The push for decentralization comes at least partly from frustration at the top bred from the realization that very large units cannot manage social action programs effectively. The push for community control comes from frustration at the bottom. The supposed beneficiaries of social action programs, especially the poor and the black, feel themselves objects rather than participants in the process. The demand for community control, especially in the ghetto, reflects the feeling that schools and hospitals and welfare centers are alien institutions run by hostile members of another culture unable to understand the problems of the community they serve or to imagine their solution.