Emerging Problems of Citizen Participation

Abstract

Over the last decade and a half the increased activity, involvement, and influence of public interest groups and citizen organizations has become one of the most distinctive features of American administration.' Citizen groups have besieged administrative agencies and courts at every level of government with demands that they be allowed to participate fully in administrative proceedings, that they be given greater access to agency information, and that they be permitted to present any and all evidence in behalf of their interests before appropriate administrative and judicial tribunals. They have skillfully cultivated the press to broaden their appeal to administrative and political officials, established effective, fulltime lobbying organizations, and in some cases have put together sophisticated professional staffs which rival the agencies' own in their ability to grasp the intricacies and complexities of public policy issues. Furthermore, both the participants themselves and knowledgeable observers have predicted that the torrent of citizen suits and public interest activity seen thus far is only a small fraction of the deluge yet to come.2 On the whole, reaction to this surge of citizen participation has been positive. The general assumption is that broadened participation is desirable because it increases the representativeness and responsiveness of our administrative and political institutions, heightens citizens' sense of political efficacy, and acts as an important check on the abuse of administrative discretion. Yet in spite of the proven accomplishments of citizen groups in some policy areas, there is a growing body of data to support the contention that public participation which is automatic, unrestrained, or ill-considered can be dangerously dysfunctional to political and administrative systems. The purpose of this article is to explore the other side of the public participation issue * This article analyzes the problems which have accompanied the growth of the citizen participation and public interest movements. The principle problems identified are the potential shortsightedness of the administrative response to citizen demands, problems of representation and legitimacy, the style and tactics of citizen groups, and the absence of sophisticated cost-benefit analysis of public interest policies and programs. The author suggests that public participation which is not carefully ordered and constrained by administrators can lead to poorly conceived, unrepresentative, and costly policy decisions. Administrators are chiefly responsible for the integrity of the administrative process, and sensitivity to citizen demands is no substitute for independent, carefully reasoned, professional judgments regarding the nature of the public interest in each new administrative situation.