Through a chronological review of the writings of Howard Y. McClusky, this paper examines the concept of the community council, an integrating agency which unites community resources and organizations for the provision of adult education. After introductory material discussing McClusky's pioneering work in the field of community education, the paper discusses eight principles of community development derived from his research in the 1930's. These principles focus on the waste created by overlapping community agencies, the need for citizens to educate themselves about the problems they face, the latent resources inside and outside the community that remain underutilized, and the sense of community identity and power that accrues through centralized community action. The inability of local governments and school districts to achieve the collaborative planning necessary in the provision of adult education is then examined, followed by suggested strategies for establishing community councils; maintaining a balance of lay and professional involvement; and avoiding the problems created by unclear organizational objectives, interagency jealousy and the divergence of the council from the interests of the community. Finally, the paper examines McClusky's theory concerning the psychological impact a participatory community development program can have on an individual's sense of autonomy and control. A bibliography is appended. (JP)