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able action activities administration agencies American apparent areas Association authority become central cities civil civil society concern Congress considered constitutional continuing cooperative Court demands direct dominant economic efforts elections equal established example existence expenditures federal aid federal government federal system field figures formal frontier functions funds gain governmental grants greater groups Illinois important increased individual influence institutions interests intergovernmental internal involved issue kind least legislation less limited localities maintain maintenance major matters means ment metropolitan Michigan needs Negro operations organization particularly party patterns political culture political systems population position possible pressures problems programs recent reflect relations relationships remain representatives requirements responsibility role rule serve share social South southern specific standards state's Table tion tradition United University urban Washington welfare West York