In a perfect world, Nielsen said, the people invited to Citizens Councils would be chosen randomly and would receive a stipend. But that requires more resources than he or the city have, he said. Instead, for this first council, participants were invited from people that Nielsen knew from lectures he has delivered for the Utah Humanities Council, and immigrants and refugees known to the Office of Diversity.

Because many of the refugees and immigrants, some of whom may be undocumented, haven't participated in such a forum before, the public is being asked to stay away today, says Office of Diversity administrator Josie Valdez, but observers will be allowed in the subsequent meetings.

"We are working with a sensitive crowd," she said about today's group. "We wanted them to share their concerns or feelings and not feel like they are being confronted."

The goal is that by the end of the process, everyone will feel comfortable participating in a civic and civil dialogue, even if they are unable to reach consensus on any issues, Valdez says. Whether or not there are policy recommendations, "hopefully, everyone will not have screamed. We agreed at the beginning we are trying to go through this process with respect and dignity."

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