Section 12. The department shall establish a comprehensive program of community mental retardation services which shall include state schools and other facilities of the department and shall establish standards for the development of mental retardation programs at appropriate geographic levels to ensure access to needed services. The commissioner shall ensure citizen, consumer and family participation, through the appointment of mental retardation citizens’ advisory committees and other appropriate methods, in the oversight of mental retardation services at all such levels, including the local level.