Public Participation in Planning Within a Representative Local Democracy

Abstract

Within the present system of local government in Britain there is great variation of public involvement. Major elites are often involved and consulted, while minor elites occasionally enjoy that position. For the public at large there is little collective involvement. The obvious challenge which these facts offer to conventional democratic notions is recognised in the recent requirement for public participation in planning introduced in 1971. Such participation, we argue, may range from improved representative government, where it may be little more than public relations, to participatory democracy where the people exercise power over planning decisions. Empirical evidence from five structure plan authorities is used to illustrate positions between those two poles. They exhibit some variation, though clustering towards the improved representative pole. The varied positions are considered in terms of the different relationships between planners, elected members and officials in other local departments. In our five cases the planners rarely involve the elected councillors, and the involvement of other officers varies. The resulting efforts at public participation depend on planners’ attitudes towards the role which the public should play (legitimizing or exercising power); and whether it is conceived as a continuing process, or simply the production of formal plans. Comment is offered on the five cases looking at the pattern of likely local conflict and its implications for the planners. Given the nature of local government since reorganization, it is argued that participatory democracy is unlikely. If it is to develop, planning must develop a direct engagement with the normal political processes: it cannot be achieved by planners acting alone.