But what is a community and what is community organization? Before assessing the communal efficiency one should at least be able to describe a community. The simplest possible description of a community is this: a collection of people occupying a more or less clearly defined area. But a community is more than that. A community is not only a collection of people, but it is a collection of institutions. Not people, but institutions, are final and decisive in distinguishing the community from other social constellations.
Among the institutions of the community there will always be homes and something more: churches, schools, playgrounds, a communal hall, a local theater, perhaps, and, of course, business and industrial enterprises of some sort. Communities might well be classified by the number and variety of the institutions—cultural, political, and occupational—which they possess. This would indicate the extent to which they were autonomous or, conversely, the extent to which their communal functions were mediatized, so to speak, and incorporated into the larger community.
There is always a larger community. Every single community is always a part of some larger and more inclusive one. There are no longer any communities wholly detached and isolated; all are interdependent economically and politically upon one another. The ultimate community is the wide world.
a) The ecological organization.—Within the limits of any community the communal institutions—economic, political, and cultural—will tend to assume a more or less clearly defined and characteristic distribution. For example, the community will always have a center and a circumference, defining the position of each single community to every other. Within the area so defined the local populations and the local institutions will tend to group themselves in some characteristic pattern, dependent upon geography, lines of communication, and land values. This distribution of population and institutions we may call the ecological organization of the community.
Town-planning is an attempt to direct and control the ecological organization. Town-planning is probably not so simple as it seems. Cities, even those like the city of Washington, D.C., that have been most elaborately planned, are always getting out of hand. The actual plan of a city is never a mere artifact, it is always quite as much a product of nature as of design. But a plan is one factor in communal efficiency.
b) The economic organization.—Within the limits of the ecological organization, so far as a free exchange of goods and services exists, there inevitably grows up another type of community organization based on the division of labor. This is what we may call the occupational organization of the community.
The occupational organization, like the ecological, is a product of competition. Eventually every individual member of the community is driven, as a result of competition with every other, to do the thing he can do rather than the thing he would like to do. Our secret ambitions are seldom realized in our actual occupations. The struggle to live determines finally not only where we shall live within the limits of the community, but what we shall do.
The number and variety of professions and occupations carried on within the limits of a community would seem to be one measure of its competency, since in the wider division of labor and the greater specialization—in the diversities of interests and tasks—and in the vast unconscious co-operation of city life, the individual man has not only the opportunity, but the necessity, to choose his vocation and develop his individual talents.
Nevertheless, in the struggle to find his place in a changing world there are enormous wastes. Vocational training is one attempt to meet the situation; the proposed national organization of employment is another. But until a more rational organization of industry has somehow been achieved, little progress may be expected or hoped for.
c) The cultural and political organization.—Competition is never unlimited in human society. Always there is custom and law which sets some bounds and imposes some restraints upon the wild and wilful impulses of the individual man. The cultural and political organization of the community rests upon the occupational organization, just as the latter, in turn, grows up in, and rests upon, the ecological organization.