The democratic legitimacy of public participation in planning: Contrasting optimistic, critical, and agnostic understandings

Abstract

How does public participation in planning and environmental governance engender democratic legitimacy? Drawing a distinction between the optimistic and critical participation literature, I argue that both these strands of research have tended to neglect the public’s perspective on this question. This oversight has, in effect, produced strongly normative and essentialist understandings of democratic legitimacy that treat legitimicy as intrinsic to either process or substance of participatory governance. Proceeding from an anti-essentialist understanding of democratic legitimacy, which primarily relies on contemporary social perceptions and expectations of democratic institutions, I outline a normatively agnostic framework for exploring how legitimacy is engendered through participation. Using this framework to investigate citizen experiences of participation processes in Sweden, I highlight how democratic legitimacy can gainfully be understood as a multidimensional, provisional, and contingent quality that individual citizen participants “confer” and “retract” in a plurality of ways. Based on this, I conclude by suggesting that sustained research engagement with the public’s expectations and experiences of participatory governance can reveal critical insights into the potentials and challenges for realizing democratic planning outcomes.