The Rostrum

Local government in Illinois defies description. First, there is so much of it — 6,627 units in Illinois, more units of local government than any other state in the nation and 50 percent more than the state with the second highest number. In addition to state government, there are cities, villages, towns, counties, townships, school districts and special taxing districts that abate mosquitos, reclaim water and manage parks and recreation.

Second, these units are significantly different from each other in size, scope, structure, function, budgets, personnel practices, professional expertise and political influence. There are, among others, commissioner forms, council-manager forms and strong mayor forms of government. Nearly all face increasingly complex and costly responsibilities that demand attention and expertise, such as state and federal mandates, environmental regulations and restrictive tax policy and property tax caps.

Third, there is no consensus among elected officials, government professionals or expert observers on addressing the many problems and complexities that local governments increasingly face. Nor is there any willingness on anyone's part to champion controversial, but common sense, solutions to some of these problems. In addition, there is no single organization that represents the interests of local government in Illinois. Most of the organizations that do exist, some excellent and others mediocre, do not have the capacity or the desire to perform this function. Those governments in especially dire straits are the smallest units, which are isolated geographically and professionally and often subject to the whims of a long-standing political power structure

Unfortunately, it appears as if no one is paying attention to local government in Illinois. Said one professional from southern Illinois about the state's lack of interest in enforcing its own regulations on water quality: "Everyone knows that no one from the state is ever going to get down here to check us out. If they did, they might shut us down."

The Illinois Commission on the Future of Public Service attempted to take a closer look at local government in Illinois. A non-partisan, privately funded group sponsored by the Chicago Community Trust, the commission declared in May 1990 that Illinois needed to assess government's ability to meet increasingly complex demands in an era of decreasing resources. Specifically the commission sought to assess government's ability to attract and retain the best professionals possible. It succeeded in conducting this type of review for the state of Illinois, Cook County and the city of Chicago, and it was able to publish findings and recommendations and elicit serious responses from elected leadership. But reviewing local government in the rest of the state proved a baffling task, one that this commission could not complete within the 15 months of its mandate. Its effort, however, produced a series of significant questions, most of which it could not answer but all of which prompt serious debate.

During eight statewide roundtable discussions, the commission listened to local government professionals describe the barriers that prevented them from providing the highest levels of public service possible. These included inadequate technical and managerial supports, extremely limited representation in Springfield and negative attitudes toward government in general. It also listened to their recommendations, which included consolidation, more cooperative relationships among professional organizations, and efforts to improve local governments' relationship with state government.

What was disturbing, however, was the level of pessimism these professionals professed about the capacity and willingness of government to respond to any of the barriers they identified or the solutions they offered. They held little hope that local governments could muster enough courage or clout to put their concerns on any agenda, including that of their own elected officials.

But if their descriptions of problems are accurate, and there is reason to believe that they are, then there is great cause for concern, especially if no institution, individual or group is willing to take on these issues. Because its mandate has expired, this commission cannot provide any further assistance in this area. But it can prod those interested in this topic with questions that not only need to be asked but answered. Specifically:

• Should the state of Illinois play a greater role in local government affairs, and if so, then how might this be funded? Could extension services play a greater role? Could the state comptroller expand her capacity to respond to local governments' financial management needs?

• How can professional organizations improve their ability to represent local governments in Springfield and what might force this to happen? How can government professionals and elected officials work cooperatively and pragmatically to increase professionalism and reduce political influence?

• If individuals privately agree that there are too many units of government in Illinois, then why won't they publicly work toward consolidation where and when it makes sense?

• Why are there only extremely limited efforts to educate the public, from school age children to adults, on the responsibility and complexity of local governments?

There are other questions. These are the most compelling. If not answered, they should at least be discussed because, according to a longtime mayor of a very small town, you just can't do it the old way anymore; running a town has become too complicated.

The Illinois Commission on the Future of Public Service did its studies from June 1990 to October 1991. For further information on the work of the commission, write to The Government Assistance Project of The Chicago Community Trust, 222 N. LaSalle, Suite 1450, Chicago, Illinois 60601-1009.

January 1992/Illinois Issues/31