Twelve urban community action programs (CAP) were examined in depth to determine how each of them operationally defined community action and to evaluate their performance. The criteria used were: (1) a clear statement of purpose and programs consistent with that purpose; (2) strong independent leadership and a built-in evaluation and accountability system; (3) some form of involvement of the poor on the policy making level; (4) the development of dependable allies to protect the integrity of the programs; and (5) observable evidence of actual positive changes in the condition of the poor. The de facto CAP goals were found to be: (1) mediating between the poor and the privileged; (2) heading off social eruption; (3) molding individual behavior so that the poor would become more"socially responsible" and imitative of the middle class; and only then (4) acting as agents for community development. The programs in general were found to be limited to services for the amelioration of poverty or limited to opening up opportunities without attempting to cope with the central or causal problems of poverty. Since the poor are virtually powerless, a coalition of professionals and the poor is recommended as a strategy to gain power. (dm)