PATERNALISM, CONFLICT, AND COPRODUCTION. Learning from Citizen Action and Citizen Participation in Western Europe

Transcription

1 PATERNALISM, CONFLICT, AND COPRODUCTION Learning from Citizen Action and Citizen Participation in Western Europe

2 ENVIRONMENT, DEVELOPMENT, AND PUBLIC POLICY A series of volumes under the general editorship of Lawrence Susskind, Massachusetts Institute of Technology, Cambridge, Massachusetts ENVIRONMENTAL POLICY AND PLANNING Series Editor: Lawrence Susskind, Massachusetts Institute of Technology, Cambridge, Massachusetts THE LAND USE POLICY DEBATE IN THE UNITED STATES edited by Judith I. de Neufville CAN REGULATION WORK? Paul A. Sabatier and Daniel A. Mazmanian PATERNALISM, CONFLICT, AND COPRODUCTION Learning from Citizen Action and Citizen Participation in Western Europe Lawrence Susskind and Michael Elliott Other subseries: CITIES AND DEVELOPMENT Series Editor: Lloyd Rodwin, Massachusetts Institute of Technology, Cambridge, Massachusetts PUBLIC POLICY AND SOCIAL SERVICES Series Editor: Gary Marx, Massachusetts Institute of Technology, Cambridge, Massachusetts

3 PATERNALISM, CONFLICT, AND COPRODUCTION Learning from Citizen Action and Citizen Participation in Western Europe Lawrence Susskind and Michael Elliott Massachusetts Institute of Technology Cambridge, Massachusetts and Associates Springer Science+Business Media, LLC

4 Library of Congress Cataloging in Publication Data Susskind, Lawrence. Paternalism, conflict, and coproduction. (Environment, development, and public policy. Environmental policy and planning) Bibliography: p. Includes index. 1. Municipal government Europe Case studies. 2. Political participation Europe Case studies. 3. Transportation and state Europe Citizen participation Case studies. 4. Urban renewal Europe Citizen participation Case studies. I. Elliott, Michael. II. Title. III. Series. JS A15S / ISBN ISBN DOI / ISBN (ebook) 1983 Springer Science+Business Media New York Originally published by Plenum Press, New York in 1983 Softcover reprint of the hardcover 1st edition 1983 All rights reserved No part of this book may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, microfilming, recording, or otherwise, without written permission from the Publisher

5 To our parents

6 CONTRIBUTORS DONALD APPLEYARD, Late Professor at the Department of Urban and Regional Planning, University of California, Berkeley MARC DRAISEN, Program Manager at the Mayor's Office of Policy Management, City of Boston MICHAEL ELLIOTT, Fellow at the Joint Center for Urban Studies of Massachusetts Institute of Technology and Harvard University, Cambridge DAVID GODSCHALK, Professor and Chairperson of the Department of City and Regional Planning, University of North Carolina, Chapel Hill CHESTER HARTMAN, Visiting Fellow at the Institute for Policy Studies, Washington, D.C. JANICE PERLMAN, Associate Professor at the Department of Urban and Regional Planning, University of California, Berkeley; on leave as the Executive Director of the Committee for a New New York HANS SPIEGEL, Professor and Chairperson of the Graduate Program in Urban Affairs, Hunter College, New York, New York LAWRENCE SUSSKIND, Associate Professor at the Department of Urban Studies and Planning, Massachusetts Institute of Technology; and Director of the Public Disputes Program at the Harvard Center for Negotiation, Cambridge JOHN ZEISEL, Principal of Building Diagnostics, Cambridge. vii

7 PREFACE A research team from the United States has completed an examination of citizen participation experiments in seven European countries. The team included Donald Appleyard, Marc Draisen, David Godschalk, Chester Hartman, Janice Perlman, Hans Spiegel, John Zeisel, and ourselves. This book is a product of our joint efforts. Our studies are aimed at summarizing and sharing what can be learned from recent European efforts to enhance the effectiveness of local government through increased public involvement in the organization and management of public services and urban redevelopment. Almost a year was spent assembling the team, developing a shared framework for analysis and identifying appropriate casestudy cities. European and American public officials and citizen activists helped us assess the potential impact of such a study on current practice. A second year was spent visiting the European cities and preparing the case-study drafts. Finally, team members gathered in Washington, D. C., with fifty American and European public officials, citizen activists, and scholars. A two-day symposium provided an exciting opportunity to present preliminary research findings and encourage an exchange of ideas between researchers, activists, and policymakers. The final versions of the case studies that appear in this book, along with several commentaries by symposium participants, are written especially for city officials and citizen activists. We have tried to translate the results of our scholarly inquiry into pragmatic suggestions for officials and activists. We would also like to believe that our work will influence those scholars who seek to redefine the conventional wisdom about citizen participation. By pinpointing ways in which client involvement and public participation have helped local governments to solve pressing problems and provide public services more effectively, we hope to intrigue elected officials in the United States who have been standoffish about participation. We have provided illusix

8 x PREFACE trations of successful participation efforts, although we have also pointed out the costs involved. The scholar-practitioners involved in the preparation of this book are convinced that participation can lead directly to improvements in urban services and the quality of redevelopment, even when all the costs involved are weighted against the apparent benefits. Our aim is to provide stories that are rich enough in detail to allow readers to weigh the full range of costs and benefits themselves. Citizen participation exists when residents or consumers of public services supplement the normal machinery of representative democracy by their involvement in local planning or decision making. Participation implies a common ground on which public officials and citizens meet. Participation can take the form of blue-ribbon advisory committees or collaborative processes in which some actual sharing of power occurs. Local residents frequently do not wait to be invited to participate by public officials. When residents or consumers organize themselves to oppose the programs or priorities established by local officials or administrators, citizen action emerges. Citizen participation and citizen action, while springing from different political roots, are nonetheless linked. Not only do they sometimes exist simultaneously but one may stimulate and strengthen the other. In fact, there is some doubt as to whether participation in the absence of citizen action can lead to significant increases in resident satisfaction or to a real sharing of ideas, skills, or power. This book, then, is organized around three patterns of citizen participation and action: paternalism (in which municipal decision making is highly centralized and advice giving by citizens is either discouraged or closely managed by government officials), conflict (in which centralized decision making is dominant but resident and consumer groups struggle openly to wrest control over certain decisions), and coproduction (in which decisions are made through face-to-face negotiation between decision makers and those residents claiming a major stake in particular decisions). Chapter 1 describes these patterns in detail, using examples from the stories told throughout the remainder of the book; analyzes how and why these patterns of participation arise and change; and summarizes the most important ideas for action that emerge from our reflections on the European experience. The diverse and multifaceted participatory efforts described in the subsequent chapters do not fit neatly under our three headings. They do, however, exhibit dominant features that allow us to make approximate classifications. Chapters 2 and 3 discuss examples of paternalistic patterns of participation in Copenhagen, Denmark; Delft, the Netherlands; and the borough of Camden in London. Chapters 3 through 6 describe conflict as a long-range strategy (in the Docklands and Covent Garden areas within London and also in the city of Coventry, some 80 miles to the northwest) and as a short-range tactic (in Paris, Brussels, and Switzerland). Chapters 7 through 9 emphasize coproduction in Madrid, the Hague, Rotterdam, and Helmond (the Netherlands). The coprod-

9 PREFACE xi uction cases address the links between coproduction and both paternalism and conflict. The epilogue offers a very brief reflection on the problems of transatlantic comparative research-especially research that seeks to influence public policy. This undertaking would have been impossible without the generous support of the German Marshall Fund of the United States. They have promoted dialogue between Europeans and Americans in many fields, and we are grateful for their interest in citizen participation. We also appreciate the help we received from literally hundreds of Europeans and Americans who contributed to our inquiry. They are acknowledged at the conclusion of each chapter. Finally, special thanks to Rebecca Black (symposium coordinator), Renate Engler (typist), and Peter Clemons (illustrator and designer), whose devotion to excellence has been a considerable blessing. LAWRENCE SUSSKIND MICHAEL ELLIOTI

10 CONTENTS 1. Paternalism, Conflict, and Coproduction: Learning from Citizen Action and Citizen Participation in Western Europe... 3 LAWRENCE SUSSKIND AND MICHAEL ELLIOTI' 2. Copenhagen's Black Quadrant: The Facade and Reality of Participation JANICE PERLMAN AND HANS SPIEGEL 3. Case Studies of Citizen Action and Citizen Participation in Brussels, Covent Garden, Delft, and Camden DONALD APPLEYARD Commentary Citizen Action in Brussels: Some Comments JEAN-FRANCOIS LEJEUNE AND RENE SCHOONBRODT 4. Docklands and Coventry: Two Citizen Action Groups in Britain's Economically Declining Areas HANS SPIEGEL AND JANICE PERLMAN 5. The Voter Initiative as a Form of Citizen Participation in Swiss Transportation Policy CHESTER HARTMAN 6. Transportation Users' Movements in Paris in the 1970s CHESTER HARTMAN xiii

11 xiv CONTENTS Commentary Transportation Users' Movements in Paris: Some Comments JEFFREY SUTTER 7. Citizen Action and Participation in Madrid JANICE PERLMAN 8. Fostering Effective Citizen Participation: Lessons from Three Urban Renewal Neighborhoods in The Hague MARC DRAISEN 9. Coproducing Urban Renewal in the Netherlands DA YID GODS CHALK AND JOHN ZEISEL Commentary Citizen Participation in the Netherlands: Some Comments FRANS YONK 10. Epilogue Index