training session public participation public participation catarina freitas environmental planning...

Training Session PUBLIC PARTICIPATION

www.transportlearning.net

PUBLIC PARTICIPATION

Catarina Freitas

Environmental Planning Department

City Council of Almada, Portugal

Goal ...

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.

... Goal and Objectives

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.

•Porquê ?

What is Public Participation

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

Topics ...

... Conclusions

... 30 trees are cut in each second ...

... all the trees in our Planet can absorb

50 tons of CO2 per second ...

... all the Earth’s population produces 127 tons of waste per second ...

... each 20 minutes an animal or plant species disappears ...

... each second, 55 kg of oil are discharged into the sea...

... in 65 years, the world’s oil reserveswill be finished ...

... in each 4 seconds, a person dies of famine ...

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 …

... 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.

• 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 …

... create open, early on,

complete, effective and

meaningful opportunities

for public participation

is of crucial importance …

Topics ...

... Conclusions

«Public participation is nice, but when we organise something, no one appears! »

a sceptical Councillor …

... What is the context of Public Participation

«In our Council there's not political will. That's it! »

a Local Authority employee …

«If politicians and local decision makers don’t prepare our city for future challenges, one can ask what do we need them for.»

a citizen …

Pre-conceived ideas of decision makers, planners and experts

• The public doesn’t 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)

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

• 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

Pre-conceived ideas and complaints of Public

good public information is a

necessary precondition for

effective participation !good public information is a

necessary precondition for

effective 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)

Example:

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

% of articles in doubt as cause to the of Climate Change

What society do we want?

Scenario 1

Scenario 2

Projections on World Energy Consumption

Scenario 1:

BAU Business As Usual

Is the scenario that no one wants, but almost

everyone follows.

More oil

www.transportlearning.netMore refineries

More terrorist attacks

www.transportlearning.netMore war

More nuclear power

More pipelines and terminals

More gas

Almada (A2)8.00 – 9.00 am

More traffic

More extreme climate events

More ecosystems disrupted

www.transportlearning.netMore species facing extinction

What society do we want?

Scenario 1

Scenario 2

Projections on World Energy Consumption

Scenario 2:

F4 Do twice as much with half the resources

Is the scenario that (almost) everyone wants,

but almost no one follows.

Reduce drastically private car use on daily journeys

Bring life to city center

Build on low energy

Accept a landscape evolution

Create rural employment on renewable energy

Maintain biodiversity

Topics ...

... Conclusions

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

3 Pillars of Aarhus Convention

1. Right of public access to environmental information

2. Right of public participation in environmental decision-making

3. Right of public access to justice on environmental matters

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

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

Main steps of planning and decision-making processes

PROBLEMIssue DIAGNOSIS

SOLUTIONSPlans, Alternatives

DECISION

IMPLEMENTATIONEVALUATION

DECISION

PP PPPP

DECISION

Public Participation

DECISION

Public Participation

Information | Communication

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% don’t care at all !- 20% will be happy because you have problems !!

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

33%Christians

29%other

religions or

atheists

19%Muslims

19%Hindus

Budhists

Exercise:

Barriers to communication: Different perceptions

Topics ...

... Conclusions

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

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?

… main steps of a decision-making process…

DECISION

Stage 1. Decision AnalysisDecision 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)

Stage 1. Decision AnalysisDecision 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)

TIPSome decisions do not require PP

• 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).

TIPDecision makers should have an active role on PP

Stage 2. Public Participation planningThis phase specifies the public participation techniques that should be used, as well as their sequence and time

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 …)

TIPWrite a 1 or 2 sentence of the issues/ problem

being solved

• 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.

Journalists Financial institutions

Consumer Associations

Tourism Associations

Companies

Urban Planners

PublicTransport Operators

Cyclists Association

Shop owners

Local Associations

Energy Agencies Politicians

Schools

Universities

Workers

Artists

Trade Unions

House owners

Architects

Economists

Energy Utilities

.. etc...

Law experts

Building SocietiesYouth

Citizens

Parishes

Cultural Associations

Who are the stakeholders we want to engage ?

Children

Professional Associations

• 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

• 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

TIPIn respect to controversy

issues, you should be proactive (access previously),

rather than reactive

• 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

… level of participation required and how the will we use the information

… time and amount of resources (money, people)

… any special circumstances.

… 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.

TIPSpecial circumstances are…

Cultural and ethnic sensitivities

Interest of national stakeholders

Political sensitivities

Level of interest

SOLUTIONS to overcome the problem

OBJECTIVES

unknown

agreement

non-agreement

Simple solutions and

consensus(ex: Schools,

Health Centres)

Simple solutions, but need to build consensus

(ex: Industrial Park, landfill)

Try new solutions and

consensus(ex: Rehabilitation

of old industrial areas)

Redefine the problem

(ex: Definition of Policies on nature

conservation)

SOLUTIONS to overcome the problem

OBJECTIVES

unknown

agreement

non-agreement

Simple solutions and

consensus(ex: Schools,

Health Centres)

Simple solutions, but need to build consensus

(ex: Industrial Park, landfill)

Try new solutions and

consensus(ex: Rehabilitation

of old industrial areas)

Redefine the problem

(ex: Definition of Policies on nature

conservation)

… more complexity

Levels of Participation

active

passive

Levels of Interaction

Passive

Informative

Consultation

Interactive

Mobilisation

highlow

Participants are informed on what happened and will happen

Answers to questions raised by participants

Participants in more elaborated analysis and define actions

Participants take initiative, independently from public authorities

Participants are consulted and their ideas attended

- PASSIVE (Information Providing Techniques)

Briefings, Exhibits, Displays, Mailings containing technical reports, Conferences, Newsletters, Press Releases, Public Service

Announcements, WEB pages

- INFORMATIVE/CONSULTATION (Information Gathering Techniques)

Focus groups, mail-in response forms, polls, opinion surveys, questionnaires

- INTERACTIVE/MOBILISATION (Interaction/Information exchange techniques)

Advisory groups, Hotlines, Interviews, Public Hearings, Paid Advertisements, Public Meetings, Workshops, Forums

Who needs to be on the planning team?

What are the issues and who are the Stakeholders for the decision?

What is the probable level of controversy?

How do we prepare for it?

For each step in the decision-making process:

What do we want to accomplish with the public?

What does the public need to know to participate effectively?

What do we need to learn from the public?

What circumstances affect the selection of participation techniques?

Which participation techniques are appropriate?

WRITE THE PUBLIC PARTICIPATION PLAN

Stage 2.

Public Participation planning

public

informationpublic

information

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

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!!

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!!

TIPNote that you have to do all this … in a good mood

Topics ...

... 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;

... 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 …

Impossible dreams …

You have already succeeded at home

•Porquê ?

What is Public Participation

Thank you for your attention!

Catarina Freitas

cfreitas@cma.m-almada.pt

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