1. Workshop 2 Planning for Active Citizenship and Social Inclusion
Participation in Planning: Moving from Exchange to Consultation to Partnership
Sharon Cosgrove
29 November 2006

2. Format Combat Poverty past and present: Participation in planning:
The role and work of Combat Poverty in this area
The approach to participation programmes
Participation in planning:
The opportunities to participate
Different levels of participation in planning and issues for socially excluded communities in planinng
Some conclusions

3. Combat Poverty - past Combat Poverty Act 1986 EU Poverty Programmes
Grant Schemes – working against poverty grants
Was the national suport agency for the Community Development Programme
National Anti-Poverty Networks - initiated, funded and supported

4. Combat Poverty - present
Mainstream anti-poverty programmes with strengthened role of public bodies in addressing social inclusion
Combat Poverty administers small funding initiatives, pilots/tests programmes which address poverty in areas like local government and health
Community development approaches are promoted as a way that people in poverty can participate, to develop their skills and working collectively
Based on the premise that policies are better informed and likely to be more effective if people in poverty are involved in their design and implementation

5. Overall Approach to Participation Programmes
Community development approaches are promoted as a way that people in poverty can participate, to develop their skills and working collectively
Based on the premise that policies are better informed and likely to be more effective if people in poverty are involved in their design and implementation

6. Challenges for Citizen Participation in Planning
The dependent link between community development/capacity building and participation in decision making structures
The voice of the excluded not strong in democratic representation in planning decisions
Local government participative structures strong on community participation, but weak in participation of excluded groups

7. Degree of citizen control
Manipulation
Non-participative, aimed at educating the participants. The job of participation is to achieve public support for the authority’s plans.
Therapy
Non-participation
A first step to participation, but with the emphasis on a one-way flow of information. No channel for feedback
Informing
Attitude surveys, neighbourhood meetings and public enquiries – Arnstein believes this to be window dressing
Consultation
Through, for example co-option of local people onto committees. It allows citizens to advise or plan, but retains for power-holders the right to judge the legitimacy or feasibility of the advice
Placation
Degree of tokenism
Power is redistributed through negotiation between citizens and power-holders. Planning and decision making responsibilities are shared – e.g. through joint committees
Partnership
Citizen’s hold a clear majority of seats on committees with delegated powers to make decisions. The public now has the power to assure accountability of the programme to them.
Delegated power
Local people handle the entire job of planning, policy making and managing, with no intermediaries between them and the source of funds
Citizen control
Degree of citizen control
The Ladder

8. The Spectrum of Community Engagement
Information
Research
Consultation
Participation
Delegation
Higher numbers involved
Lower numbers involved
Lower intensity
Higher intensity

9. Participation Techniques
Interactive Websites, Citizens' Juries, Vision Exercises, Various Forums.
Exchange
Complaints/Suggestion Schemes, Service Satisfaction Surveys, Citizens' Panels, Advisory Referendums, Co-option, Focus Groups.
Learning
Consultation Documents, Media Coverage, Exhibitions, Public Meetings, Question and Answer Sessions.
Information
Participation Technique
Purpose

10. Levels of Participation in the Planning Process
The development management system - planning applications
Development plan process
Local area plan process
Participatory planning approaches to infrastructure development
Participation in decision making structures

11. Level 1: The development management system - planning applications
Planning application – notice on site, advert in press
5 weeks to make a submission in writing - €20 fee
After decision can appeal in writing €100 fee – if you have already been involved
Issues for excluded groups include
Literacy level, income level, transport, time…

12. Level 2 Development Plan
South Dublin County Council – case study

13. SDCC - at Pre Draft Stage
At pre-draft plan
Facilitated meetings
Posters
Database
Electoral areas targeted
Councillors invited
Call for written submissions
Better turn out in better off areas
Managers report – special meeting - motions

14. SDCC - at Proposed Draft Plan Stage
Consultation meetings – linked with Partnerships and local groups
Special meetings with target groups – interpreters and sign language (ethnic minorities, people with disabilities, young people and Travellers)
Written submissions
Video done with voice over
Managers Report & Special meetings with Councillors and more motions

15. SDCC - Final Stages Produce report on how plan to be amended
To councillors
On display – groups and individuals consulted written to
On web-site
Submissions on the proposed amendments to the plan
Report to Councillors & special meeting
The Plan is Made!

16. Level 2: The Development Plan Process
Legislation – at pre-draft stage shall hold public meetings and written submissions
Opportunities for input as citizen, as member of particular target group, as a constituent
Timescale limits more inclusive approach to Development Plan
Good information and consultation process
Participation in decision making & partnership limited

17. Level 3: Local Area Plan Process
These arise out of the Development Plan
Planning studies on particular areas – Local Area Plans and Master Plans for particular areas
Example: Tallaght Town Centre
High development stakes
Polarised – residents and developers
Opportunities for more participation
But local authorities mainly doing public meetings and facilitated meetings
Possible – Planning for Real, Visioning Exercises

18. Level 4: Participatory planning approaches to infrastructure development
Howth Transport Plan, regeneration plans in UK Midlands – Participatory Planning Appraisal
Visioning – Cork County local area plans
Citizen Juries – technical
Ballymun Regeneration – Planning for Real

19. Planning for Real in Jobstown

23. Citizens Jury

24. On complex technical or policy issues issues?

26. Citizens Jury

27. Main Ingredients of a Citizens Jury

28. Examples of Citizens Juries
Ballymun on anti-social behaviour
Hertfordshire - jury on waste disposal, 1996
Gateshead and St Albans -two juries on GM crops,2003
Andhra Pradesh (India) - jury on rural development, 2001
Newcastle - DIY jury on older people, health technologies and falls, 2002

29. PRA in Clondalkin

35. Level 5: Participation in decision making structures
Planning Strategic Policy Committee – participation of NGOs and citizens (through Community Fora)
Homeless forum in cities and counties – NGOs
County Childcare Committees – input into investment in childcare infrastructure – community fora and childcare providers
Traveller Accommodation Consultative Committees – deciding on 5 year accommodation plan
Issues for excluded groups – representativeness, literacy, social care, balance of power, capacity to engage

36. Conclusions
Range of opportunities for active citizenship and for involvement of excluded groups
But development planning process limited – need to link to existing participative structures and revising timescale..
Participative and partnership approaches possible in infrastructure planning
Need for targeting excluded groups, linking to their representative groups and resourcing participation