Public Participation & Stakeholder Representation Anders Ekbom, Environmental Economics Unit, Department of Economics, University of Gothenburg [email protected].

Public Participation & Public Participation & Stakeholder RepresentationStakeholder Representation

Anders Ekbom, Anders Ekbom,

Environmental Economics Unit, Environmental Economics Unit,

Department of Economics,Department of Economics,

University of GothenburgUniversity of Gothenburg

[email protected]

Dec 1 2010Dec 1 2010

Public participation and Public participation and Stakeholder representationStakeholder representation

Objectives: Objectives: Understand what Public partici- Understand what Public partici-pation and Stakeholder representation are pation and Stakeholder representation are in SEA context (env. management)in SEA context (env. management)

Understand & discuss:Understand & discuss:- Why/why not Why/why not (benefits/costs, lessons (benefits/costs, lessons

learned)learned)- How it can be done How it can be done (tools)(tools)- Risks, Obstacles & Solutions to poor Risks, Obstacles & Solutions to poor

public participationpublic participation

Why Public Participation?Why Public Participation?


Enhancing stakeholder involvementEnhancing stakeholder involvement in in strategic planning can result in:strategic planning can result in:

Public debates => Social learningPublic debates => Social learning Strengthened constituenciesStrengthened constituencies Improved GovernanceImproved Governance Strengthened AccountabilityStrengthened Accountability


Stakeholder involvement in strategic Stakeholder involvement in strategic planning pertains to:planning pertains to:

PowerPower DemocracyDemocracy Influence and RightsInfluence and Rights Elite vs the Public & the PoorElite vs the Public & the Poor Experts vs “Wisdom of crowds”Experts vs “Wisdom of crowds”


“…“…. involvement of a variety of . involvement of a variety of stakeholders in decision making stakeholders in decision making increases the likelihood that increases the likelihood that solutions solutions to complex problems like to complex problems like sustainable sustainable development will emergedevelopment will emerge.” .” (Slunge et al (Slunge et al 2009)2009)

Why the Vulnerable Should Be Involved in Policy Planning

Vulnerable groups:- Often first to experience negative

impacts of policies, plans, programs- Are most affected by neg impacts- Indeed have the capacity to appraise,

analyze, plan, act, and monitor PPP- Can stimulate debates on policy impacts

and trade-offs based on experience

Ref: Ahmed and Sanchez-Triana (2008)Ref: Ahmed and Sanchez-Triana (2008)

WhoWho participates? participates?

Who are invited?Who are invited? Who are not invited?Who are not invited? Fair representation?Fair representation?

Who participates?

MediaMedia

ForeignForeigndonorsdonors

MilitaryMilitary

LegislatureLegislature BureaucracyBureaucracy

PoliticalPoliticalpartiesparties

MinistriesMinistriesUniversities,Universities,Research institutesResearch institutes

CivilCivilsocietysociety

Intl Intl NGOsNGOs

BusinessBusinesssectorsector

Old elitesOld elites

VestedVestedinterestsinterestsJudiciaryJudiciary

Political decision

Strategy Policy formulation

Policy implemen-tation

Monitoring and Evaluation

olicy formulation

Changes as needed formulation

Timing is key for public involvement and information

Policy

Formation

PolicyIntervention

New policies: Kenya (Land, Forest); Malawi (minerals)=> new/changed practices, new legislation, new agency, stakeholder involvement

Before policy reform: Gov receptivity for new info, novel ideas, preparedness for change

• Research results• Knowledge• Public involvement

Too late, missed

opportunity

SEA & Participation

Planning SEA Features:- Expert based- No partici-pation- Top-down

Planning SEA Features:- Some consultation- No feedback

SEA & Participation

Planning SEA Features:- Involvement- Consultative- Interactive- Feedback

SEA & Participation

Planning Features:- Integrated- Consensus building- Joint decision-making

SEA & Participation

HOW: Five levels of stakeholder involvement (1):

1. Information

2. Consultation

3. Joint Analysis

4. Consensus building

5. Decision making

HOW: Participation Dynamics in PPP

1. Information: Information about proposed policy

4. Consensus building: Negotiation of proposed policyPresentation of policy for decision

2. Consultation: Exchange of info andpriorities for proposed policy

Revision of policyplanning process

3. Joint analysis: Preparation of feasibility studiesAnalysis of policy relevant data

5. Decision-making: Finalization of policy detailsEnactment of policy into law

FormalProcedures

Policy imple-mentation and monitoring

Technical analysis

Capacity building

SocialMobilization

WHY:Benefits of Participation in PPP

Ref: Ahmed and Sanchez-Triana (2008)Ref: Ahmed and Sanchez-Triana (2008)

Participation of vulnerable groups in policy formulation

Empowerment of vulnerable groups (”intrinsic value”)

Improved Policy analysis(”instrumental value”)

More effective Policies

Ownership And supportfor Policies

More Accountable Government

Inclusive andEquitable Political systems

HOW: Tools in the Participatory HOW: Tools in the Participatory Policy cycle Policy cycle

PolicyAnalysis

Policy Monitoring

Policy formulation

Community score cardsCitizen report cardsBeneficiary assessment

PolicyImplementation

Participation and

consultation

Stakeholder analysisInstitutional analysisSocial Impact analysisPart. Poverty assessm.Beneficiary assessment

Participatoryplanning

Conclusions Conclusions (Ahmed and Sanchez-Triana, 2008)(Ahmed and Sanchez-Triana, 2008)

Giving vulnerable groups a voice in policy formulation yields several benefits:

- Strengthens empowerment, social accountability and transparency

- Creates a more-open dialogue- Greater understanding between those in

power and vulnerable groups- Policies are better informed, understood,

and supported

Why not: Obstacles to stakeholder involvement (1):

1. Weak interests are difficult to identify: Who are the “weak and vulnerable?”

2. Their voice is often weak: not level playing fields;

3. Difficult to involve large unorganized groups: poor people often excluded from current policy debate; unorganized;

Why not: Obstacles to stakeholder involvement (2):

4. Policy makers’ may not be sincere: may use “participatory speak”, no willingness to use their input

5. Vested interests do not participate in the process: implementation obstructed by these groups, they control it in reality

Overcoming obstacles to Overcoming obstacles to stakeholder involvement: stakeholder involvement:

1. Institutionalize formal laws that require 1. Institutionalize formal laws that require participation or representationparticipation or representation

2. Strengthen Accountability: formally!2. Strengthen Accountability: formally!

3. Involve weak and other stakeholders3. Involve weak and other stakeholders

4. Strengthen networks that can demand 4. Strengthen networks that can demand improved stakeholder representationimproved stakeholder representation

5. Focus on small improvements (when 5. Focus on small improvements (when obstacles large)obstacles large)

Wilkins (2003): The Need for Wilkins (2003): The Need for Subjectivity in SEA Subjectivity in SEA

Traditional perception:Traditional perception:

Subjectivity (value judgements) in SEA Subjectivity (value judgements) in SEA often viewed as a shortcomingoften viewed as a shortcoming

Expert opinion and scientific analysis Expert opinion and scientific analysis viewed as preferred approachviewed as preferred approach

Need for Subjectivity in SEA (2)Need for Subjectivity in SEA (2)

Wilkins (2003) contests these viewsWilkins (2003) contests these views

Believes in “wisdom of the crowds”; public’s Believes in “wisdom of the crowds”; public’s knowledge from practical experience and knowledge from practical experience and subjective views subjective views

Expert opinion and scientific analysis loaded Expert opinion and scientific analysis loaded with value judgementswith value judgements


Wilkins (2003):Wilkins (2003): ““Knowledge of the environment will never be Knowledge of the environment will never be

sufficient to accurately predict the exact sufficient to accurately predict the exact impacts of a project.”impacts of a project.”

““The influence of personal value systems The influence of personal value systems and beliefs is unavoidable when creating an and beliefs is unavoidable when creating an expert evaluation and interpretation.”expert evaluation and interpretation.”


Uncertainty, Simplified assumptions, Uncertainty, Simplified assumptions, Subjectivity and Value judgements in:Subjectivity and Value judgements in:

- choice of data- choice of data - (application of) analytical methodology - (application of) analytical methodology - causal explanations- causal explanations - projections for the future- projections for the future

=> => Reduces credibilityReduces credibility and and public confidencepublic confidence


Wilkins (2003): Acknowledge Subjectivity and Wilkins (2003): Acknowledge Subjectivity and Value judgements in EIA/SEA! Value judgements in EIA/SEA!

Promote exchanges of views among peoplePromote exchanges of views among people Promote stakeholder involvement in planning Promote stakeholder involvement in planning

and decision-makingand decision-making

=> Validation (of Strategic actions/PPP => Validation (of Strategic actions/PPP solutions) solutions)

=> Social learning=> Social learning


Social learning: Social learning: “…is “…is changes in awarenesschanges in awareness and changes in how individuals see their and changes in how individuals see their private interests linked with the shared private interests linked with the shared interests of their fellow citizensinterests of their fellow citizens.”.”

……is achieved 1) through communication is achieved 1) through communication between stakeholders and the public between stakeholders and the public

and 2) by reaching agreements through and 2) by reaching agreements through accommodation and understanding.accommodation and understanding.

Wilkins’ (2003) ConclusionsWilkins’ (2003) Conclusions

Increased Public participation:Increased Public participation:- Provides a validation role of proposed PPP Provides a validation role of proposed PPP - Addresses the needs of good governanceAddresses the needs of good governance- Brings public values and preferences into Brings public values and preferences into

the planning processthe planning process- Results in better planning, decisions and Results in better planning, decisions and

political legitimacypolitical legitimacy- Assists to educate/inform stakeholders, the Assists to educate/inform stakeholders, the

Government Government and and PPP-proponentPPP-proponent

Wilkins’ Conclusions (c’ed)Wilkins’ Conclusions (c’ed)

Increased Public participation:Increased Public participation:- Reduces or avoids conflicts Reduces or avoids conflicts - Helps the public to become more Helps the public to become more

responsive and democratic citizens responsive and democratic citizens - Allows people and Government to learn Allows people and Government to learn

about each other (preferences, constraints about each other (preferences, constraints etc.).etc.).

Public Participation & Stakeholder Representation Anders Ekbom, Environmental Economics Unit, Department of Economics, University of Gothenburg [email protected].

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