The Bridges to Friendship
Partnership
A Case Study
January 2003
Excerpted from the Report:
Towards an Environmental Justice Collaborative Model: Case
Studies of Six Partnerships Used to Address Environmental
Justice Issues in Communities (EPA/1 OO-R-03-002)
Prepared for the Federal Interagency Working Group on
Environmental Justice by the U.S. EPA Office of Policy,
Economics, and Innovation
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This case study has been excerpted from the report: Towards an Environmental Justice
Collaborative Model: Case Studies of Six Partnerships Used to Address Environmental Justice
Issues in Communities ('January 2003/EPA/100-R-03-002). View this report on-line at:
http://www.epa.gov/evaluate/ej.htm. This report is a companion report to Towards an
Environmental Justice Collaborative Model: An Evaluation of the Use of Partnerships to Address
Environmental Justice Issues in Communities (January 2003/EPA/100-R-03-001). View both of
these on-line at: http://www.epa.gov/evaluate/ej.htm.
U.S. Environmental Protection Agency. Office of Policy, Economics, and Innovation.
Washington, D.C. A team based in EPAs Office of Policy, Economics, and Innovation
developed these reports. Eric Marsh was the project manager for this effort.
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The Bridges to Friendship Partnership: A Case Study
Table of Contents
Partnership Background 3
Partnership Process 4
Partnership Goals 7
Partnership Activities and Accomplishments 8
Measuring Partnership Success 10
Partnership Successes 10
Partnership Challenges 11
Interviewees' Recommendations for Improving the Partnership 13
Interviewees' Recommendations for Other Communities Using Partnerships 13
Value of the Collaborative Partnership 14
Value of Federal Involvement in the Partnership 14
Key Findings 16
List of Interviewees 18
Works Cited 19
Endnotes 20
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Partners are involved because they know it is the right thing to do and they have
been doing it for four years.
It is like going from zero collaboration to a huge amount of collaboration.
The things important to the Navy are understanding, and identifying, issues that are
important to the community, which include, jobs, environmental cleanup, parking, you
name it.
[Bridges to Friendship] is trying to embrace the unique needs of the population
through community visioning. Much work has happened in conjunction with what is
going on [with] the Navy Base.
— Interviewees, Bridges to Friendship Partnership
Community History'
Washington, D.C., the capital of the United States, is bordered by the states of Maryland
and Virginia, and divided into four quadrants: Northwest, Northeast, Southwest and Southeast.
The Southeast and Southwest quadrants consist of approximately 146,619+ people representing
a variety of racial and social backgrounds. Neighborhoods also vary ranging from upper middle
class to low income. The Southeast quadrant is also home to the Washington Navy Yard, which
is bordered by the Anacostia River to the south and occupies over seventy acres of space. The
Navy Yard is surrounded by neighborhoods noted by the local press for high drug use and crime
rates, a large unemployed population, and high numbers of welfare recipients.1
The neighborhoods in Southwest and Southeast D.C. traditionally housed lower to
middle income Caucasian and African American working classes2 For example, in the late
1800's one of the first D.C. suburbs, called Uniontown, was created for the Navy Yard workers
in Southeast D.C. Originally this was a "Whites-only" settlement but after the Civil War,
Frederick Douglas broke the exclusive covenant and many free African Americans settled in the
area.3
By 1920, Southwest and Southeast D.C. were made up of vibrant and diverse
communities. For example, Anacostia, the section of Southeast D.C. east of the Anacostia
River, claimed a higher percentage of home ownership than any other sections of D.C4 The
area was made up of thriving neighborhoods where Navy Yard employees, doctors, lawyers and
other community members shopped, visited movie theaters, and strolled down the scenic
Anacostia waterfront.5 Southwest D.C. was also thriving. Although traditionally poor, the years
between 1895 and 1930 were hailed as the neighborhood's "golden years", characterized by
rich cultural traditions and strong community ties.6
* Interviews for this case study were conducted from December 2001 through March 2002. Thirteen separate
interviews were conducted and a total of sixteen persons participated. Interviews were conducted with
representatives of non-profit organizations, federal agencies, and local agencies.
+ Figure calculated by using (1) D.C. Office Of Planning/State Data Center's information overlaying the 2000 census
tracts on the D.C. quadrant divisions, and (2) the 2000 U.S. Census population data.
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However, rapid population growth, poor zoning laws, urban renewal in selected D.C.
neighborhoods and the creation of concentrated public housing lead to a socio-economic shift in
the population of Southeast D.C. In 1967 the National Capital Planning Commission (NCPC)
began construction of 30,000 public housing units in Anacostia. Public service expansion did
not keep pace with the influx of residents to Anacostia, however, and by the 1970's "the area
schools were 83% over capacity" and there were an inadequate number of health care facilities
in the area.7 During this same time, areas in Southwest D.C. also underwent major transitions
as neighborhoods perceived by city officials as slums were cleared, streets were widened, new
streets and superblocks were constructed, and businesses, residents, and community
landmarks were relocated or eliminated.8
Through the 1980s to the late 1990s conditions in several neighborhoods throughout
Southwest and Southeast D.C. continued to deteriorate. The area's traditional diversity could
no longer be seen, and in Anacostia in the late 1990's the population was approximately 90
percent African American, seven percent Caucasian, and two percent Hispanic9. In 1997,
Anacostia residents had an average yearly income of $26,000 versus a citywide average of
$40,000, and only 28 percent of the adult residents had attended college compared to 52
percent of adult citywide residents.10
Recently however, conditions in Southwest and Southeast, have taken a turn for the
better. In 1997, for instance, the Good Hope Marketplace shopping center—the largest retail
development in Southeast D.C. in over 20 years and one of only two supermarkets in all of
Southeast—was completed.11 Similar initiatives began in Southeast in conjunction with the
planned redevelopment of the waterfront neighborhoods along the Anacostia River. During the
increased revitalization efforts in Southeast D.C., the Navy Yard also began a major
redevelopment effort. The division between the Navy Yard and the community, long symbolized
by the Yard's high brick walls, were beginning to be bridged.
Bridge building began in 1995, when the Navy Yard was designated to serve as a major
administrative facility for the Navy, through the Base Realignment and Closure Act. More than
5,000 additional military and civilian personnel were to be relocated at the Navy Yard over the
next several years, doubling its workforce at the time. Furthermore, in 1996, a lawsuit filed by
the Sierra Club alleging that waste from the Navy Yard and South East Federal Center (SEFC)
discharged into the Anacostia posed an imminent and substantial danger to human health and
the environment. In January 1997, under EPA oversight, the Navy completed an environmental
investigation of the Washington Naval Yard facility, and in 1999, the Navy Yard was approved
for cleanup under the Superfund program.
Partnership Background
In conjunction with any installation restoration, in this case, the Superfund cleanup
project, the Navy is required to establish a Restoration Advisory Board. The Navy Yard's
Restoration Advisory Board began regular meetings to inform the community about the cleanup
procedures at the Navy Yard and garner input directly from surrounding residents as well as
from local community-based organizations. Issues associated with cleanup raised concerns
from residents regarding area redevelopment and the potential displacement of surrounding
community members by new Navy Yard personnel.
The new independent development in the area, along with indications that Navy Yard
redevelopment would spur additional development outside the base, raised concerns of many
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local residents who feared that the purchase and/or restoration of deteriorating urban property
by developers or incoming, middle-class or affluent people would eventually result in the
displacement of lower-income residents. At the same time, the Navy Yard, community-based
organizations, federal, and city governments had begun to examine ways to respond to these
and other issues, including concerns about the Navy Yard work force and limitations.
Eventually, these different groups began pooling their resources in a collective effort to revitalize
the Navy Yard's surrounding communities by providing "wide access to economic, employment,
and training opportunities for residents".12 This initial collaborative effort, referred to as Walls to
Bridges, lasted less than a year. However, many of these same organizations regrouped to
form a much stronger collaborative effort in 1998, which still operates today.
In July 1998, fourteen organizations signed a partnership agreement marking the
beginning of the Bridges to Friendship (B2F) Partnership. Admiral Christopher Weaver, who
had recently become Commandant of the Washington Navy Yard, began to champion the B2F
mission. Since that time the B2F Partnership has recruited approximately 40 members,
including six federal agencies, three city agencies, 25 community-based organizations, fourfor-
profit organizations, and two universities. The partnership has also received significant attention
and praise. In 1998, the White House formally recognized the B2F Partnership for its
commitment to environmental justice and empowering community residents. Furthermore, in
May 2000, the Interagency Working Group on the Environmental Justice demonstration project
named the B2F Partnership a national Environmental Justice demonstration project, because of
its commitments to collaborative problem-solving.
Partnership Process
Upon signing the partnership agreement in July 1998, the 14 original B2F partner
organizations developed an operational
structure that consisted of five work
groups, a steering committee composed Arthur Anderson
Alice Hamilton Occupational Health Center
Covenant House Washington
D.C. Department of Employment Services
Ellen Wilson Redevelopment LLC
Friendship House Association
Global Environment & Technology Foundation
U.S. Department of Agriculture, National Forest Service
U.S. Department of Interior, National Parks Service
U.S. Department of Housing and Urban Development
U.S. Department of Labor
U.S. Environmental Protection Agency
U.S. General Services Administration
U.S. Navy, Navy District Washington
of the five work group chairs, and an
executive board composed of the
original signatories to the partnership
agreement. The Executive Board
designated an executive director to
continue building partnership resources,
conduct overall coordination of the
effort, and provide an administrative
infrastructure. The executive director
carried out his duties with the help of
contractor support. A work group chair
led each work group, whose focus was
defined by direct and indirect (via Figure^ EPA List of Original Members of the Bridges to
... , ... . , ,. Friendship Partnership
community-based organizations) public
input. The work group chairs were originally charged with implementing activities that would
move the partnership forward to meet its goals. The chairs of the workgroups were given
extensive autonomy and were expected to report to the Executive Board on actions, proposed
milestones, and needs.
Originally the Executive Board and the Steering Committee met once a month, then
settled into a quarterly schedule. The Executive Board and Steering Committee, whose roles
have been somewhat integrated over time, are charged with the tasks of maintaining the
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partnership's mission and addressing conflicts or questions brought to the B2F Partnership from
its member organizations. The executive director, David Ouderkirk, and Admiral Weaver
typically preside over these Executive Board/Steering Committee sessions, during which the
participating organizations voice their views about the partnership's progress. In addition, the
executive director also updates members on the plans and activities of the various work groups.
Following Executive Board/Steering Committee sessions, session minutes are typically written-
up, distributed to the session participants for review via electronic mail, finalized, and then made
available to all B2F Partnership members. In addition to the Executive Board/Steering
Committee sessions, the executive director occasionally calls all members together to discuss a
critical topic, or to allow the work groups to update all partner members on their recent activities.
Executive Board/Steering Committee sessions usually produce decisions that are
agreeable to all. This is perhaps, due, in part, to the notion that all those participating in the
partnership want to see genuine community redevelopment in the area. Questions raised by
partner members center more on how resources can be linked and made to fit together rather
than on whether or not something should be done. Other important reasons for the
sustainability of the effort may include the belief by participating organizations that it is in the
best interest of their own organization to participate, consistent and effective B2F leadership,
the fact that most participants either reside or work in or near the Southwest/Southeast D.C.
area, and the implementation of activities that can be easily supported by partner members and
the community. Although disagreements do arise between organizations about how activities
should be implemented, in most instances the members make a genuine effort to work through
them. If an issue around a certain activity proves irresolvable, the issue may not be addressed
again or the concerned organizations in some instances may choose to no longer participate in
that particular activity. According to the executive director, partners seek to reach consensus
positions on issues that most parties feel positive about and accommodating positions on issues
that generate strong reactions from a few or several organizations. No organization, however,
has withdrawn immediately from B2F because of a conflict; rather, dissatisfied partners
gradually reduce their participation in the partnership overtime.13
Two B2F work groups currently design and implement most of the activities for the B2F
Partnership. A work group chair is responsible for calling and facilitating work group meetings,
during which members assess existing activities and, if necessary, brainstorm, plan, and decide
how to implement new ones. Decisions on actions to take are typically based upon the needs of
the Southeast and Southwest D.C. communities as perceived by the work group members and
the resources that B2F members can provide. Once a work group agrees to a plan of action,
this plan is communicated at the Executive Board/Steering Committee meetings. Although
technically the B2F leadership can disapprove of a work group's plan, in most instances the
action plans are endorsed.
As with the Executive Board/Steering Committee meetings, in most instances little
disagreement has emerged amongst the parties within the work groups. This is due mainly,
perhaps, to the same reasons outlined above. In addition, the work groups are not static. If
members recognize that their work group is no longer critical, they either discontinue the work
group or transfer the necessary remaining functions to a more active work group.
Disagreements and challenges do arise, however. For instance, within the Job Training Work
Group, disagreements centered on both the focus and the methods to be used for the B2F job
training program.14 In addition, some work group members have shown less commitment than
others and some have been resistant to participation by various organizations with whom they
have had issues in the past. Similar to the handling of difficult topics in the Executive
Board/Steering Committee meetings, if work group members cannot resolve them, the topics
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may be left avoided, or the organization voicing the concerns may decide to leave the work
group.
The partnership primarily relies on voluntary resource commitments from its partner
members. It also originally relied upon federal funding to support the executive director position
and to provide contractor support for B2F activities and publications. In October 1998, the Navy
funded David Ouderkirk, an EPA employee under an Interagency Agreement, enabling him to
direct B2F Partnership activities. Later, in February 1999, however, the partnership
encountered problems funding its management infrastructure. Federal legal counsel
determined that the B2F Partnership was a "non-federal entity", prohibiting Navy personnel from
directing the B2F Partnership and the use of appropriated funds for any B2F activity. This
decision prohibited Ouderkirk from directing the B2F Partnership and prohibited the Navy's
contractor from working with B2F to provide support for meeting logistics, reporting, printing,
web-page design and maintenance, and list serves. Furthermore, in November 1999, the
Interagency Agreement for the executive director position had expired, and EPA found itself in
the position of no longer being able to loan B2F a full time employee. At the same time, the
partnership agreed that the position had to be funded by a non-federal organization due to the
ruling of the federal lawyers. These funding and placement issues took months to resolve and
B2F had its first regroup meeting in July 2000. These various set backs greatly hampered the
participating groups' abilities to coordinate their actions and slowed the partnership's
momentum. The funding problems have only temporarily been resolved. For the time being the
executive director position is funded by the City, but located within the federal government (U.S.
Navy). There are still no extra resources for administrative contractor support.
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Despite these challenges, approximately 40 organizations continue to participate in the
B2F Partnership and exhibit a high level of enthusiasm when working together. Although B2F
maintains a well-defined operational structure, the partnership allows for a significant degree of
organizational flexibility by design. Organizations can participate in the partnership to gain and
share information about resources and opportunities that are pertinent to their work. If
organizations identify a problem or project that fits with B2F's mission and goals, the
organizations then join the partnership, providing information, resources, and enthusiasm. If
these organizations continue to have projects that fall in line with B2F's mission as well as
resources to contribute, they become permanent partners and continue to enrich and add depth
to the partnership. If however, their plans no longer coincide with B2F's mission, the
organizations stop sending representatives to B2F meetings and stop assuming partnership
responsibilities. A representation of the B2F Partnership is shown in the figure below.
Work Groups
Job Training and Career Development
Youth Outreach
Figure 2. EPA Representation of the Bridges to Friendship (B2F) Partnership, Washington, DC
Partnership Goals
As part of B2F's formal agreement, B2F developed a vision statement, mission
statement, and statement of purpose. B2F's vision statement is described below."
Vision Statement of the Bridges to Friendship Partnership
To bring about revitalized Southeast and Southwest Washington D.C. communities, to
preserve and enhance the quality of life and the natural and cultural heritage of the area,
Bridges to Friendship will leverage existing resources and expertise, act as a catalyst, create
new synergies, and support existing efforts.
In order to bring about this revitalization, the B2F partnership, as described in its mission
statement, seeks to maintain "a process for organizational collaboration and delivery of services
in a positive operating environment for all of the partners to nurture trust, understanding, and a
shared vision."
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In addition to the statement of purpose, mission statement, and vision statements, B2F
has articulated five main goals. The partnership describes these goals as follows: (1) support
the federal government's commitment to environmental justice, (2) provide residents with job
training and the opportunity to compete for real jobs, (3) empower the community and promote
community building, (4) restore the environment, and (5) promote sustainable economic
development.16 Furthermore, each workgroup has developed its own goals. The Job Training
and Career Development Work Group seeks to create sustainable job training and lifelong
learning opportunities in Southeast and Southwest D.C. The Youth Outreach Work Group
seeks maximum participation of youths five to 25 years of age in activities and opportunities
generated by the redevelopment of the Navy Yard. The purpose of this activity is to promote
and improve youth educational, social, and economic development. Moreover, this work group
seeks to provide work skills and training opportunities for youth in the construction and
environmental industry while exposing them to diverse training opportunities through job
shadowing, internships, and job placement.
The now discontinued Small Business/Private Sector Outreach Work Group, whose
work has been absorbed to an extent by the other by the remaining two work groups, sought to
achieve sustainable economic development by creating entrepreneurial opportunities for the
greater Southeast D.C. area. Additionally, the group sought to foster interaction and support
from the private sector. This work group was responsible for fostering relationships with
contractors and potential private sector partners. Ultimately, the group focused on increasing
the number of quality businesses operating in Southeast and Southwest Washington, D.C. The
now discontinued Community Outreach Work Group, whose work was also been absorbed by
the remaining two work groups, sought to broaden community awareness and interaction
beyond sub-community boundaries through an improved environment, more-attractive urban
landscape, and increased perception of safety and trust.
Partnership Activities and Accomplishments
The primary product of Bridges to Friendship is the process of building organizational bridges
and fostering their use - identifying and organizing the sharing of resources and serving as a
broker, catalyst orimplementorto reach common goals.
-Excerpt from the B2F Statement of Purpose
The B2F Partnership activities and accomplishments center around (1) securing and
leveraging resources, (2) linking Southeast and Southwest D.C. youth to local job opportunties,
(3) and sharing information among partner organizations and the community. While B2F's
partner organizations carry out many of the B2F activities, the partnership has been responsible
for enhancing the magnitude and number of acomplishments of its partner members. During
the first year the B2F Partnership was credited by its partners with helping garner over $4
million in grant funding. This money was distributed to individual partners, and used to help
accomplish the goals embodied in B2F's statement of purpose, mission statement, and vision
statements.
As part of B2F's efforts to link Southeast and Southwest D.C. youth to local job
opportunities, B2F has engaged in a number of activities. As of January 2002, the B2F
Partnership's environmental job training program had graduated more then 300 students with a
job placement rate of over 70 percent, according to the Alice Hamilton Occupational Training
Center, one of B2F's partners. These students were trained in hazardous material clean-up,
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asbestos abatement, lead paint abatement, general construction industry safety, first aid/CPR,
control of biochemical hazards in construction, and other topics. Graduates from the
environmental jobs training program were involved with the cleanup activities at the World
Trade Center, Pentagon and Brentwood Postal Facility.
In addition to its environmental job training program, the B2F Partnership is branching
into other promising career fields in order to provide more opportunities for neighborhood youth.
For instance, two B2F partners—the Navy Yard and Covenant House Washington—recently
signed a Memorandum of Understanding, signaling the start of a child care training and job
placement focus for the B2F Partnership. In addition, B2F partners including EPA Region 3,
Covenant House Washington, the Low Impact Development Center, Community Resources,
Inc., and the Sustainable Communities Initiatives have developed a low-impact development
training program.
Bridges to Friendship has also facilitated job shadowing, internship, and elementary
school programs along with life skills workshops. Internships have been provided by a number
of federal agency partners. For example, Covenant House Washington and the National Park
Service implemented Operation Challenge in 1999, an internship program that provided
summer employment opportunities for 40 community youth. Furthermore, the Alexandria
Seaport Foundation has joined together with Covenant House Washington in order to provide
pre-apprenticeship training for the building trades. The partnership has also teamed with
Starbase-Atlantis, a program designed to stimulate disadvantaged youth's interest in science,
math, and technology development. In addition, the partnership has collaborated to develop a
"Pathways to Your Future" workshop that includes a manual with different modules on personal
development, including such topics as writing effective resumes and giving effective interviews.
The B2F Partnership, along with individual members, is further working towards
reforming a number of federal processes. For instance, the Navy Yard has made efforts to
refine their hiring processes in order to facilitate hiring of local residents. In addition the B2F
Partnership has produced a document issued by Naval District Washington, entitled "Lessons
and Suggestions for Effective Community Partnering." This document provides feedback on
opportunities to improve federally funded services.
Moreover, B2F has engaged in a number of activities to facilitate the sharing of
information between partner organizations and the community. For instance, the partnership is
collaborating with the Workforce Organizations for Regional Collaboration to track and make
available information regarding employment opportunties for District residents using a database.
In addition, B2F implemented "Columbia Rising," a series of community dialogues whose
"purpose is to create neutral ground for discussion among community representatives with
diverse viewpoints on major community issues, and move toward the collaborative resolution of
those issues."17 Finally, the partnership has orchestrated a number of community meetings and
published a series of newsletters, brochures, fact sheets, and one annual report, in order to
advertise B2F activities and gain community input for future activities.
The partnership also tried to stimulate new development in the area, particularly courting
businesses that will provide jobs to local residents. The B2F Partnership has organized
business development seminars and fairs in order to provide contracting opportunities and
technical assistance to local businesses. The partnership has also partnered with the Anacostia
Waterfront Initiative, a District, federal, and community partnership, centered on revitalizing the
Anacostia waterfront and nearby communities18. B2F is further active in community pride
activities, by participating in community events and clean-up days. For instance, the Navy
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regularly conducts community cleanup days where Admiral Weaver along with his staff
participate alongside local residents to remove trash along the Anacostia River and from local
neighborhoods.
The following sections primarily describe interviewees' responses to questions gathered
from interviews conducted by EPAs Office of Policy, Economics, and Innovation during from the
month of December 2001 to the month of March 2002. The sections focus on interviewees'
impressions regarding measuring partnership success, partnership success and challenges,
recommendations for improving the partnership, overall value of the partnership, and the value
of federal involvement in the partnership.
Measuring Partnership Success
The B2F Partnership initiated several efforts to monitor and evaluate the partnership to
help partners determine success of its activities. Efforts were unsuccessful due to severe
limitations on the administrative resources of the partners and the partnership as a whole.19
Despite this, B2F partners provided several suggestions for measuring success. Nine of the
thirteen interviewees who answered the question mentioned that counting the number of people
pre-trained, trained and placed in a job would be one way that B2F could measure success.
Four of thirteen specifically mentioned the D.C. Department of Employment Services-sponsored
database developed by B2F that tracks the number of students pre-trained, trained, and placed
in jobs as a tool that could be used to support this monitoring effort. Three interviewees
suggested that counting the number of community events and the number of people who
attended those events would serve as a measurement of success, with one noting that, for
example, one B2F-sponsored event had more than 3,000 people in attendance. One
interviewee noted that after a "clean up day" there is an immediate observation of stronger
community pride, as well as an indirect correlation between the amount of visible community
trash and neighborhood pride. They suggested that this was a measure of success. Another
interviewee mentioned the number of businesses that invest and move into the area could be a
measure of success. To actually measure success, she/he noted that the B2F Partnership
could count the number of private and public sector jobs that open up in the area. Finally, one
interviewee noted that another measure of success would be the number of residents in the
community that know about the B2F Partnership.
Partnership Successes
When asked whether interviewees were satisfied with their ability to participate in the
partnership's decision-making process, sixteen out of the sixteen indicated they were satisfied.
As one interviewee described it, "effort put into the process is directly proportional to the
benefits received." However, three interviewees mentioned that although the involvement
opportunities were available, their organizations were not attending as many meetings as they
would have hoped.
When asked if the issues most important to their organization were adequately
addressed, nine out of the sixteen interviewees stated that the collaboration was not only
making a genuine effort to meet the B2F Partnership goals but that the issues most important to
them were being addressed. The seven other interviewees were generally satisfied with
partnership activities but qualified their statements with the following comments. One federal
representative cited his/her frustration with continually needing to convince new agency deputy
administrators about the merit of the B2F Partnership. Another mentioned that the problems of
gentrification and poor quality school systems were not being adequately addressed. Two
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interviewees mentioned that not enough jobs were available once the job training activities were
over. Finally, one stated that he/she "wished that B2F could measure its success."
When asked about the outcomes, or results, of the partner activities for addressing the
main issues of the affected community, of the twelve answering the question, six cited B2F's
skills-building efforts for community residents2 For instance, one interviewee noted that six
hundred people have been trained and employed in environmental jobs as a result of B2F
efforts. Similarly, one interviewee cited development of a community-based resource—the still
on-going apprenticeship center. Two other interviewees remarked that the partnership has
provided the community with greater access to development opportunities. For instance, one
interviewee remarked that B2F has linked local residents to local employment opportunities.
This same interviewee further added that the partnership has prevented local residents from
being driven out of the area because of area redevelopment. Another interviewee explained
that B2F was having a very subtle impact for the affected community. Finally, one interviewee
explained that it was difficult to gauge B2F's impact, because it lacked an appropriate baseline
by which to measure, and another interviewee provided an ambiguous response.
When asked if they were satisfied with the outcomes of partnership activities so far, five
out of the twelve who addressed this question answered positively. Three stated that they were
very satisfied with some of the outcomes, for example, the aspects of job training, but were
dissatisfied with the outcomes of other partnership activities including job placement results.
Finally, four of the interviewees said that they would never be satisfied, but agreed that B2F was
doing an excellent job with the resources they had.
When asked about the greatest success of the B2F Partnership ten of the fifteen
interviewees addressing the topic cited the partnering with others and building of a network as
the greatest success. For instance, one interviewee stated, "If you have a partnership you can
accomplish darn near everything you want to." Four stated that the B2F Partnership was
fostered by equal commitment from all the partner members to the partnership goals, mutual
respect for all the partners involved, and good communication between the partners. Four
interviewees believed that the B2F Partnership decreases the amount of duplicative activities
completed in the communities by partnering agencies and organizations. Three interviewees
noted that the B2F Partnership approach offers more creative ideas to resolve difficult issues.
Eight of the fifteen interviewees cited B2F-sponsored job training as a success.
Furthermore, seven of the twelve interviewees cited B2F's youth outreach programs as an
important success. As one interviewee stated "We (B2F) are trying to match a person to the job
they really want." Other successes cited included: (1) community's increased understanding of
the Navy Yard; (2) community's improved understanding that federal agencies care about what
happens to them; and (3) federal agencies' improved understanding of the needs of the
community.
Partnership Challenges
When asked about the challenges facing the B2F Partnership nine of the fifteen
interviewees addressing this topic cited the challenge of ensuring sufficient funding, specifically
2 During the interview process, interviewees were asked questions about both the outcomes of partner activities, and
the impact of activities for the affected communities. From the responses, it was clear that most interviewees viewed
the partnership activities in terms of outcomes, not impact. Therefore, the term outcome is used throughout this
discussion.
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as it relates to administrative support. The interviewees stated that the B2F Partnership would
benefit greatly from the establishment of an administrative support staff, however, there is no
funding currently available, and David Ouderkirk, the executive director, currently does the
majority of the administrative work alone. One interviewee stated that the lack of resources
associated with the designation of the B2F Partnership as an IWG demonstration project was a
challenge since more work accompanied the demonstration project designation. Finally, one
interviewee said that the B2F Partnership did not establish itself as a 501(c)(3) non-profit status.
An interviewee clarified by explaining that non-profit status would resolve funding issues within
the partnership but it would not allow the federal employees to sit on the Executive Board. This
would greatly hamper information sharing, a main activity of the partnership, between the
community and the federal government.
Five of the fifteen interviewed agreed that the tragic events occurring on September 11,
2001 have affected the B2F Partnership. The B2F Partnership's workgroup and executive
board meetings have been impacted since that date. Furthermore, there has been limited
civilian access to the Navy Yard since that time. Finally, two interviewees said that the
momentum that B2F had gained earlier was deflated a bit after the tragedy. Related to the
events of September 11, was the rise of unemployment in the community surrounding the Naval
Station immediately following. Some interviewees believe B2F helped relieve and improve this
situation with programs already in place.
Four of the fifteen interviewees stated that the B2F Partnership needed to re-energize,
and regain momentum. For instance, one stated that the B2F Partnership moved too slowly
and needed "more action and less talk." Another interviewee mentioned that maintaining
momentum without regularly scheduled meetings was difficult. Another stated that if the
community's needs were not met quickly the residents' interest in the B2F Partnership would
wane. Other difficulties cited included community outreach and partner recruitment.
When asked if different organizational styles were barriers to partnership success seven
out of the eleven interviewees who addressed this topic said yes. Three cited the federal
government's lack of ability to fund the partnership as a barrier to success. Two interviewees
expressed concern generated by federal agencies' standard protocol which encourages
regional staff, as opposed to headquarters staff, to take the lead in assisting in community-
based efforts, even when the headquarters staff are already based in or near the affected
community. One interviewee stated that the historically adversarial relationship between the
District of Columbia and the federal government made it difficult for the two to effectively work
together. Finally, one interview mentioned that it was impossible for federal employees to be on
the executive board of a non-profit organization. She/he further explained that this barrier
prevented B2F from switching to a non-profit status and assuring funding. Four interviewees,
however, did not identify any organizational barriers, noting, instead that B2F's main purpose
was to work around them.
Interviewees were also asked if there were conflicting federal regulations that limited the
success of the partnership. Eleven out of the thirteen that answered the question said yes.
Five mentioned the federal government's inability to neither legally finance the executive
director position nor provide funds for B2F contractual support was a major barrier. One
interviewee mentioned a particular instance when a federal agency was not able to provide a
grant to a non-profit partner because of statutory restrictions. Finally two interviewees
mentioned that the restriction prohibiting a federal employee from participating on a non-profit
organization's executive board was a major barrier to B2F success.
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Interviewees' Recommendations for Improving the Partnership
When asked about ways to improve the B2F Partnership, twelve of the sixteen
interviewees stated that B2F would benefit from an increase in funding and resources.
Specifically nine interviewees explained that increased funding and resources to support
administration work would significantly enhance the partnership. Similarly, three interviewees
mentioned that increasing administrative capacity would greatly increase the success of the B2F
Partnership. Along these lines, three interviewees mentioned the need for B2F to provide a set
agenda before meetings to ensure a common basis of understanding from which to work. Seven
recommended that the partnership establish a permanent time and location for meetings. As
one interviewee stated "a way to improve this problem (scheduling conflicts) is to establish a
permanent meeting location and set a permanent date (e.g., the first Tuesday of every other
month)." She/he added that the permanent location should be a comfortable space and have
parking availability. Two other interviewees, concerned about lack of all partners' email
capacity, recommended that the partnership only use technology that every partner possesses
to distribute pertinent information.
Three interviewees recommended soliciting greater direct input from the community
before B2F-sponsored programs are initiated. To help do this, one interviewee noted that the
B2F Partnership should establish an ombudsman for the community. Finally one interviewee
mentioned the need to continue to break down the bureaucratic barriers in the federal system as
a way to further improve the B2F Partnership.
Interviewees' Recommendations for Other Communities Using Partnerships
When asked to provide recommendations for other communities interested in using
partnership approaches to address environmental justice issues, eight of thirteen interviewees
addressing this question suggested defining a clear vision statement and focusing on what the
member organizations want to accomplish in the beginning stages of the partnership formation.
They went on to say that it is necessary for communities to construct their partnership structure
around this defined vision statement. Four interviewees stated that an agency should expect to
donate money and time. Two expanded this by saying in initial stages of the partnership
formation process, partners should require potential members to explain what resources their
organization can supply to the partnership. Three went on to say the partnership should be
inclusive, and open to all who want to participate with the understanding that every organization
will have something to contribute.
Two interviewees recommended that communities using partnerships enlist the services
of a strong facilitator and coordinator. Another remarked that the partnership should account for
issues of member burnout. To avoid this she/he recommended that the member organizations
rotate personnel who are the key contacts to the partnership. Another interviewee
recommended that the partnership stay flexible since the flexibility within the B2F Partnership is
what makes it successful. In addition, another interviewee cautioned other communities using
partnerships to be aware that as the "level of expectation rises, the level of action seems to
reduce."
Finally, two non-profit representatives advised other non-profit organizations to avoid
expecting that entry into a partnership will result in increased funding. They further explained
that non-profit organizations need to understand that a partnership, and resulting network,
allows participating organizations to tap into a wide range of resources, only one of which may
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be money. According to the interviewee, partnerships "will yield you gains", but only if the non-
profit organization believes in the partnership as a whole. In addition, she/he warned that non-
profit groups cannot "circumvent the group for their own enhancement."
Value of the Collaborative Partnership
When asked if the issues facing the affected community would have been addressed
had the B2F Partnership not been formed thirteen of the fifteen interviewees who answered the
question stated that the issues would not have been addressed to the same extent, if at all.
Four remarked that the partnership model was the only way to fully address the issues facing
the affected communities, and added that the services provided by individual organizations
would have been fractured, inconsistent, and would not have received as much "buy-in" from
the community. However, two interviewees felt that the community was empowered before the
partnership came into being and, therefore, many issues were already being addressed.
However, one of these interviewees acknowledged that B2F enhanced and focused the groups.
When asked about the value of addressing issues through a collaborative partnership
approach, three of the fifteen interviewees who addressed this topic stated that the B2F
Partnership provided a network of resources and contacts for support. Four mentioned that the
partnership provided a structure for different organizations to pool their individual resources.
Further, three others stated that this pooling of resources and increased communication
between individual organizations reduced the redundancy of services provided to the affected
community. Four interviewees said the B2F Partnership provided an excellent forum where
community issues can be discussed. One went on to say that the partnership ensured
community participation, specifically through the inclusion of non-profit community
organizations. Two others mentioned that because all organizations were working together, this
reduced the likelihood that one organization would take the lead within the community. Finally,
one interviewee mentioned that the collaborative method was a "good vessel for the
environmental justice campaign."
Interviewees were asked if the B2F Partnership could be used to address similar issues
that the community might face in the future. Eleven of the sixteen stated that the model could
be used for future issues. Five thought that the collaborative model approach is the new way
the government should do business. Two interviewees commented that the B2F membership
has the expertise needed to cover many areas of the affected community and the uniqueness of
this project is in its depth. Another interviewee went so far as to say the "collaborative is the
only way to overcome classic bureaucratic barriers blocking good things from happening."
However, three interviewees were skeptical of the model. One mentioned that the approach is
still untested. Another thought it was a good approach but still needed to be improved, and one
thought that "we are too bureaucratically trained" for the collaborative model to continue to work.
Value of Federal Involvement in the Partnership
When asked about the effect of having federal agencies participate in the B2F
Partnership, thirteen of the thirteen interviewees who answered the question had positive things
to say. Ten stated that federal involvement has added credibility to the partnership. One
explained that federal involvement in the collaboration validated the community's concerns that
a problem exists. Five stated that the federal government provides resources and expertise in
the form of money, training, outreach programs, and accountability via documentation.
Furthermore, two of those interviewees mentioned that federal involvement boosts community
enthusiasm and increases the community's organizational capacity. Three of the thirteen
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interviewees stated that federal involvement results in greater information sharing between the
community and other organizations.
When asked what the federal agencies gained by participating in the B2F Partnership,
eight of the fourteen interviewees who answered stated that the federal agencies now have a
greater understanding of the affected communities. Four clarified by stating that the B2F
Partnership allows federal agencies to "see who in a community is benefiting from their
mandates." One said that the federal agencies "sometimes deal with policy rather than people,"
and the collaborative process is helping the federal agencies better identify ways to help
troubled communities. Three interviewees stated the agency activities performed collectively
have a greater impact on the community. Two others mentioned that the collaborative process
has helped the federal agencies identify the activities of other federal agencies in the community
and therefore reduced redundancy of services provided.
Four interviewees stated that federal employees have gained job satisfaction from
working within the B2F Partnership. They expanded by mentioning that they really enjoy this
type of "hands on" work as well as the satisfaction received from seeing newly trained youth in
their offices everyday. Another interviewee mentioned that the B2F Partnership has increased
the visibility of the federal government within the affected community and that this has provided
validation of the agencies' work within the community. Finally one said that the collaborative
process allows federal employees to expand the boundaries of traditional government work.
When asked whether federal agencies have been better able to coordinate their
activities as a result on their involvement in the B2F Partnership, eleven out of eleven
interviewees that answered responded positively. One interviewee stated that "every time
agencies get together and understand how they can relate and what resources they each can
bring to the table they are more likely to do it again." Two others said that they are "gaining
contacts and starting [partnership] spin-offs." Another interviewee, however, remarked that
while the partnership has increased coordination between agencies, it hasn't directly resulted in
improved coordination within his agency. Finally, one interviewee remarked that the partnership
had resulted in increased coordination with staff and mid-level managers. She/he added,
however, that some federal agency managers wanted their agencies to take credit for
accomplishments that should be attributed to the B2F Partnership, and thus the partnership,
according to the interviewee, could benefit from improved coordination.
Interviewees were also asked what federal agencies could do in order to better
participate within community-based partnerships. Four out of the thirteen that answered this
question thought it was necessary for the agency to provide the partnership with a point of
contact, whose role would be to represent the agency in all the partnership activities while
keeping the partnership's mission in the minds of management. Two of these same
interviewees mentioned that it was very important to pick the right person for this role, stressing
that the representative needed to be energized and interested in the project. Two others
mentioned providing flexibility under non-profit status regulations in order to allow the federal
representatives to the B2F Partnership to continue to participate if the B2F Partnership officially
organized into a non-profit.
Two interviewees mentioned that federal agencies should support the collaborative
problem solving method at all levels within the member organization and structure themselves in
a way that would facilitate their participation in partnership efforts. Along these lines, two
interviewees stated that federal agencies need to better market use of collaborative
approaches. They felt that this would increase federal agencies' support for participation in
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these efforts. Two remarked that federal agencies should understand that they are part of the
community as well as the needs of that community when participating in partnerships. Two
interviewees also stated that federal agencies need to be prepared to take risks and be able to
cope with failure when partnering. One of these further suggested that agencies should not be
afraid to invite the public onto their facilities and explain to them what role the agency plays in
the community. Finally, one interviewee said that work assignment rotations should be
incorporated into every government employee's job requirements in the hopes that the rotation
will allow them to see how their decisions affect the "real world." She/he went on to say that
federal agencies should be given incentives to participate in community-based partnerships.
Key Findings
• The collaborative approach used by the B2F Partnership has allowed its member
organizations to better ensure that some of the most disadvantaged members of Southeast
and Southwest D.C. communities benefit form the recent development in the area and are
not forced to relocate, particularly those living near the Washington Navy Yard. The
majority of interviewees agreed that without the B2F Partnership it is unlikely that concerns
of the disadvantaged community members would have been considered to the same
extent.
• B2F has experienced substantial success since its inception in 1998, in leveraging
resources, sharing information and resources, building job skills and identifying job
opportunities for youth. All interviewees believe that the partnership has made a genuine
effort to meet the B2F Partnership goals and that the issues most important to them were
being addressed. The members of the B2F Partnership consider the on-going collaboration
a success.
• B2F would benefit from a fully funded, executive director position and increased
administrative support to ensure that it can continue its many positive efforts thus far.
Funding would help to coordinate the partnership, advertise the partnership's activities and
accomplishments both within the community and amongst potential members, and ensure
that the partnership does not lose its momentum yet again.
• In part, the success of the B2F Partnership can be attributed to the strong, charismatic
personalities involved. For example, many interviewees stated that the partnership would
not have enjoyed the same level of success without the continuing effort of the executive
director, David Ouderkirk, to maintain the lines of communication and act as organizer for
the partnership. Interviewees also mentioned the importance of Admiral Weaver, a highly
visible champion who increased the visibility and credibility of the B2F Partnership. It should
be mentioned, however, that the B2F partners may rely too heavily upon these individuals,
and that if they were to leave the partnership, B2F might not continue to be as effective.
• The operational structure within the B2F Partnership allows for a unique flexibility. Potential
partners are able to come to the B2F Partnership with a proposed activity and as long as
that activity coincides with B2F's overall goals the partnership will expand to perform that
activity. The partnership members have a positive attitude and continuously look for ways
they can help member organizations solve problems and attain goals rather than focusing
on the reasons why a certain problem is impossible to solve.
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B2F continues to have the strong support of numerous and diverse partner organizations
including federal agencies, city government, non-profit and community organizations, and
academic universities.
Although many interviewees listed measures that could be used to track the success of the
B2F Partnership, no formal measurement and evaluation system is currently in place. It
would benefit the partnership to institute a system to enable it to more systematically
measure the group's progress towards achieving its goals, better focus resources, and
more easily understand when to make programmatic changes. The partnership could also
use the results of this measurement system to more easily communicate its
accomplishments.
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List of Interviewees
Richard Allen U.S. Department of Housing and Urban Development
Uwe Brandes District of Columbia
Brian Christopher Alice Hamilton Occupational Health Center
Gentry Davis- U.S. National Park Service
Camille Destafny U.S. Navy
Judith Dobbins- Covenant House D.C.
Christine Hart-Wright Strive DC, Inc.
Linda Jackson Building Bridges Across the River
David Ouderkirk U.S. Navy
Randy Parker- U.S. Department of Labor
Reginald Parrish U.S. Environmental Protection Agency
Mike Shannon- Covenant House D.C.
Maxine Snowden- U.S. National Park Service
Mike Wallach Anacostia Economic Development Corporation
Babette Williams- U.S. Department of Labor
Admiral Christopher Weaver U.S. Navy
-Denotes that individual participated in a group interview.
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Works Cited
Bridges to Friendship Partnership, "Columbia Rising: A Series of Community Dialogues
Approach."? May2001.
Bridges to Friendship Partnership, "Vision, Mission, and Statement of Purpose," Memorandum.
4 June 2001.
Fountain, W.J., "Ward 8 In Profile: After Long Slide, Hope Peeks From Ruin,"
Washingtonpost.com. 28 May 1998.
Global Environment & Technology Foundation, "Bridges to Friendship Overview," Bridges to
Friendship. 7 July 1998.
Global Environmental & Technology Foundation, "Community Empowerment Strategic Plan
Outline," Bridges to Friendship. 10 July 1998.
Government of District of Columbia; Office of Planning, "Anacostia Waterfront Initiative,"
Welcome to Washington District of Columbia. 22 May 2002.
.
Halnon, Mary, "Opportunity: Race in Anacostia through the Civil War," Crossing the River; Race,
Geography, and the Federal Government in Anacostia. 21 May 2002.
.
Halnon, Mary, "The Changing Face of Anacostia: Public Housing and Urban Renewal,"
Crossing the river; Race, Geography, and the Federal Government in Anacostia. 21 May
2002. .
Ouderkirk, David, Naval District Washington; Executive Director, Bridges to Friendship,
Electronic Communication. 21 January 2003.
Ouderkirk, David, Naval District Washington; Executive Director, Bridges to Friendship, Phone
Interview. 21 January 2003.
Southwest Neighborhood Assembly, Inc., "History of Southwest DC." 14 May 2002.
.
U.S. Department of Housing and Urban Development, "HUD Helps Create Jobs and Revitalize
SE Washington To Help President's DC Economic Development Plan Succeed." 12
March 1997.
.
Washington, DC: A National Register of Historic Places Travel Itinerary, "Washington's
Neighborhoods." 21 May 2002. .
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Endnotes
1 W.J. Fountain, "Ward 8 In Profile: After Long Slide, Hope Peeks From Ruin," Washingtonpost.com. 28 May 1998.
2 Washington, DC: A National Register of Historic Places Travel Itinerary, "Washington's Neighborhoods." 21 May
2002. .
3Mary Halnon, "Opportunity: Race in Anacostia through the Civil War," Crossing the River; Race, Geography, and
the Federal Government in Anacostia. 21 May 2002. .
4Mary Halnon, "The Changing Face of Anacostia: Public Housing and Urban Renewal," Crossing the river; Race,
Geography, and the Federal Government in Anacostia. 21 May 2002.
.
5 Fountain, p. 1.
6 Southwest Neighborhood Assembly, Inc., "History of Southwest DC." 14 May 2002.
.
7 "The Changing Face of Anacostia: Public Housing and Urban Renewal," p. 1.
8 "History of Southwest DC." p 1.
9 Fountain, p. 1.
10 Ibid.
11 U.S Department of Housing and Urban Development, "HUD Helps Create Jobs and Revitalize SE Washington To
Help President's DC Economic Development Plan Succeed." 12 March 1997.
.
1 Global Environment & Technology Foundation, "Bridges to Friendship Overview," Bridges to Friendship. 7 July
1998.
13 David Ouderkirk, Naval District Washington; Executive Director, Bridges to Friendship, Phone Interview, 21 January
2003.
14 Ibid.
15 Bridges to Friendship Partnership, "Vision, Mission, and Statement of Purpose," Memorandum. 4 June 2001.
16 Global Environmental & Technology Foundation, "Community Empowerment Strategic Plan Outline," Bridges to
Friendship. 10 July 1998. p. 3.
17 Bridges to Friendship Partnership, "Columbia Rising: A Series of Community Dialogues Approach." 7 May 2001.
18 Government of District of Columbia; Office of Planning, "Anacostia Waterfront Initiative," Welcome to
Washington District of Columbia. 22 May 2002. .
19 David Ouderkirk, Naval District Washington; Executive Director, Bridges to Friendship, Electronic Communication, 21
January 2003.
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