Good or Bad Idea: The Community as Public Art Practitioner

If art in community places isn't for the community using those places, then who is it for? Should all art in public places have immediate community appeal, or reflect those communities in some way, or even have community contributions? And if the answer to any of these is yes, need this impinge on the quality of the art?
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Art Gallery of Western Australia Samstag Neoterica Mandorla Art Award Bendigo Art Gallery