Collaborating in the Margins

The views expressed are those of the author and do not necessarily reflect the views of ASPA as an organization.

By Renée Cardarelle
April 3, 2026

Public administrators often seek to incorporate the needs of the public into the decision-making process. In a 2024 study conducted in rural Minnesota, city administrators described their duty to hear from the entire public, not just those who are most vocal. However, the study also revealed that for many administrators, the work is highly relational, leading them to connect with some segments of the public more than others. For instance, they described community members approaching them during daily activities, at their children’s sporting events or at meetings held by community organizations.

This tendency to interact more frequently with people in familiar settings can have unintended effects on decision-making. Life naturally limits exposure to certain groups and individuals are often more influenced by those closest to them. In addition, the needs of the most visible portion of the population, which is often the largest, can be easier to recognize than the needs of those who live on the margins.

As one city administrator summarized, “We have a very, very low minority demographic. I mean, we’re talking like less than 10% of all non-whites put together. So for us that is the hard part.” When certain portions of the population make up only a small percentage of the whole, it can be difficult to identify their needs, much less address them. Given limited time and resources, efforts to connect with smaller segments of the population may appear to yield diminishing returns.

This is, however, how strategic marginalization occurs. It is not necessarily driven by a deliberate intent to exclude, but by a tendency to focus on the center and craft policy around the needs of those who are most visible. This dynamic can create significant barriers for less visible members of the public.

Consider the needs of individuals with physical differences, such as those who are visually impaired. They make up less than 2 percent of the population in the United States and for many years their needs were minimized or overlooked while attention remained on the majority. Over time, advocacy efforts made clear how this exclusion created significant barriers and increased dependence. Only once these needs became more visible did decision makers begin to implement solutions that reduced those barriers.

As this example illustrates, strategic marginalization often goes unnoticed by decision makers, even when there is a genuine commitment to inclusive decision-making. Addressing it requires intentional effort to engage with less visible populations, though this can feel daunting given the demands on administrators’ time.

So what steps can public administrators take to better incorporate these perspectives?

First, administrators should develop a clear understanding of the demographics within their jurisdiction. This information is often readily available through sources such as census data or service organizations and can help identify groups that may be underrepresented in decision-making processes.

Second, administrators should make intentional efforts to connect with individuals across different demographic groups. This does not require extensive outreach campaigns. Simple actions, such as visiting a local ethnic food store and speaking with the manager, can expand awareness and build relationships. By entering spaces they do not routinely visit, administrators can broaden their understanding of the community and increase accessibility.

Third, administrators should establish a plan to identify and address barriers raised by marginalized groups. While each community has unique needs, many common challenges have well-documented solutions. Administrators can draw on existing knowledge and adapt it to their local context rather than starting from scratch.

Efforts to engage with the strategically marginalized do require time, a resource that is often in short supply. However, without this effort, administrators risk overlooking key segments of the public and unintentionally reinforcing marginalization. Moreover, addressing these needs can produce broader benefits. One city administrator in the study described how playground modifications designed for children using wheelchairs also improved accessibility for older adults and parents with strollers.

While reaching less visible populations may require additional effort, it can ultimately lead to more effective and inclusive public service for the entire community.

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Author: Renée Cardarelle has a PhD in Management and Public Service from Hamline University with a focus on public participation in the governing process. In addition to her work in academia, Renée has also worked in the nonprofit sector and in grassroots organizing for more than twenty-five years.

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