Putting the Public Back into Governance: The Challenges of Citizen Participation and Its Future

The past two decades have seen a proliferation of large‐ and small‐scale experiments in participatory governance. This article takes stock of claims about the potential of citizen participation to advance three values of democratic governance: effectiveness, legitimacy, and social justice. Increasing constraints on the public sector in many societies, combined with increasing demand for individual engagement and the affordances of digital technology, have paved the way for participatory innovations aimed at effective governance. Deepening legitimation deficits of representative government create opportunities for legitimacy‐enhancing forms of citizen participation, but so far, the effect of participation on legitimacy is unclear. Efforts to increase social justice through citizen participation face the greatest obstacles. The article concludes by highlighting three challenges to creating successful participatory governance: the absence of systematic leadership, the lack of popular or elite consensus on the place of direct citizen participation, and the limited scope and powers of participatory innovations.     

Citizen Participation in Decision Making: Is It Worth the Effort?

It is widely argued that increased community participation in government decision making produces many important benefits. Dissent is rare: It is difficult to envision anything but positive outcomes from citizens joining the policy process, collaborating with others and reaching consensus to bring about positive social and environmental change. This article, motivated by contextual problems encountered in a participatory watershed management initiative, reviews the citizen-participation literature and analyzes key considerations in determining whether community participation is an effective policy-making tool. We list conditions under which community participation may be costly and ineffective and when it can thrive and produce the greatest gains in effective citizen governance. From the detritus of an unsuccessful citizen-participation effort, we arrive at a more informed approach to guide policy makers in choosing a decision-making process that is appropriate for a community's particular needs.     

The Convention Experience: Between Rhetoric and Participation

Abstract

This article investigates the participation of interest groups in the EU's Constituional Convention and their contribution to the debate on participatory democracy and EU governance. I argue that the constitutional moment prompted interest groups to define their priorities beyond focused policy issues to include wider principles of governance. While the Convention process was more inclusive that any previous treaty reform procedure, its institutional set up was a constraint to improving citizen participation either directly or via interest groups. The Convention reproduced a model of closed elitist politics which did not communicate sufficiently with the citizens, while the role of interest groups was restricted by a Convention designed as a drafting phase in preparation for the real decisive phase during the IGC. Despite the impact of specific domestic contexts, the ‘no’ votes in France and the Netherlands proved that civil society and participation were rhetorical devices deployed during the Convention to gain legitimacy rather than a genuine move towards a more pluralistic EU democracy capable of deploying effective mechanisms of active citizen participation.     

Political participation and three theories of democracy: A research inventory and agenda

Abstract.  This article proposes an agenda for political participation research aimed at providing empirical answers to questions derived from normative political theory. Based on a threefold distinction between responsive, participatory and deliberative models of democracy, the article first distinguishes three conceptions of political participation: as influencing attempts, as direct decision making, and as political discussion. Second, it is argued that each of the three models is associated with different desired consequences of political participation: equal protection of interests, self-development and subjective legitimacy. Third, a procedural standard is identified from which to evaluate the mechanism generating the three types of participation. By analogy with theories of distributive justice, this mechanism should be sensitive to incentives but insensitive to resources. The empirical questions thus implied are finally drawn together into an integrated agenda for future participation studies.     

Civil Society and the Legitimation of Global Governance

Abstract

This article assesses in what ways and to what degrees civil society activities have advanced the legitimacy of global governance institutions. It is argued that these citizen initiatives have often enhanced the democratic, legal, moral and technical standing of regulatory agencies with planetary constituencies and jurisdictions. However, these benefits do not flow automatically from civil society mobilizations and on the whole are much less extensive than they could be. With a view to greater realization of the potential contributions to legitimacy, the article elaborates recommendations for more, more inclusive, more competent, more coordinated, and more accountable engagement of global governance by civil society organizations.     

Does Agency Autonomy Foster Public Participation?

Allocation of public resources is an area in which considerations of both economic efficiency and democratic legitimacy are likely to be present. Public administrators are often blamed for being too devoted to the norms of bureaucratic ethos, such as efficiency, effectiveness, and top‐down control, and less so to the norms of democratic ethos, such as inclusiveness and bottom‐up decision making. This article examines whether managers in agencies with greater budget autonomy are more likely to include the public when allocating resources. Because participation offers an opportunity for agencies to enhance the legitimacy of their decisions, it is expected that the value of citizen input will increase with the degree of agency autonomy. Using data on the practices of citizen participation in budgeting in two state departments—transportation and environment—this study finds that agencies with a higher degree of autonomy tend to be more open to public comment than agencies with more centralized budget processes.     

Mutual efforts for mutual trust: Impacts of citizens' knowledge and governmental communication channels on trust in participatory budgeting

Since participatory budgeting (PB) has been advocated by both theorists and practitioners of public administration, its adoption has become a global phenomenon. As of 2017, all local governments in South Korea are legally mandated to operate a PB system as a policy for inviting citizen participation in local budget decision-making. Using an impact assessment tool completed by PB managers in local governments, this research tested two sets of independent variables—citizens' participatory capacity and the diversification of communication in the PB process—that could be associated with the dependent variables “citizens' trust in government (CTG)” and “government officials' trust in citizens (GTC).” The paper presents the three major findings on the common drivers behind CTG and GTC: (1) citizen participants' knowledge on budget and budgeting process; (2) local government's efforts in gathering citizens' inputs for PB; and (3) the mutual efforts to understand the needs and limitations of both citizens and the local government. The paper concludes by exploring the implications for the design and delivery of effective PB implementation.     

Deliberative Democracy and International Labor Standards

Political theorists have argued that the methods of deliberative democracy can help to meet challenges such as legitimacy, effective governance, and citizen education in local and national contexts. These basic insights can also be applied to problems of international governance such as the formulation, implementation, and monitoring of labor standards. A participatory and deliberative democratic approach to labor standards would push the labor–standards debate into the global public sphere. It would seek to create broad discussion about labor standards that would include not only firms and regulators, but also consumers, nongovernmental organizations, journalists, and others. This discussion could potentially improve (1) the quality of labor standards by incorporating considerations of economic context and firm capability, (2) their implementation by bringing to bear not only state sanctions but also political and market pressures, and (3) the education and understanding of citizens. Whereas the role of public agencies in state–centered approaches is to formulate and enforce labor standards, central authorities in the decentralized–deliberative approach would foster the transparency of workplace practices to spur an inclusive, broad, public conversation about labor standards. To the extent that a substantive consensus around acceptable behavior emerges from that conversation, public power should also enforce those minimum standards.     

THE RELEVANCE OF COMMUNITY INVOLVEMENT TO SOCIAL WELFARE AND PUBLIC ADMINISTRATION

Abstract: Citizen involvement is regarded as a desirable component of public policy making, particularly policy in the social welfare field. This paper examines different conceptions of social welfare and different conceptions of citizen participation. Participation is a term with many shades of meaning, and policy makers should distinguish between sociotherapy, market research and citizen power, all of which come under the rubric "citizen participation". Different conceptions of participation are appropriate in different policy circumstances and these circumstances are examined with reference to two recent Australian participatory programs in the welfare field. The paper concludes with an examination of the applicability of participation, leadership and expertise to public administration, and argues that these three values exist in a dialectical relationship and that social justice and the effectiveness of programs will be limited if too much reliance is placed on any one of these values.     

The Performance–Trust Link: Implications for Performance Measurement

Although the link between government performance and citizen trust in government seems intuitive, the relationship is not supported in some of the literature. This article argues that the difficulty of empirically demonstrating this link is rooted in the difficulty of defining and measuring government performance meaningfully. Performance measurement can improve citizen trust in government directly through citizen participation in the evaluation process or indirectly by improving citizens' perceptions of government performance. To achieve this potential, current performance-measurement practice must be improved: to measure what citizens really care about, to be more systematic and integrated across agencies, to include other governing entities, and to become an ongoing participatory process in which governments and citizens are both transformed.     

The participatory turn in local policies: A product of the market

This article examines the relationship between local participatory policies and their market in France. The study stems from long‐term field research drawing on a variety of materials: qualitative interviews with citizen participation professionals (consultants or civil servants), questionnaires, and an analysis of public procurement. This study depicts the way both the industry and the policies of citizen participation are structured in France. It also explores how French participatory policies are coproduced through mechanisms of competition–collusion between clients (mainly local public authorities) and providers (consultants). Finally, the study questions the effects of this market on local policies, showing that the market cannot be interpreted as an unequivocal sign of a decline in actors along with political stakes in public policies.     

WHAT SHAPES CITIZENS' EVALUATIONS OF THEIR PUBLIC OFFICIALS' ACCOUNTABILITY? EVIDENCE FROM LOCAL ETHIOPIA

In this article, we study which institutional factors shape citizens' views of the local accountability of their public officials. Our departing assumption is that evaluations of local accountability reflect not only citizens' poltical attitudes and beliefs but also whether local institutions contribute to an environment of mutual trust, accountability and ultimately democratic legitimacy. Combining public opinion data from a large‐N citizen survey (N = 10 651) with contextual information for 63 local governments in Ethiopia, we look at access to information, participatory planning and the publicness of basic services as potential predictors of citizens' evaluations of local public officials. Our findings suggest that local context matters. Jurisdictions that provide access to information on political decision making are perceived to have more accountable officials. Moreover, when local governments provide public fora that facilitate citizens' stakes in local planning processes, it positively affects citizens' evaluations of the accountability of their officials. Our study adds to the empirical literatrure by showing that establishing local institutions that can foster citizen–government relations at the local level through inclusive processes is crucial for improving public perceptions of accountability. Copyright © 2013 John Wiley & Sons, Ltd.     

‘Living with culture’: creative citizenship practices in Toronto

This paper addresses the contemporary creativity ethos through the lens of citizenship. The paper builds upon governmentality scholarship to examine how creativity and cultural participation are being recast as moral duties of active citizenship. It notes the development of governmental projects that seek to optimize the creative capacities of individuals toward a variety of ends. The paper develops these observations through an examination of cultural planning practices in Toronto. It notes how the city's cultural policies are viewed in increasingly therapeutic terms as technologies of creative citizenship. Emphasis is placed on the proliferation of participatory arts festivals and arts-based community development projects that enlist urban denizens into creative citizenship practices. The paper then explores a paradox at the centre of this emergent regime of creative citizenship. It describes how the creative citizen is construed in cultural planning practice as a heroic agent of innovation and civic renewal, and, at the same time, as an object of continual monitoring, assessment and risk-management.     

Participatory innovations and maxi-publics: The influence of participation possibilities on perceived legitimacy at the local level in Finland

Participatory innovations (PIs) have been introduced as one possible cure to democratic malaises. Empirical research on these mechanisms for citizen participation has, however, focused on their effects on individuals and policy outcomes, leaving aside their consequences for the wider public. This article fills part of the gap by examining the effect of PIs on perceived legitimacy. The article acknowledges that citizens value not only outcomes but also the inclusiveness of decision-making processes, and defines procedural fairness and outcome satisfaction as the key evaluative criteria behind perceived legitimacy. Both total number and type of PIs are considered as possible factors shaping legitimacy evaluations. By analysing data from 9,022 citizens in 30 Finnish municipalities, the article reveals that introducing PIs is not a simple fix for legitimacy of local governments. The type of participation matters, with discursive participation generating the strongest effects on procedural fairness. However, attention should also be paid to citizens’ awareness of participation possibilities.     

Participatory Reactions to Policy Threats: Senior Citizens and the Defense of Social Security and Medicare

The sociodemographic factors emphasized in much participation research cannot explain abrupt changes in levels of activity. This study shows how threat of undesirable policy change acts as an impetus to participatory activity, helping to explain temporal variation in participation. Newly available individual-level time-series data are used to show surges in senior citizen letter writing in response to threats to Social Security and Medicare during the 1980s. Policy threat interacts with individual characteristics to produce variations in participatory reaction congruent with the magnitude of the threat to the individual.     

The dilemmas of pursuing ‘throughput legitimacy’ through participatory mechanisms

Under pressure to open up the ‘black box’ of governance, technocratic bodies are increasingly seeking to include civil society participation in the policy process. This article draws on empirical cases from the European Commission and NHS England to assess the extent to which the participatory mechanisms pursued by these institutions have been successful in eliciting ‘throughput legitimacy’. It is shown that though these mechanisms have taken very different forms – the former a classic instance of ‘window dressing’ participation, the latter closer to ‘best practice’ in this field – they nevertheless share a number of ongoing vulnerabilities. The article outlines the shared organisational, operational and existential dilemmas that technocratic bodies face when eliciting civil society participation, and highlight their reliance on backstage negotiation to sustain stakeholder buy-in. It concludes by highlighting the prospect that the pursuit of throughput legitimacy for technocratic bodies entails inherent limitations and contradictions.     

New Public Governance in the Baltic States: Flexible Administration and Rule Bending

Abstract

The New Public Governance approach advocates a more flexible and participatory public administration as means to higher efficiency and increased legitimacy. Increasing flexibility and thereby public employees’ discretion, however, may pose a risk to equality and impartiality, core values in democratic and rule-of-law societies. Using a survey among Baltic public employees, this article explores this risk. We ask whether public employees’ preferences for flexible rule application go hand in hand with acceptance of bending the rules, even if it means a breach of impartiality. We find that this is the case. We also find that contrary to what the New Public Governance approach expects, neither citizen participation nor generalized trust works as a control on rule bending. On a positive note, however, we find that control mechanisms associated with Weberian Public Administration lessen acceptance for bending the rules.     

Business as usual? Civil society organizations in a marketized Swedish welfare state

ABSTRACT

This article aims to examine the participation of pensioners’ organizations in a context of marketization within local elderly care. The literature on New Public Management (NPM) points out different views on the effects of marketization on the participation of civil society organizations within the decision-making process. One view states marketization implies less of participation by civil society organizations since this stands in conflict with inherent values of NPM, such as efficiency and the citizen as customer on a market. An opposite view states that marketization does not cause this effect, i.e., civil society organizations participate in the same manner as before. The empirical investigation consists of results from a questionnaire sent out to pensioners’ organizations in Swedish municipalities with a marketized elderly care. The main result is that marketization does not cause any major crowding out effect on civil society organizations from the decision-making process. However, according to the survey, there exists a variation in this respect – participation varies between municipalities.     

Citizen participation and judgment in policy analysis: A case study of urban air quality policy

The emphasis currently placed on citizen participation in planning results in part from the recognition that planning requires judgments that have both value and technical components. This article describes a case study of a citizen participation process in which planners' judgments, rather than the judgments of the members of a citizens' task force, seemed to dictate the outcome. Although citizens were supposed to be influential in the policy analysis, they were, in effect, excluded from a meaningful role in the process. The analysis was actually guided by planners' supposedly technical judgments. Those judgments had important value implications, however, and those implications were not made clear to the citizens' task force. Examples are given of judgments made by planners at each stage of the analysis and the value components of those judgments are discussed. In each example, the judgments resulted in elimination of alternatives, selection of information, or integration of information. Two examples of methods of citizen participation which can increase the influence of citizens' judgments are also described.The National Center for Atmospheric Research is sponsored by the National Science Foundation.