Since the borough leaders then would not act together on matters of citywide interest, those plans would seem to avoid violating the Constitutional principle of one person one vote.

Settling such issues fairly requires a careful balance of citywide interests and local concerns.

The concept could work to satisfy citywide and local interest, but it contains flaws.

This time, he said, "you've got very narrow, very local interests, who are putting their individual concerns above citywide interests."

But school officials worry that if all maintenance spending is decentralized, some schools in poor condition may get shortchanged, unless the board can protect the citywide interests.

But the charter commission, in a preliminary proposal completed last month, made no dramatic changes in the balance between local and citywide interests.

"He's been a consistent voice for neighborhood needs and interests, where the mayor sometimes hasn't put those as high as citywide interests."

Scandal Returns as an Issue To the extent that past elections have revolved around educational themes, the issues have generally been local and have aroused little citywide interest.

Defenders of the system emphasize the importance of representing citywide and boroughwide interests in the budgetary process.

Mr. O'Donovan, an 11-year incumbent, has learned to balance parochial and citywide interests.