the system of laws. It was also necessary for me to write copy for their use on the posters and in the pamphlet and the legal aid story.

Rather than being an attempt to preempt and exhaust the field of community education, these materials are just barely a beginning. We hope they will lead to the development of many additional ones. Much more development time is needed. There must be extensive work in close coordination with graphic designers both to expand on the current material and also to create new techniques and materials.

One of the projects that I suggested but that could not be pursued was the design of a pamphlet for target residents (actual or potential legal aid clients). This pamphlet should be extremely simplified and colorful and should contain a lot of symbolic representations. Its purpose would be to give enough basic information to enable the resident to recognize a specific problem with legal consequences and either act in his stated best interest, or seek assistance from the appropriate professional person.

Graphic design assistance in the development of educational materials has finally come with our entry into the 70's. Its long absence may have been due partially to the rigid ethical restrictions on private attorneys against advertising for clients and partially due to the unavailability of funds for such development by legal aid societies. The task is not easy since 2,354 hours of voluntary time were spent by the art students alone while working on this project.

Those who feel that community education materials might be unethical solicitation of clients should read Padnos, "Legal Aid and Legal Ethics," 5 Georgia State Bar J. 349 (1969).

Anyone who has worked in a legal aid office for any appreciable time, as I have, has probably looked forward to the day when no client would come in, so that previously accepted cases could be serviced. Legal aid operations have only more work, not money or profit, to gain from community education.

The service is free, and the community can be assured that only bona fide cases will be accepted. Actually, the danger is that bona fide cases will not be accepted because of time and staff limitations and not the opposite. Perhaps for that reason, the directors of some programs have tended to discourage the dissemination of referral information out of fear of inability to handle increased new client intake. If you should want a sample copy of any of the materials described in this article, write to me at the School of Law, University of Missouri-Kansas City, 5100 Rockhill Road, Kansas City, Missouri, 64110. I will be glad to furnish a sample for you to adapt to your own office and clients.

It is now more essential than ever that all persons receive the maximum benefits to which they are entitled under law. Ignorance of the law or of the benefits available has been a formidable obstacle for some as well as lack of opportunity for others. Through the development and use of graphics, we now have a chance to inform the uninformed and direct to professional assistance those who are seeking but finding naught.

Day to Day Work In Poverty Law In a Metropolitan Area

by Paul T. Miller* and Margaret Shulenberger**

I. Introduction

This article is an attempt to describe in capsule form the activities of the civil division of the Legal Aid and Defender Society of Greater Kansas City.' Originally intended as an aid to an outside evaluation of the program during the year July 1, 1969, to July 1, 1970, it has been compiled from office reports and cases of individual lawyers on the Society's staff.

In order to understand the scope of the Kansas City program, a brief mention of certain political-geographical peculiarities of the area is called for. The Greater Kansas City area has been variously defined, but includes at least five counties in two states. The Society's activities are limited to three Missouri counties (Jackson, Platte and Clay), but Wyandotte and Johnson counties in Kansas are also an integral part of the metropolitan area. There is no break in urban development between Kansas City, Missouri, and Wyandotte or Johnson County, Kansas.

Wyandotte County is roughly equivalent to Kansas City, Kansas-an old, established industrial city. Wyandotte County maintains its own legal services program. Johnson County was mainly rural until fairly recently. In recent years, however, there has been a vast development of Johnson County, Kansas, as a suburb of

* Executive Director of The Legal Aid and Defender Society of Greater Kansas City, Inc.; member, Wisconsin Bar and Missouri Bar; member, Board of Directors, National Legal Aid and Defender Association (NLADA); member, Steering Committee of OEO Legal Services' national Project Directors Advisory Group (PAG).

** Community Education Coordinator of The Legal Aid and Defender Society of Greater Kansas City, Inc.; student, UMKC School of Law.

1. Of the Society's 35 lawyers, eight are involved exclusively in criminal work. The Society's criminal division supplies courts in Jackson County, Missouri, with "public defender" services, which are not included in the present discussion.

2. The U.S. Bureau of the Census includes six counties in the 1970 Kansas City metropolitan area: Jackson, Clay, Platte and Cass counties in Missouri plus Wyandotte and Johnson counties in Kansas. The Metropolitan Planning Commission-Kansas City Region adds Ray County, Missouri, and Leavenworth County, Kansas, for a total of eight counties in the Kansas City metropolitan area.

Kansas City, Missouri. Many higher-income families have moved from Kansas City proper into one of the Johnson County municipalities. This great shift in population has caused municipal Kansas City, Missouri, to have an increasingly greater ratio of families of lower income. Johnson County claims to be one of the two or three wealthiest counties per capita in the United States, and is able to spend almost 90% of each tax dollar on its excellent school system since it does not need to provide the metropolitan services already supplied by Kansas City, Missouri. Until very recently, Johnson County has had no plans for a legal aid program, the general feeling being that there are practically no poor people in Johnson County.

To the east of Kansas City, Missouri, also without a break in urban development, lies Independence, the county seat of Jackson County. (There are, in fact, two courthouses; the one in downtown Kansas City contains most of the county's offices.) The northern border of Jackson County is the Missouri River; however, the municipality of Kansas City, Missouri, extends northward and northeastward into Platte and Clay counties. These counties also contain many small autonomous municipalities, some of which have been completely surrounded by expanding Kansas City. As one gets farther from the center of Kansas City, Platte and Clay counties become increasingly rural.

The Society operates seven offices in Jackson, Clay and Platte counties. The four Kansas City offices and the Independence office deal mainly with urban populations and urban problems, whereas the Platte and Clay county offices serve a relatively large rural area as well as some urban areas. Poverty problems in these counties may be either urban or rural.

It is also perhaps worth noting that there is only an extremely inadequate system of public transportation in the outlying urban area

*The 1950 and 1960 census included 4 counties (Jackson, Clay, Wyandotte and Johnson) in the Greater Kansas City figure; the 1970 census has added Platte and Cass counties (Missouri), for a 6-county total.

4. In April, 1970, the Johnson County Bar Association moved to apply for funds under OEO to establish a legal services program in Johnson County. The application was not approved, however, for the reason that no new legal services programs in this area are being funded in 1970.