Assets-Based Community Development

John Kretzmunn andJohn l? McKnight

N o one can doubt that most American cities these

days are deeply troubled places. At the root of the
problems are the massive economic shifts that have
call forth a rush of images. It is not surprising that these
images are overwhelmingly negative. They are images of
crime and violence, of joblessness and welfare dependen-
marked the last two decades. Hundreds of thousands of cy, of gangs and drugs and hopelessness, of vacant and
industrial jobs have either disappeared or moved away abandoned land and buildings. They are images of needy
from the central city and its neighborhoods. And while and problematic and deficient neighborhoods populated
many downtown areas have experienced a “renais- by needy and problematic and deficient people.
sance,” the jobs created there are different from those
that once sustained neighborhoods. Either these new These negative images, which can be conceived as a
jobs are highly professionalized, and require elaborate kind of mental “map” of the neighborhood often convey
education and credentials for entry, or they are routine, part of the truth about the actual conditions of a trou-
low-paying service jobs without much of a future. In bled community. But they are not regarded as part of the
effect, these shifts in the economy, and particularly the truth; they are regarded as the whole truth.
disappearance of decent employment possibilities from
low-income neighborhoods, have removed the bottom Once accepted as the whole truth about troubled
rung from the fabled American “ladder of opportunity” neighborhoods, this “needs” map determines how
For many people in older city neighborhoods, new problems are to be addressed, through deficiency-ori-
approaches to rebuilding their lives and communities, ented policies and programs. Public, private and non-
new openings toward opportunity, are a vital necessity. profit human service systems, often supported by uni-
versity research and foundation funding, translate the
Two SOLUTIONS,Two PATHS programs into local activities that teach people the
In response to this desperate situation, well-intended nature and extent of their problems, and the value of
people are seeking solutions by taking one of two diver- services as the answer to their problems. As a result,
gent paths. The first, which begins by focusing on a many lower income urban neighborhoods are now envi-
community’s needs, deficiencies and problems, is still by ronments of service where behaviors are affected
far the most traveled, and commands the vast majority of because residents come to believe that their well-being
our financial and human resources. By comparison with depends upon being a client. They begin to see them-
the second path, which insists on beginning with a clear selves as people with special needs that can only be met
commitment to discovering a community’s capacities by outsiders. They become consumers of services, with
and assets, and which is the direction this guide recom- no incentive to be producers. Consumers of services
mends, the first and more traditional path is more like focus vast amounts of creativity and intelligence on the
an eight-lane superhighway. survival-motivated challenge of outwitting the “system,”
or on finding ways - in the informal or even illegal
The Traditional Path - economy - to bypass the system entirely.
A Needs-Driven Dead End
For most Americans, the names “South Bronx,” or There is nothing natural or inevitable about the
“South Central Los Angeles,” or even ‘‘Public Housing” process that leads to the creation of client neighbor-

I996, VOL 85, NO 4 8 2.3

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hoods. In fact, it is important to note how little power

local neighborhood residents have to affect the pervasive H Making resources available on the basis
nature of the deficiency model, mainly because a number of the needs map can have negative
effects on the nature of local communi-
of society’s most influential institutions have themselves
ty leadership. If, for example, one mea-
developed a stake in maintaining that focus. For example, sure of effective leadership is the ability
much of the social science research produced by univer- to attract resources, then local leaders
sities is designed to collect and analyze data about prob- are, in effect, being forced to denigrate
lems. Much of the funding directed to lower income com- their neighbors and their community by
munities by foundations and the United Way is based on highlighting their problems and defi-
the problem-oriented data collected in “needs surveys,” a ciencies, and by ignoring their capaci-
practice emulated by government human service agen- ties and strengths.
cies. Finally, the needs map often appears to be the only
neighborhood guide ever used by members of the mass W Providing resources on the basis of
the needs map underlines the per-
media, whose appetite for the violent and the spectacu-
ception that only outside experts can
larly problematicstory seems insatiable.All of these major
provide real help. Therefore, the rela-
institutions combine to create a wall between lower tionships that count most for local
income communities and the rest of society - a wall of residents are no longer those inside
needs which, ironically enough, is built not on hatred but the community, those neighbor-to-
(at least partly) on the desire to “help.” neighbor links of mutual support and
problem solving. Rather, the most
The fact that the deficiency orientation constitutes important relationships are those that
our only guide to lower income neighborhoods has dev- involve the expert, the social worker,
astating consequences for residents. We have already the health provider, the funder. Once
noted one of the most tragic -that is, residents them- again, the glue that binds communi-
ties together is weakened.
selves begin to accept that map as the only guide to the
reality of their lives. They think of themselves and their =Reliance on the needs map as the
neighbors as fundamentally deficient, victims incapable exclusive guide to resource gathering
of taking charge of their lives and of their community’s virtually ensures the inevitable deepen-
future. But other consequences flow as well from the ing of the cycle of dependence: prob-
power of the needs map. For example: lems must always be worse than last
year, or more intractable than other
W Viewing a community as a nearly end- communities, if funding is to be
less list of problems and needs leads renewed.
directly to the much lamented fragmen-
tation of efforts to provide solutions. It W At best, reliance on the needs maps as
also denies the basic community wis- the sole policy guide will ensure a
dom which regards problems as tightly maintenance and survival strategy tar-
intem-ned, as symptoms in fact of the geted at isolated individual clients, not
breakdown of a community‘s own a development plan that can involve
problem-solvingcapacities. the energies of an entire community.

Targeting resources based on the needs W Because the needs-based strategy can
map directs funding not to residents but guarantee only survival, and can never
to service providers, a consequence not lead to serious change or community
always either planned for or effective. development, this orientation must be
 The hard truth is that
regarded as one of the Creative neighborhood leaders
major causes of the sense of
development must
hopelessness that pervades
start from within the across the country have begun to recognize
this hard truth, and have shifted their prac-
discussions about the future community and, in tices accordingly. They are discovering that
of low income neighbor- most of our urban
wherever there are effective community
hoods. From the street cor- neighborhoods, there
ner to the White House, if is no other choice.
development efforts, those efforts are based
maintenance and survival upon an understanding, or map, of the com-
are the best we can provide, what sense munity’s assets, capacities and abilities. For it
can it make to invest in the future? is clear that even t he poorest neighborhood is a place
where individuals and organizations represent
THEALTERNATIVE PATH: resources upon which to rebuld. The key to neighbor-
CAPACITY-FOCUSED DEVELOPMENT hood regeneration, then, is to locate all of the available
If even some of these negative consequences follow local assets, to begin connecting them with one another
from our total reliance upon the needs map, an alterna- in ways that multiply their power and effectiveness, and
tive approach becomes imperative.That alternativepath, to begin harnessing those local institutions that are not
very simply, leads toward the development of policies yet available for local development purposes.
and activities based on the capacities,skills and assets of
lower income people and their neighborhoods. Once this guide to capacities has replaced the old
one containing only needs and deficiencies, the regen-
In addition to the problems associated with the dom- erating community can begin to assemble its strengths
inant deficiency model, at least two more factors argue into new combinations, new structures of opportunity,
for shifting to a capacity-orientedemphasis. First, all the new sources of income and control, and new possibili-
historic evidence indicates that significant community ties for production.
development takes place only when local community
people are committed to investing themselves and their
resources in the effort. This observation explains why THEAssm OF A COMMUNITY:
communities are never built from the top down, or from IN DIMDUALS, ASSOCIATIONS, INSTITUTION
the outside in. Clearly, however, valuable outside assis- Each community boasts a unique combination of
tance can be provided to communities that are actively assets upon which to build its future. A thorough map of
developing their own assets. those assets would begin with an inventory of the gifts,
skills and capacities of the community’s residents.
The second reason for emphasizing the development Household by household, building by building, block by
of the internal assets of local urban neighborhoods is block, the capacity map-makerswill discover a vast and
that the prospect for outside help is bleak indeed. Even often surprising array of individual talents and produc-
in areas designated as Enterprise Zones, the odds are tive skills, few of which are being mobilized for commu-
long that large-scale, job-providingindustrial or service nity-building purposes. This basic truth about the “grft-
corporations will be locating in these neighborhoods. edness” of every individual is particularly important to
Nor is it likely, in the light of continuing budget con- apply to persons who often find themselves marginalized
straints, that signhcant new inputs of federal money will by communities. It is essential to recognize the capaci-
be forthcoming soon. It is increasingly futile to wait for ties, for example, of those who have been labeled men-
significant help to arrive from outside the community. tally handicapped or disabled, or of those who are mar-
The hard truth is that development must start from with- ginalized because they are too old, or too young, or too
in the community and, in most of our urban neighbor- poor. In a community whose assets are being fully rec-
hoods, there is no other choice. ognized and mobilized, these people too will be part of
Wimm I996,V O L . ~ No
~ , 4 25
 Establishing within
the action, not as clients or recipients of each institution a that allow communities to influence and
aid, but as full contributors to the com- sense of responsibili- even control some aspects of the institu-
munity-building process. ty for the health of the tion’s relationships with its local neighbor-
local community, hood, can prove much more difficult.
In addition to mapping the g&, and along with mecha- Nevertheless, a community that has located
skills of individuals, and of households nisms that allow com- and mobilized its entire base of assets will
and families, the committed community munities to influence clearly feature heavily involved and invest-
builder will compile an inventory of citi- and even control ed local institutions.
zens’ associations. These associations, some aspects of the
less formal and much less dependent institution’s relation- Individuals, associations and institu-
upon paid staff than are formal institu- ships with its local tions are the three major categories that
tions, are the vehicles through which citi- neighborhood, can contain within them much of the asset base
zens in the U.S. assemble to solve prob- prove much more dif- of every community.
lems, or to share common interests and f icuI t.
activities. It is usually the case that the AN ALTERNATIVE COMMUNITY
depth and extent of associational life in any community DEVELOPMENT PATH: ASSET-
is vastly underestimated. This is particularly true of BASED, INTERNALLY FOCUSED, RELATIONSHIP
lower income communities. In fact, however, though DRIVEN
some parts of associational life may have dwindled in As we begin to describe the basic elements of an
very low income neighborhoods, most communities asset-based community development process, it is
continue to harbor signilkant numbers of associations important to place this discussion in its larger context.
with religious, cultural, athletic, recreational and other ’Mo major quahfications should be stated as strongly as
purposes. Community builders soon recognize that these possible.
groups are indispensable tools for development, and
that many of them can in fact be stretched beyond their First, focusing on the assets of lower income com-
original purposes and intentions to become full contrib- munities does not imply that these communities do not
utors to the development process. need additional resources from the outside. Rather, out-
side resources will be much more effectively used if the
Beyond the individuals and local associations that local community is itself fully mobilized and invested,
make up the asset base of communities are all of the and if it can define the agendas for which additional
more formal institutions which are located in the com- resources must be obtained. The assets within lower
munity. Private businesses; public institutions such as income communities, in other words, are absolutely
schools, libraries, park, police and fire stations; non- necessary but usually not sufficient to meet the huge
profit institutions such as hospitals and social service development challenges ahead.
agencies - these organizations make up the most visi-
ble and formal part of a community’s fabric. Accounting Second, the discussion of asset-based community
for them in full, and enlisting them in the process of development is intended to affirm, and to build upon the
community development, is essential to the success of remarkable work already going on in neighborhoods
the process. For community builders, the process of across the country. Asset-bltred community development
mapping the institutional assets of the community will acknowledges and embraces particularly the strong
often be much simpler than that of making an inventory neighborhood-rooted traditions of community organiz-
involving individuals and associations. But establishing ing, community economic development and neighbor-
within each institution a sense of responsibility for the hood planning. In fact, experienced leaders in these
health of the local community, along with mechanisms three areas have been among our most valuable sources
26 1996, VOL85,NO 4
WINTER
of inspiration and guidance. The approach outlined in If a community development process is
this guide is intended to complement, and sometimes to to be asset-based and internally
precede, their efforts - not to substitute for them. focused, then it will be in very impor-
tant ways "relationship driven." Thus,
one of the central challenges for asset-
These caveats understood, then, "asset-based com-
based community developers is to
munity development" deserves a little more introduction constantly build and rebuild the rela-
and definition. This process can be defined by three tionships between and among local
simple, interrelated characteristics: residents, local associations, and local
institutions.
Obviously enough, the first principle
that defines this process is that it is Skilled community organizers and effective commu-
"asset-based." That is, this community nity developers already recognize the importance of
development strategy starts with what
relationship building. For it is clear that the strong ties
is present in the community, the capac-
which form the basis for community-based problem
ities of its residents and workers, the
associational and institutional base of solving have been under attack. The forces driving peo-
the area - not with what is absent, or ple apart are many and frequently cited - increasing
with what is problematic, or with what mobility rates, the age and not least from the point of
the community needs. view of lower income communities, increasing depen-
dence upon outside, professionalized helpers.
Because this community development
process is asset-based, it is by necessi- Because of these factors, the sense of efficacy based
ty "internally focused." That is, the on interdependence, the idea that people can count on
development strategy concentrates first
their neighbors and neighborhood resources for sup-
of all upon the agenda building and
problem-solvingcapacities of local resi-
port and strength has weakened. For community
dents, local associations, and local insti- builders who are focused on assets, rebuilding these
tutions. Again, this intense and self- local relationships offers the most promising route
conscious internal focus is not intended toward successful community development.
to minimize either the role external
forces have played in helping to create This article was excerpted from the authors' book,
the desperate conditions of lower Building Community From the Inside Out To order a
income neighborhoods, or the need to copy, contact ACTA Publications, I-800-397-2282,
attract additional resources to these 4848 North Clark Street, Chicago, IL 60640.
communities. Rather this strong inter-
nal focus is intended simply to stress
the primacy of local definition, invest-
ment, creativity, hope and control.

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NEEDS
NEIGHBORHOOD MAP

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MAP
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WMER1996, VOL 85,NO 4 29

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