Public participation can be any process that directly engages the public in decision-making and gives full consideration to public input in making that decision.
Public participation is a process, not a single event. It consists of a series of activities and actions by a sponsor agency over the full lifespan of a project to both inform the public and obtain input from them. Public participation affords stakeholders (those that have an interest or stake in an issue, such as individuals, interest groups, communities) the opportunity to influence decisions that affect their lives.
Agencies should not be concerned that seeking public input means having to do “what the public wants.” Generally speaking, there is no single public. Rather, the public consists of a range of stakeholders holding an array of views and concerns on an issue. When conducting meaningful public participation, an agency will gather input from a wide spectrum of stakeholder interests, resulting in a wide range of views and concerns and providing fair treatment, meaningful involvement and social inclusion for all people regardless of race, color, national origin, sexual orientation or income, with respect to the development, implementation, and decisions made through the public participation process. The job of the sponsor agency then is to balance among these views and concerns, and reflect the decisions back so that the public understands how its diverse concerns were considered.
Not all public participation is the same. Conducting meaningful public participation involves seeking public input at the specific points in the decision process and on the specific issues where such input has a real potential to help shape the decision or action. It is rarely appropriate or useful to simply ask the public “what do you want.” Such broad questions will only raise expectations and likely direct input to areas where no influence is actually possible. Sometimes the opportunity for influence is quite small, while at other times the public can have a great deal of influence. The amount of this potential influence is the main consideration in designing a successful public participation program.
The section of this guide titled Selecting the Right Level of Public Participation discusses the different forms that public participation might take depending on the potential for public influence on a decision. These forms include:
Depending of the form of participation sought, public participation makes use of a variety of tools and techniques to inform the public, generate public input, and, in some cases, build consensus and reach agreement.
Public participation is not simply a nice or necessary thing to do; it actually results in better outcomes and better governance. When done in a meaningful way, public participation will result in two significant benefits:
Public participation contributes to better decisions because decision-makers have more complete information – in the form of additional facts, values, and perspectives obtained through public input – to bring to bear on the decision process. They can then incorporate the best information and expertise of all stakeholders. Decisions are more implementable and sustainable because the decision considers the needs and interests of all stakeholders including vulnerable/marginalized populations, and stakeholders better understand and are more invested in the outcomes.
As a result, decisions that are informed by public participation processes are seen as more legitimate and are less subject to challenge. Decision-makers who fully understand stakeholder interests also become better communicators, able to explain decisions and decision rationale in terms stakeholders understand and in ways that relate to stakeholders’ values and concerns.
Another major result of sustained stakeholder participation in decisions and their implementation is the development of capacity for managing difficult social problems. This capacity includes improved relationships and trust between decision-makers and the public, and among different stakeholders themselves. Also, when done well, public participation helps to teach stakeholders meaningful and collaborative ways to approach each other, manage difficult decisions, and resolve disputes. Stakeholders learn to appreciate each others’ positions by first learning about each others’ values and interests.
Once stakeholders are invited into the decision process, it becomes more difficult for them to merely stand to the side and say “no.” As participants in good decision-making processes, all stakeholders must understand all sides of an issue, weigh the pros and cons, and make more thoughtful decisions. Stakeholders and communities do not generally achieve this on their own. Sponsoring agencies must recognize their responsibility to help communities build their capacity for collaborative problem solving.
This community model facilitates collaboration to address environmental and/or public health issues in distressed communities.
At the core of every public participation process is a promise to the public. This promise represents what the public can expect from the sponsoring agency with regard to access to and potential influence on the decision. The promise also defines the level of information and communication that can be expected. Sponsoring agencies that make clear, explicit promises will set clear expectations with their stakeholders and will be held appropriately accountable. Without clear promises, the public will interpret a wide range of expectations, most of which are not intended and cannot be met. When making promises, it is important to follow through and consider these three factors:
Effective public participation depends in part on a sponsor agency’s willingness and ability to involve the public in the decision process. While it is critical that sponsor agencies develop the skills to think through, plan for, and implement a public participation process, it is no less important that the public develop the capacity to participate effectively in decision processes. A well-designed and sincere participation process will not fulfill its potential if the public lacks the necessary participation skills. Hence, it is important for government agencies to build the public’s participation capacity.
Building participation capacity can be achieved in several ways:These strategies can help build the public’s capacity for participation. Ongoing interest in public participation, however, will depend on the extent to which public participation processes result in the opportunity for meaningful public input and influence on projects, and the degree to which sponsoring agencies are accountable to these results.
Transparency represents the willingness of agencies to fully share the information, criteria, and deliberations of decision-making with the public. Without transparency, public input will not based on the same considerations that decision-makers are actually using to make decisions. As a result, the public is unlikely to understand why decisions are made or how those decisions will impact them. Much public outrage is a result of not being provided complete and timely information, or being excluded from the process.
In order to establish and maintain effective public participation, sponsoring agencies and decision makers should give careful consideration to how they are supporting the process. Some important elements to successful public participation can include the following:
Although the conditions and responsibilities for public participation are significant, you should not feel daunted. Rather, public participation should be viewed as an opportunity to make a powerful decision – one that resolves issues to the broadest possible satisfaction and benefit of interested parties. When done well, the time and effort invested in public participation pay dividends by resulting in a more broadly acceptable, implementable, and sustainable decision.
