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List of Figures and Tables vii Preface ix Abbreviations xi 1.Democracy as a Reform Strategy 1 1.1. Empowered Participation as anAdministrative Reform Strategy 2 1.2. Accountable Autonomy: An InstitutionalDesign for Empowered Participation 5 1.3. Paths More Traveled: Markets andPublic Hierarchies 8 1.4. Origins: Civic Engagement, Pragmatism, andDeliberative Democracy 14 1.5. Mechanisms of Effectiveness 18 1.6. Sourcesof Fairness 23 1.7. Exploring Accountable Autonomy, in Theory and Practice26 2. Down to the Neighborhoods 31 2.1. Perils of Patronage: SchoolGovernance in the Machine Era 31 2.2. Progressive Reform and BureaucraticAdministration, 1947-980 37 2.3. Legitimation Crisis to AccountableAutonomy, 1980-1988 39 2.4. Progressive Reformers and Machine Policing 442.5. Building the Modern Police Bureaucracy in Chicago 47 2.6. LegitimationCrisis in Policing 51 2.7. Toward Community-Centered Policing 53 2.8.Administration as Pragmatic and Participatory Neighborhood Deliberation 562.9. Deliberative Problem-Solving in Chicago LCSs 61 2.10.Communities ofInquiry in Chicago Policing 63 2.11.Conclusion 68 3. Building Capacity andAccountability 69 3.1. Dilemmas of Devolution 70 3.2. Training: Schools ofDemocracy in the Chicago Reforms 73 3.3. Mobilization 74 3.4. CognitiveTemplates for Deliberative Governance and Problem-Solving 76 3.5. Bottom-Up,Top-Down Accountability 79 3.6. Enhancing Institutional BackgroundConditions for Problem-Solving 83 3.7. Networking Inquiry 86 3.8.Redistribution to the Least Capable 89 3.9. Conflicts between Community andthe Local State 91 4. Challenges to Participation 99 4.1. Three Stages ofEmpirical Investigation 99 4.2. The Strong Rational-Choice Perspective 1014.3. Strong Egalitarianism 108 4.4. Social Capital 119 4.5. Unity and thePolitics of Difference 122 4.6. Expertise 128 5. Deliberation and Poverty132 5.1. Deliberation in Contexts of Poverty and Social Conflict 132 5.2.Initial Conditions: Six Cases in Three Neighborhoods 135 5.3. SouthtownElementary Becomes Harambee Academy 142 5.4. Central Beat: NonsystematicProblem-Solving 151 5.5. Traxton School: Wealth and Embedded Agreement 1595.6. Poverty and the Character of Pragmatic Deliberation 170 6. Deliberationin Social Conflict 173 6.1. Bridges across Race and Class in Traxton Beat173 6.2. Translation and Trust in Southtown Beat 197 6.3. The Discipline ofSelf-Reflection: Central Elementary under Probation 210 6.4. BeyondDecentralization: Structured Deliberation and Intervention 217 7. TheChicago Experience and Beyond 220 7.1. Lessons from the Street 221 7.2.System-wide Democratic and Administrative Accomplishments 225 7.3.Incomplete Politics and Institutional Instability 228 7.4. Bringing PracticeBack into Participatory and Deliberative Democratic Theory 231 7.5. BeyondChicago 233 7.6. The Promise of Participatory-Deliberative Democracy 241Notes 243 Selected Bibliography 253 Index 271