What is participation?
Participation involves stakeholders in the development of
a transport strategy. This involvement can occur on a number
of different levels:
- Information provision: a one-way process to keep those
with an interest in the strategy informed
- Consultation: where the views of stakeholders and the
general public are sought at particular stages of the study
and the results are input back into the strategy formulation
- Deciding together: where the stakeholders become decision-makers
and work with the decision-makers and professionals in formulating
the strategy. Citizens’ forums and Planning for Real®
are examples
- Acting together: where stakeholders also become involved
in the implementation of the strategy. Public-private partnerships
are one example of this approach
- Supporting independent stakeholder groups: where the city
enables community interest groups to develop their own strategies
No one level is intrinsically better and different levels
are appropriate for different stages in the development of
a strategy, or for strategies tackling different scales of
problem. Several LUTR projects have reviewed, or developed,
methods for participation. TRANSPLUS considered a wide range
of methods; ECOCITY carried out an evaluation of selected
approaches; ARTISTS developed a method for the redesign of
arterial streets involving visioning, focus groups and design
workshops.
Why is participation important?
There is increasing emphasis on public participation in land
use and transport planning. In many cases it is now specified
as part of the planning process, and in some countries it
is required under law. Participation is central to the consensus-led
approach to decision-making (Section
4), but it can also increase the success of vision-led
and plan-led approaches. Wide participation can ensure that
the full range of objectives is considered. It can provide
a better understanding of transport problems, help generate
innovative solutions and be a key factor in gaining public
support and acceptability for the final mix of policies needed
to deliver a transport strategy. Participation can save time
and money later in the process, particularly at the implementation
stage, as potential objections should have been minimised
by taking stakeholders’ concerns into account. TRANSPLUS,
which studied participation in detail, identified the following
benefits of active participation:
- Clearer identification of problems
- Improving the quality of the resulting plans
- Developing a common basis for action programmes
- Raising awareness and encouraging changes in behaviour
- Overcoming conflicts and streamlining implementation
- Initiating social empowerment of participants
When should participation take place?
A decision on whether and how to employ participation is
best taken when the strategy formulation process is being
designed. It is important to be clear on the objectives of
participation at this early stage. For the more inclusive
levels of participation, the stakeholders need to agree on
the ways in which they are to be involved. As the benefits
identified in TRANSPLUS suggest, there is a good case for
involving participation at all of the key stages in the development
and implementation of a transport strategy, as outlined in
Section 6. It can contribute
in all the ways shown in the box. DGEnv suggests that participation
and consultation, covering all of these stages, should be
a mandatory element of the preparation of Sustainable Urban
Transport Plans.
Participation can also continue beyond implementation, by
contributing to monitoring of progress and maintaining the
success of the strategy. In some cities, consumers have a
continuing involvement in decision-making.
Who should be encouraged to participate?
A clear understanding of the objectives of participation
should help determine who should be involved. The appropriate
stakeholders should include those organisations which are
directly involved in the implementation of the strategy, and
those who are likely to influence it; these broad groups are
identified in Section 3.
Those involved should include those who are affected by the
strategy; help or hinder the public participation process;
or have skills or other resources they might be able to devote
to the development of the strategy or the public participation
process. The box gives an example of the groups included in
one guide on participation strategy. DGEnv also argues that
the wider public should be regularly informed of progress.
Limits to participation
It is important to consider carefully what level of participation
is appropriate and why participation is being sought. It is
counter productive to involve the public in decisions which
are not negotiable or which have already been made. It is
sensible to state clearly at the outset of public participation
the extent of the decisions which can be affected by the process.
It is important to remember that consultation might not always
be appropriate; it is perfectly legitimate for decisions to
be taken by elected representatives.
It can be tempting to put together high quality materials
and design a sophisticated participation strategy, but an
approach which looks too professional can create barriers,
may make issues appear too complex, and can often give the
impression that the decision has already been made. Those
involved need to be reassured that they have a genuine role
to play. In some US cities, citizens’ groups are given
financial support to this end.
It can be particularly difficult to involve those who are
less articulate and less involved in community affairs and
there is a danger as a result that the strategy will not meet
their needs and increase their isolation. In the extreme,
it may be fairer to limit participation, rather than attempt
a public participation exercise which might exclude significant
elements within society.
|