Power, Participation, and Inflexible Institutions: An Examination of the Challenges to Community Empowerment in Participatory GIS Applications

Abstract

Participatory GIS (PGIS) applications provide tools that allow underprivileged groups to make a case for recognition, participation, and political access. These community-based applications have therefore become the focal point for claims about public participation and empowerment. However, empowerment is a difficult and complex process necessitating the transformation of bureaucratic organizations into flexible institutions that address the concerns of marginalized groups in society. This process involves shifts in power relations during which PGIS organizations confront deeply embedded structures and vested political interests. Opposition from local leaders, unfamiliar customs and rituals, and lack of infrastructure and skilled GIS personnel impede successful participation and empowerment. Additionally, reliance on external sources of funding and expertise for PGIS projects severely limits their long-term sustainability. To date, PGIS applications have produced case studies about attempts to empower communities, but few studies have focused on how the community-based organizations and the contexts of PGIS applications mediate the community empowerment process. This article explores ways in which the internal and external environments of a PGIS organization influence the community empowerment process. Experiences from PGIS studies in southern Ghana are used to illustrate the constraints that these factors impose on community empowerment.