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$ 1060.1-1 Applicability of this subpart. (1) The funding of grantees who are This subpart applies to all Community
carrying out the purposes of this subpart Action Agencies, Limited Purpose Agen
and the provision of frequent review to
see that direct involvement of poor peocies, and State Economic Opportunity Offices assisted by OEO under Title II
ple is maintained and increasing;
(ii) The requirement that all funding and III of the Economic Opportunity
applications must explicitly indicate a Act of 4, as amended.
course of action which will lead to im§ 1060.1-2 Policy.
provement in the involvement of poor (a) General. (1) An essential objec
people in the community action agency tive of community action is extensive and
(CAA) program; intensive participation by the poor and
(iii) Policy, guidance, training and residents of poverty areas in the plan
technical assistance to help grantees to ning, conduct, and evaluation of pro
effectively involve poor people; grams which affect their lives.
(iv) Direct efforts to encourage other (2) Without the steady growth of such
agencies, organizations and groups at the participation in both quantity and qual
national, state and local levels to adopt ity, community action cannot succeed.
strong participation of the poor policies The constituency of the Community Ac
for programs affecting poor people. tion Program and its grantees is poor
(6) To encourage and support effecpeople.
tive participation by the poor, in keeping (3) The Community Action Program
with the CAP mission and objectives, is based upon the recognition that poor
OEO has established the following minipeople possess talents and resources es
mum requirements for community action sential to reducing the problems of pov
grantees. These are minimum requireerty. They often have unique insight into
ments. OEO will continue to do everytheir own problems and valuable knowl
thing it can to assist grantees in their edge about the effect on their own lives
local efforts to exceed these basic reof the programs designed for their bene
quirements. The quality of participation, fit. Their participation in the develop
not the quantity, and continuing imment of those programs is essential to
provement are the common goals of building understanding and the will of
OEO and its community action grantees. the entire community to bring an end to
Mere gestures or empty ritual are no
substitute. poverty and to achieve effective communication between the poor and the non
(b) Community action agencies—(1)
Basic responsibilities. Every CAA has a poor. Far more relevant, sensitive, and effective programs and plans will come
fundamental responsibility to encourage, out of their participation.
assist, and strengthen the ability of the (4) In its provisions regarding partic
poor in the areas served by the CAA to ipation by the poor, the Economic Op
play major holes in the organization; portunity Act as amended in 1967 clearly
program planning; goal setting; deterrecognizes that successful community ac
mination of priorities; decisions contion must help enlist and assure effective
cerning budgeting and financial manageuse of these resources of the poor. It
ment; key decisions concerning hiring of gives more specific form to the often ex
personnel, selection criteria, personnel pressed aim of community action to help
policies, the number and type of non-prothe poor help themselves. Through the fessional jobs, training, and career deformation of their own organizations,
velopment programs; and evaluation of they can effectively speak directly for
programs affecting their lives. Decisions their interests and views within their
affecting organization can include what immediate areas and within the broader policymaking boards and committees community and work together to solve
are established and what their roles are their problems. The EOA authorizes as
in respect to each other, to paid staff, and sistance to those programs which will
to any delegate agency staff and boards; aid the poor to participate more fully in
which programs will be delegated; and the affairs of their communities.
which staff unit or other group will have (5) OEO vigorously supports the em
administrative responsibility for which phasis of the Economic Opportunity Act
programs. The fundamental responsion participation of the poor and requires
bility of the CAA includes: meaningful participation in all programs
(i) Seeking and bringing about ways funded with community action monies. to improve its own effectiveness as a It will offer this support through:
channel through which the poor, local
government and private groups can communicate, plan, and act together in partnership. In such a partnership the poor must have a strong voice or role, both directly and through representatives whom they have chosen.
(ii) Providing the representatives of the poor with the tools and the support (guidance, training, and staff assistance) which will permit them to participate meaningfully in the affairs of the CAA, and in all of its programs and delegate agencies.
(iii) Encouraging the development of effective local organizations established and controlled by residents of poverty neighborhoods or areas. Community action agencies are expected to provide training, technical assistance and staff resources to enable the poor to develop, administer, and participate effectively in local area programs and to enter into the broader community discussion of poverty problems and solutions.
(iv) Providing employment for poor persons in all phases of the community action program.
(v) Continually insuring that delegate agencies involve poor persons in the planning, conduct and evaluation of delegated programs.
(vi) Working for the acceptance by other public and private agencies and organizations serving the community of effective and growing involvement of the poor in the planning, conduct and evaluation of all activities which affect them and their inclusion in career jobs in the agencies.
(2) Representation and involvement on CAA Boards. (i) Every CAA has the obligation to assure that at least onethird of the membership of the CAA governing or administering board are representatives of the poor and residents of the areas to be served by the CAA chosen in a democratic way. (Community Action Memo 81,4 contained in the booklet “Organizing Communities for Action, sets forth on pp. 12–13 the policy for implementing this legislative requirement. The requirement that CAAs shall establish procedures in their bylaws, under which community agencies and representative groups of the poor which feel themselves inadequately represented on the CAA Board may petition for adequate representation, is spelled out on pp. 14 15.)
(1) In addition to the provision for public board meetings publicized and conducted in accordance with OEO Instruction 7042–1,' the CAA is responsible for setting up the following procedures to make certain the representatives of the poor on the board are able to participate meaningfully:
(a) The proportion of democratically selected representatives of the poor on any executive committee and on all policy making committees and other subcommittees of the CAA shall fairly reflect their proportion on the CAA Board itself;
(6) The time and place for any board, committee, advisory committee or neighborhood council meeting shall be so fixed as to insure that it will be possible and convenient for the representatives of the poor to attend;
(c) A quorum for any board or committee meeting shall be established and it shall be at least 50 percent of the membership of that board or committee;
(d) Proxy voting is prohibited;
(e) Advance notice of and the agenda (an outline of matters to be considered) for any board or committee meetings shall be provided individually to all members in writing 5 days before the meeting. In addition, notices should be given to the local public media and posted in all neighborhood or community centers along with the agenda;
(f) Written minutes which include a record of votes on all motions, shall be distributed to all board members before the next board meeting. In addition, statements or records of all actions taken at all board meetings (including the record of the vote of each member when a roll call vote has been taken) shall be made available to the public on request.
(g) In communities which include a non-English-speaking population advance notice, agendas, and minutes of meetings will be provided to any nonEnglish-speaking representatives of that population in their own language, and there must be an interpreter available to them during the meetings;
(h) Funds for transportation, baby sitting and other legitimate expenses, as well as an allowance, should be provided by the CAA to enable representatives of the poor to participate regularly in board, committee, advisory council, or neighborhood council meetings. Statements of the expenses allowed and how representatives will be repaid for what they have spent will be drawn up by the CAA and
1 Not filled with the Office of the Federal Register.
given to the members of all CAA boards neighborhood or community council) and advisory councils. (More detailed made up of neighborhood residents. If provisions for these reimbursements is these program advisory committees and spelled out in CA Memo 29A. OEO In neighborhood councils wish, they may: struction 6803-1, "Allowances and Reim (ii) Advise the CAA in setting annual bursements for Members of Policy-Mak program priorities based upon the top ing Bodies" is being developed to replace needs of the neighborhood or target CA Memo 29A.");
area; (i) Representatives of the poor on (iii) Participate in the development of CAA Boards must be given adequate in the pertinent parts of the Community formation and training about board Action Grant process; functions, duties, and responsibilities (iv) More particularly, participate in and the issues which will come before the the development of CAP Form 81, “Comboard, to permit them to make the fullest munity Action Agency Plans and Pripossible contribution to the work of the orities,” (Applying for a CAP Grant-OEO board. In this connection, the by-laws of Instruction 6710–1, pp. III 9–14) 1 and the CAA shall be distributed and fully CAP Form 7, “Program Account Work explained to the representatives of the Program,” (pp. 13–25) bearing on the poor on the board;
program operating in their neighborhood (j) Adequate information about or in the program area for which the standards of program effectiveness es advisory Committee or neighborhood tablished by OEO and by the CAA shall council is responsible. Such a committee be delivered when available to the rep or council shall add a written approval resentatives of the poor to permit them to or dissent from the CAA's Plans and plan for and evaluate CAA programs and Priorities, CAP Form 81, when it is subto set priorities for the use of funds and mitted to OEO by the CAA; other resources. Evaluations of CAA pro (v) Participate in the prereview meetgrams and their operation shall consider ings with the Regional Office Field Repthe views of representatives of the poor resentative prior to the submission of on the CAA Board, as well as the views the funding request. of program participants and area (vi) Review and comment on existing residents;
or proposed CAA projects, policies, and (k) Representatives of the poor on plans and on major OEO policy instrucCAA Boards will participate in the de tions sent to the CAA for comment; velopment of all parts of the CAA grant (vii) Receive from the CAA copies of application, including “CAA Plans and OEO publications, instructions, program Priorities,” the work program, and the guidance and operating handbooks; prereview meetings with the OEO Re (viii) Participate in evaluations of gional Office Field Representative.
programs operated or delegated by the (3) Project Advisory Committees and CAA and present their findings to the neighborhood or Target Area Councils. CAA Board for its consideration; (i) While OEO recognizes that unique (ix) Review and comment on CAA conditions exist in different regions of self-evaluation reports, OEO on-site the country and in rural and urban com evaluation reports, audits, and studies munities and that the means of partici or evaluations contracted privately by pation of the poor may therefore legiti the CAA. Privacy of personnel matters mately differ, every CAA is nonetheless should be protected by pulling out senresponsible for developing effective in sitive references rather than withholding volvement of the poor in each major pro the whole document from distribution; gram and in each of its target areas. (x) Have an influential voice (though This involvement may be in the form of not necessarily the only voice) in the ap(a) a program advisory committee com
proval of program staff working in their posed of at least 50 percent democratically selected representatives of the poor
geographical area (i.e., neighborhood being served by an individual program
center directors in the case of neighborarea (as required in the national empha
hood councils) or in the program for sis programs such as Head Start, Legal
which they have responsibility (i.e., a Services, etc.) or (b) a neighborhood or
Head Start Director in the case of a target area based organization (such as a
parent advisory committee), and have an
influential voice in the development of 1 Not filed with the Office of the Federal personnel policies and standards for Register.
selection of other staff personnel;
(xi) Work toward an effective role ices within the reach of the poor. When(a) in the planning, coordination, con ever possible, the services can be made duct and evaluation of all related poverty available through neighborhood or comprograms supported by Federal, State or munity centers planned and operated by local funds operating in their area, and neighborhood or target area boards or (b) in assuring that existing and pro councils. The success of the CAA in this posed services in the neighborhoods and effort will be judged by the ability of target areas are responsive and relevant neighborhood or target area groups to to community problems and are fully deal effectively with public and private adapted to neighborhood needs and agencies regarding the distribution and conditions.
productive use of resources to meet the (4) Neighborhood or Target Area Or needs of area residents. ganizations. (i) To strengthen the voice (v) A subcommittee on each CAA of poor people in the decisions which af
Board, including representatives of the fect them and to increase the participa poor, as well as qualified staff, should be tion of poor people in the community ac assigned specific responsibilities to astion process, each CAA is expected to sure that the CAA is providing effective recognize or help establish target area or assistance and support to the developneighborhood-based organizations and ment of neighborhood or target area orto negotiate with them regarding their ganization capabilities. role in CAA-sponsored programs. The (5) Delegate agencies. (1) When proCAA must provide adequate support, grams and funds are delegated by the guidance, training, and technical assist
CAA, the CAA shall require the same ance to such organizations to help them
policies and procedures for participabecome effective spokesmen and to at tion of the poor as those established in tract additional resources from public this subpart for CAAS. and private sources. This assistance may (ii) Delegate agencies established speinclude the provision of funds to permit cifically to operate programs funded the neighborhood or target area organi through the CAA (such as area or county zation to hire their own expert assistance policy boards or councils servicing an directly (lawyers, program specialist, entire political subdivision) or whose planners, or trainers). With such support primary responsibility is for programs they can take part in community de sponsored by the CAA must have governcisions affecting them on a basis of ing boards at least one-third of whose equality with those who are not poor. members are democratically selected
(ii) These neighborhood or target area representatives of the poor residing organizations must be (a) kept informed within that area. In the case of those of all actions of the CAA or its delegate area boards or council which cover less agencies which affect the neighborhood, than an entire political subdivision, at and (6) given sufficient advance notice
least a majority of its members must be of CAA or delegate agency board meet representatives of the poor residing ings and the issues to be discussed to per within the area. Target area or neighmit neighborhood or target area residents borhood based organizations or corporato consider the choice and develop neigh tions may have boards composed solely borhood proposals to present to the CAA. of the 'democratically selected repre
(iii) In order to increase the capability sentatives of area residents, but in those of neighborhood or target area organiza cases where major policy or funding tions, the CAA and neighborhood organi responsibilities are delegated, provision zations should determine jointly the ex must be made for representation of tent to which the neighborhood organi elected public officials. zations will be delegated responsibility (iii) Delegate agencies whose primary for the planning, funding, conduct or ad
responsibilities are for programs not ministration of program activities within the neighborhood or target area. Any
sponsored by the CAA (such as school
boards) must establish an advisory board such delegation should take account of the capability of the organization to per
or committee to assist in the planning, form the functions effectively.
conduct, and evaluation of its commun(iv) Each CAA shall take every op
ity action programs. At least a majority portunity to assist the neighborhood or of the membership of such boards must target area organizations in their efforts be democratically selected representato improve existing service programs in tives of the poor served by the delegated the community and bring additional serv community action program.
66-100 072 -28
(c) Limited purpose agencies. Limited (iv) Funds for transportation, babypurpose agencies shall have either a gov sitting, and per diem to enable these erning body made up of one-third repre representatives of the poor to particisentatives of the poor or a policy advisory pate regularly in advisory Committee committee composed of at least 50 per meetings shall be provided by the SEOO cent democratically selected representa from OEO funds. tives of the poor being served by the (e) Participation through employOEO-funded program. Limited purpose ment. (i) Every grantee, including agencies shall take the initiative in de SEOOs which operate OEO-funded stateveloping measures to implement the wide poverty programs, and delegate same requirements described in this sub agency must develop and include in their part for every CAA for the participation personnel policies specific plans to fill of the poor in the planning, conduct, staff positions to the greatest extent posand evaluation of OEO-funded programs.
sible with individuals who are poor. Such The burden of proof shall be on the policies must emphasize opportunities for limited purpose agency to document in training and career advancement and writing if it is legally unable to abide for employment of poor people in staff by the standards of this subpart.
positions which are directly involved in (d) State Economic Opportunity Of the planning, budgeting, funding, confices. (i) In addition to assisting in the duct, administration and evaluation of implementation of the general policy
the programs. statement of this subpart, the State (ii) These policies must provide for Economic Opportunity Office (SEOO) (a) the development of job and staffing shall promote the maximum feasible requirements (by analyzing jobs to departicipation of poor people in the plan
termine if a professional is needed and ning, conduct and evaluation of other
by breaking down jobs in such a way to state agency operations and programs
create “new careers”) so as to maximize which affect the poor. The SEOO shall
the number of nonprofessional positions; encourage and work toward the devel
(b) the establishment of job qualificaopment of career opportunities for the
tions based on the personal ability of an poor within other state agencies.
individual to perform, rather than on (ii) State Economic Opportunity Of
formal requirements of education and fices, whenever possible and consistent
development with State laws and regulations, shall
through increasing the amount of reemploy poor people as staff or as con
sponsibility in the task performed so sultants to help carry out training and
that poor persons employed by the CAA technical assistance functions to commu
may have opportunities for advancement nity action programs.
to the fullest extent of their abilities; (iii) Each SEOO which operates OEO
and (d) continued on-the-job training funded statewide poverty programs shall
and constructive supervision needed to establish an advisory committee of rep
permit advancement. resentatives of the poor. When the SEOO
(iii) Every CAA further has the resubmits an application for the funding
sponsibility for developing career opporof a statewide program, it shall have
tunities for the poor in other local agenestablished an advisory committee which
cies, both public and private. shall have participated in planning the
(f) Participation in evaluation. Comprograms. A representative elected by the
munity Action Agencies, limited purpose representatives of the poor of each CAA
agencies, and State Economic OpportuBoard in the state shall serve as a mem
nity Offices must obtain the views of ber of the SEOO Advisory Committee.
program participants and area residents These SEOO Advisory Committees shall:
as well as the views of representatives of (a) Meet not less than four times a
the poor on boards, committees and
councils as part of their evaluation of year; (b) Participate in the development
grantee or delegate agency programs and of policies and procedures for the state
operations. wide programs; review and comment on
§ 1060.1-3 Procedures. the programs; participate in evaluations; and present their findings to the
(a) Compliance (1) Grantee and SEOO for its consideration;
delegate agency report. Each grantee (c) Recommend to the SEOO the ad and delegate agency has a responsibility visability of operating new statewide to implement the policies and standards programs.
of this subpart. Implementation of this