PUBLIC PARTICIPATION IN WATER PLANNING: A CRITIQUE OF THEORY,DOCTRINE, AND PRACTICE1

ABSTRACT. Water development planning has virtually since its beginnings over one hundred fifty years ago utilized a variety of devices for involving segments of the public. But a new insistence for increased public participation, particularly at the Federal level, has stimulated re-examination of objectives and methods for relating water planning to citizen interests and preferences. Involved is partly a recommitment to democratic symbols, partly a recognition that segments of society have been overlooked, and partly a reaction to the pressures of confrontation and demonstration. The rhetoric and polemics of participation have often implied a kind of “town-meeting” process of decision, difficult at best in a nation of 200 million. In water planning more emphasis has been placed on listening to citizens, which has meant providing opportunities for influentials to express their views and preferences. A more adequate approach would seem to require identification of all who are significantly affected by plans and proposals (even though they may not perceive then-interest). But gaining greater participation does not make the planning job easier. It may increase tension and conflict; it may require difficult choices; and it can alter existing power relationships and generate changes with considerable consequences for the agency and its programs.