PUBLIC PARTICIPATION Catarina Freitas Environmental Planning Department City Council of Almada, Port

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PUBLIC PARTICIPATIONCatarina Freitas
Environmental Planning Department City Council
of Almada, Portugal
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Goal ...
... Goal and Objectives

• The purpose of this Training Session is to
  improve the knowledge of the participants about
  public participation processes,
• what are the concepts behind it,
• how should we address it,
• how to plan it,
• what rules should be followed
• and to guide and help them to design a public
  participation program that fits their specific
  needs.

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Objectives
... Goal and Objectives

• Identify what are the major steps to prepare a
  Public Participation Program
• Get some ideas, rules and guidelines on how to
  design a Public Participation Program, namely
  techniques and methods of Public Participation
• Beware of different levels of Public
  Participation.

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What is Public Participation

• Porquê ?

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Topics ...

• ... Why do we need Public Participation?
• ... What is the context of Public Participation?
• ... Ideas and concepts behind Public
  Participation
• ... How to set up a Public Participation Program
• ... Conclusions

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Topics ...

• ... Why do we need Public Participation?
• ... What is the context of Public Participation?
• ... Ideas and concepts behind Public
  Participation
• ... How to set up a Public Participation Program
• ... Conclusions

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... 30 trees are cut in each second ...
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... all the trees in our Planet can absorb 50
tons of CO2 per second ...
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... all the Earths population produces 127 tons
of waste per second ...
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... each 20 minutes an animal or plant species
disappears ...
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... each second, 55 kg of oil are discharged into
the sea...
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... in 65 years, the worlds oil reserveswill be
finished ...
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... in each 4 seconds, a person dies of famine
...
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... Why do we need Public Participation
Why do we need Public Participation?

• We ALL need to change !
• (habits, attitudes, values, priorities, agenda
  )
• In order to change, we need to find common
  solutions, we need consensus, we need to act
  together
• To achieve consensus, we need to understand the
  perspectives of each other and overcome some
  differences

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... Why do we need Public Participation

• We need to arise awareness on the real problems
  humankind is facing today
• We need to communicate and provide information to
  the public in an accurate, complete and
  meaningful manner
• We need to involve and engage the population in
  planning and decision-making process
• We need to get the commitment from all the parts.

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... Why do we need Public Participation

• We need to arise awareness on the real problems
  humankind is facing today
• We need to communicate and provide information to
  the public in an accurate, complete and
  meaningful manner
• We need to involve and engage the population in
  planning and decision-making process
• We need to get the commitment from all the parts.

... create open, early on, complete, effective
and meaningful opportunities for public
participation is of crucial importance
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Topics ...

• ... Why do we need Public Participation?
• ... What is the context of Public Participation?
• ... Ideas and concepts behind Public
  Participation
• ... How to set up a Public Participation Program
• ... Conclusions

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... What is the context of Public Participation
Public participation is nice, but when we
organise something, no one appears!  a
sceptical Councillor
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... What is the context of Public Participation
In our Council there's not political will.
That's it!  a Local Authority employee
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... What is the context of Public Participation
If politicians and local decision makers dont
prepare our city for future challenges, one can
ask what do we need them for. a citizen
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... What is the context of Public Participation
Pre-conceived ideas of decision makers, planners
and experts

• The public doesnt want to participate (only
  people that are against)
• The public does not know how to participate
• The public interfere in technical decisions
• Participation generates chaos and delays the
  projects...
• Decision makers often get information on public
  opinion on a second-hand basis (briefings and
  summaries provided by staff)

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... What is the context of Public Participation
Pre-conceived ideas and complaints of Public

• Public is involved in later stages of the project
• 90 of the document/project is already defined
• Sometimes important stakeholders are left out
• High controversial issues are not answered
• Incomplete information provided (hidden issues
  or impacts under valuated)
• Badly perceived idea of the problem/issue, based
  on misinformation

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... What is the context of Public Participation
Pre-conceived ideas and complaints of Public

• Public is involved in later stages of the project
• 90 of the document/project is already defined
• Sometimes important stakeholders are left out
• High controversial issues are not answered
• Incomplete information provided (hidden issues
  or impacts under evaluated)
• Badly perceived idea of the problem/issue, based
  on misinformation

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... What is the context of Public Participation
Example (An Inconvenient Truth, Al Gore)
Massive study carried out by University of
California on scientific journal peer-reviewed
articles on Climate Change during the last 10
years (sample of 10, 928 articles) Alongside,
another study about articles on climate change
published on popular press for the last 14 years
(sample of 4 newspapers, 636 articles)
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... What is the context of Public Participation
Example
of articles in doubt as cause to the of
Climate Change
No. peer-reviewed articles dealing with Climate
Change published in scientific journals during
previous 10 years No. articles dealing with
climate change published on popular press for the
last 14 years
928
0
626
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... What is the context of Public Participation
What society do we want?
Projections on World Energy Consumption
Scenario 1
Scenario 2
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... What is the context of Public Participation
Scenario 1 BAU Business As Usual
Is the scenario that no one wants, but almost
everyone follows.
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More oil
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More refineries
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More terrorist attacks
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More war
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More nuclear power
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More pipelines and terminals
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More gas
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Almada (A2) 8.00 9.00 am
More traffic
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More extreme climate events
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More ecosystems disrupted
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More species facing extinction
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... What is the context of Public Participation
What society do we want?
Projections on World Energy Consumption
Scenario 1
Scenario 2
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... What is the context of Public Participation
Scenario 2 F4 Do twice as much with half the
resources
Is the scenario that (almost) everyone wants, but
almost no one follows.
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Reduce drastically private car use on daily
journeys
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Bring life to city center
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Build on low energy
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Accept a landscape evolution
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Create rural employment on renewable energy
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Maintain biodiversity
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Topics ...

• ... Why do we need Public Participation?
• ... What is the context of Public Participation?
• ... Ideas and concepts behind Public
  Participation
• ... How to set up a Public Participation Program
• ... Conclusions

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... Ideas and concepts behind Public Participation
Aarhus Convention on Access to Information,
Public Participation in Decision-making and
Access to Justice in Environmental Matters
European Directive 2003/4/CE

• Adopted on 25th June 1998 in the Danish city of
  Aarhus at the 4th Ministerial Conference on
  Environment for Europe
• Agreement on linking environmental rights and
  human rights
• Establishes that sustainable development can be
  achieved only through the involvement of all
  stakeholders

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... Ideas and concepts behind Public Participation
3 Pillars of Aarhus Convention

• Right of public access to environmental
  information
• Right of public participation in environmental
  decision-making
• Right of public access to justice on
  environmental matters

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... Ideas and concepts behind Public Participation
Public participation pillar of Aarhus Convention

• Should take place during the preparation of plans
  and programs relating to the environment, within
  a transparent and fair framework
• The necessary information should be provided to
  the public
• Time-frames should be sufficient for effective
  participation
• Citizens should be encouraged to take part on the
  discussions

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... Ideas and concepts behind Public Participation
Aarhus Convention
Although regional in scope, the significance of
the Aarhus Convention is global. It is by far the
most impressive elaboration of principle 10 of
the Rio Declaration, which stresses the need for
citizen's participation in environmental issues
and for access to information on the environment
held by public authorities. As such, it is the
most ambitious venture in the area of
environmental democracy so far undertaken under
the auspices of the United Nations."  Kofi A.
Annan, Secretary-General of the United Nations
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... Ideas and concepts behind Public Participation
Main steps of planning and decision-making
processes
SOLUTIONS Plans, Alternatives
PROBLEM Issue
DIAGNOSIS
DECISION
IMPLEMENTATION
EVALUATION
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... Ideas and concepts behind Public Participation
Main steps of planning and decision-making
processes
SOLUTIONS Plans, Alternatives
PROBLEM Issue
DIAGNOSIS
PP
PP
DECISION
PP
PP
IMPLEMENTATION
EVALUATION
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... Ideas and concepts behind Public Participation
Main steps of planning and decision-making
processes
SOLUTIONS Plans, Alternatives
PROBLEM Issue
DIAGNOSIS
DECISION
Public Participation
IMPLEMENTATION
EVALUATION
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... Ideas and concepts behind Public Participation
Main steps of planning and decision-making
processes
SOLUTIONS Plans, Alternatives
PROBLEM Issue
DIAGNOSIS
DECISION
Public Participation
IMPLEMENTATION
EVALUATION
Information Communication
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... Ideas and concepts behind Public Participation
Information ? Communication ? Participation

• When you communicate, your speech has 3
  components that influence the listener in
  different ways
• - Word 7
• - Tone of voice 38
• - Body language 55
• Among the ones that listen to you,
• - 80 dont care at all !
• - 20 will be happy because you have problems !!

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... Ideas and concepts behind Public Participation
Information ? Communication ? Participation

• A positive communication attitude and speech is
  very important
• The interpretations on what you say depend on
• - cultural sensitivities
• - emotions
• - perspectives
• - values and priorities
• - social role
• - change with the interaction

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29 other religions or atheists
33 Christians
19 Hindus Budhists
19 Muslims
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... Ideas and concepts behind Public Participation
Exercise
Barriers to communication Different perceptions
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Topics ...

• ... Why do we need Public Participation?
• ... What is the context of Public Participation?
• ... Ideas and concepts behind Public
  Participation
• ... How to set up a Public Participation Program
• ... Conclusions

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... How to set up a Public Participation Program
How to set up a Public Participation Program

• A Public Participation Programs aims at,
• generating better supported decisions
• achieving a commitment with the chosen solution/
  project/ plan
• trying to help others to learn and change

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... How to set up a Public Participation Program
How to set up a Public Participation Program

• However, there is a limited consensus as to,
• How to do it?
• When should it take place?
• What should be the results?
• How to measure its success?

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... How to set up a Public Participation Program
main steps of a decision-making process
SOLUTIONS Plans, Alternatives
PROBLEM Issue
DIAGNOSIS
DECISION
IMPLEMENTATION
EVALUATION
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... How to set up a Public Participation Program
Stage 1. Decision Analysis Decision analysis has
more to do with decision-making than public
participation

• Clarify the decision being made
• Identify who will make the decision and how it
  will be made
• Specify the planning/decision-making steps and
  schedule
• Decide whether public involvement is needed and
  for what purpose (ex the process may consider to
  have only one option, giving the public a Yes/No
  choice)

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... How to set up a Public Participation Program
Stage 1. Decision Analysis Decision analysis has
more to do with decision-making than public
participation

• Clarify the decision being made
• Identify who will make the decision and how it
  will be made
• Specify the planning/decision-making steps and
  schedule
• Decide whether public involvement is needed and
  for what purpose (ex the process may consider to
  have only one option, giving the public a Yes/No
  choice)

TIP Some decisions do not require PP
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... How to set up a Public Participation Program
Stage 2. Public Participation planning This phase
specifies the public participation techniques
that should be used, as well as their sequence
and time

• Identify the public participation team
• When the decision-maker is not involved, usually
  is more inclined to ignore the results of the PP
  process. Do not always get the intensity of the
  message (how strong people feel).

TIP Decision makers should have an active role
on PP
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... How to set up a Public Participation Program
Stage 2. Public Participation planning

• Specify what needs to be accomplished with the
  public at each step of the planning/decision
  making process (problem identification,
  diagnosis, alternative solutions, decision )

TIP Write a 1 or 2 sentence of the issues/
problem being solved
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... How to set up a Public Participation Program
Stage 2. Public Participation planning

• Identify the stakeholders internal and external
• Once the issues that are likely to emerge during
  PP process are identified, it is easy to identify
  people who are most likely to be concerned with
  those issues, the Stakeholders.
• Stakeholders are people who perceive
  themselves as having an important role on the
  decision.
• This role could be economics, use, mandate,
  proximity, values or philosophy.

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Who are the stakeholders we want to engage ?
Architects
Professional Associations
Energy Utilities
Artists
Cultural Associations
Energy Agencies
Consumer Associations
Politicians
Workers
Journalists
Financial institutions
Tourism Associations
Trade Unions
Economists
Law experts
NGOs
Cyclists Association
Public Transport Operators
Universities
Companies
Citizens
.. etc...
Urban Planners
House owners
Shop owners
Youth
Local Associations
Building Societies
Schools
Children
Parishes
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... How to set up a Public Participation Program
Stage 2. Public Participation planning

• Access the level of controversy
• There is no magic way to predict controversy,
  but there are indicators of probable
  controversy
• significance of impacts
• there has been a prior controversy on the same
  issue
• the issue touches a local political topic and
  is the basis of a political debate
• the issue is the total reason of existence of
  a stake holder

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... How to set up a Public Participation Program
Stage 2. Public Participation planning

• Access the level of controversy
• There is no magic way to predict controversy,
  but there are indicators of probable
  controversy
• significance of impacts
• there has been a prior controversy on the same
  issue
• the issue touches a local political topic and
  is the basis of a political debate
• the issue is the total reason of existence of
  a stake holder

TIP In respect to controversy issues, you should
be proactive (access previously), rather than
reactive
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... How to set up a Public Participation Program
Stage 2. Public Participation planning

• Identify techniques to be used at each step in
  the process, taking into account the needs of
  diverse populations
• The techniques and methods depend on several
  subjects
• the complexity of the problem and the
  solutions
• the target population (stakeholders) to
  involve, their skills, knowledge about the
  problem/issue/solution, number

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... How to set up a Public Participation Program
Stage 2. Public Participation planning

• Identify techniques to be used at each step in
  the process, taking into account the needs of
  diverse populations
• The techniques and methods depend on several
  subjects
• level of participation required and how the
  will we use the information
• time and amount of resources (money, people)
• any special circumstances.

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... How to set up a Public Participation Program
Stage 2. Public Participation planning

• Identify techniques to be used at each step in
  the process, taking into account the needs of
  diverse populations
• The techniques and methods depend on several
  subjects
• level of participation required and how the
  will we use the information
• what information needs to be provided TO the
  public and what obtained FROM the public, to
  achieve PP objectives
• any special circumstances.

TIP Special circumstances are Cultural and
ethnic sensitivities Interest of national
stakeholders Political sensitivities Level of
interest
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non-agreement
agreement
OBJECTIVES
Simple solutions and consensus (ex Schools,
Health Centres)
Simple solutions, but need to build
consensus (ex Industrial Park, landfill)
known
SOLUTIONS to overcome the problem
Try new solutions and consensus (ex
Rehabilitation of old industrial areas)
Redefine the problem (ex Definition of Policies
on nature conservation)
unknown
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non-agreement
agreement
OBJECTIVES
Simple solutions and consensus (ex Schools,
Health Centres)
Simple solutions, but need to build
consensus (ex Industrial Park, landfill)
known
more complexity
SOLUTIONS to overcome the problem
Try new solutions and consensus (ex
Rehabilitation of old industrial areas)
Redefine the problem (ex Definition of Policies
on nature conservation)
unknown
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• Participants take initiative, independently from
  public authorities

Mobilisation

• Participants in more elaborated analysis and
  define actions

active
Interactive

• Participants are consulted and their ideas
  attended

Consultation
Levels of Participation
Informative
Answers to questions raised by participants

• Participants are informed on what happened and
  will happen

Passive
passive
Levels of Interaction
high
low
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... How to set up a Public Participation Program
Stage 2. Public Participation planning

• Identify techniques to be used at each step in
  the process, taking into account the needs of
  diverse populations
• - PASSIVE (Information Providing Techniques)
• Briefings, Exhibits, Displays, Mailings
  containing technical reports, Conferences,
  Newsletters, Press Releases, Public Service
  Announcements, WEB pages

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... How to set up a Public Participation Program
Stage 2. Public Participation planning

• Identify techniques to be used at each step in
  the process, taking into account the needs of
  diverse populations
• - INFORMATIVE/CONSULTATION (Information
  Gathering Techniques)
• Focus groups, mail-in response forms, polls,
  opinion surveys, questionnaires

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... How to set up a Public Participation Program
Stage 2. Public Participation planning

• Identify techniques to be used at each step in
  the process, taking into account the needs of
  diverse populations
• - INTERACTIVE/MOBILISATION (Interaction/Informati
  on exchange techniques)
• Advisory groups, Hotlines, Interviews, Public
  Hearings, Paid Advertisements, Public Meetings,
  Workshops, Forums

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Stage 2. Public Participation planning
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... How to set up a Public Participation Program
Stage 3. Implementation planning

• Plan the implementation of individual public
  participation activities. For example,
• Develop a workshop agenda
• Decide where meetings will be held
• Decide who will facilitate the meeting
• Decide who will make the presentation

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... How to set up a Public Participation Program
Three stages of planning for an effective Public
Participation Program
Stage 1. Decision Analysis Stage 3. Public
Participation Planning (link the techniques in
an integrated plan) Stage 3. Implementation
Planning And then implement your program!!
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... How to set up a Public Participation Program
Three stages of planning for an effective Public
Participation Program
Stage 1. Decision Analysis Stage 3. Public
Participation Planning (link the techniques in
an integrated plan Stage 3. Implementation
Planning And then implement your program!!
TIP Note that you have to do all this in a good
mood
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Topics ...

• ... Why do we need Public Participation?
• ... What is the context of Public Participation?
• ... Ideas and concepts behind Public
  Participation
• ... How to set up a Public Participation Program
• ... Conclusions

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... Conclusions
Conclusions

• There is no one-size-fits-all approach on public
  participation, nor a public participation program
  that fits every decision and issue
• There is no public participation technique that
  works in all circumstances
• When we have a successful public participation
  process, actually we are talking about using
  techniques that matched that purpose and reached
  the stakeholders

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... Conclusions
Conclusions

• However, certain rules and questions arise in
  designing any public participation program, that
  we tried to provide in systematic way in this
  Session
• Be inventive, be creative

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Impossible dreams
You have already succeeded at home
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What is Public Participation

• Porquê ?

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Thank you for your attention! Catarina
Freitascfreitas_at_cma.m-almada.pt