Service Challenges and Governance Issues Confronting American Counties in the 21st Century: An Overview

Abstract

The American county?long consid ered to be the bedrock of local gov ernment in the United States?has grown in importance since the middle of the 20th century. Between 1962 and 2002, the county government share of county and municipal revenues grew from 39.3 to 47.3 percent, and expenditures grew from 33.7 to 46.5 percent. As a consequence of this substantial growth in county financial activity, there has been a con comitant and stunning increase in the types and level of county government services. Re latedly, the county workforce has increased dramatically, more than tripling in size from around 700,000 full-time equivalent employ ees in 1962 to 2.3 million in 2002. In 2002, county employees accounted for 48.6 per cent of the county and municipal workforce compared with 35.7 percent in 1962. Today, counties employ almost as many people as do municipalities. Coincident with this growth, American counties face a number of challenges as ser vice-delivery agents and instruments of gov ernance in the early 21st century. Viewed from a global perspective, perhaps the most daunting challenge is whether or not coun ties can meet the myriad and far-flung expec tations that accompany the service roles coun ties are expected to play. A growing number of county governments must simultaneously function as traditional, local, and regional governments (see Benton 2002a). As tradi tional governments, counties serve as ad ministrative or political arms of their state governments and thus perform a number of state functions (many of them mandated) and services to all county residents.1 When counties function as local governments, they provide municipal-type services to residents of unincorporated areas.2 In addition, densely populated counties often serve as regional governments when they provide urban-type services to residents of both unincorporated and incorporated areas.3 This enlargement of the service role and prominence of counties and the wholly new approach to daily operations that is required means that county governments must deal with several governance issues. Indeed, these issues are part and parcel of the very essence of counties as they strive to provide tradi tional as well as municipaland urban-type services and meet the heightened expecta tions of democratic governance. As function ing full-service governments, three questions in particular are salient. First, what is the most suitable form of county government in terms of responsiveness to escalating service expectations and ability to negotiate with