Local Government and Emerging Models of Participation in the Local Agenda 21 Process

Local Agenda 21, with its major emphasis on local accountability and democratization, challenges perceptions of local governance and offers a long overdue opportunity, for local authorities in particular, to develop broad-based, effective, participatory structures. This paper examines initial responses to this opportunity. It models the newly emerging participatory structures and processes in selected English local authority areas, and demonstrates that there may be no one path that local authorities should follow. A number of alternative approaches to community participation can and are being adopted, contingent upon local circumstances.     

Imagined citizens and participation: Local Agenda 21 in two communities in Sweden and Austria

Local Agenda 21 (LA21), which has its roots in the UN Conference on Environment and Development held in 1992 in Rio de Janeiro, aims at fostering processes of sustainable development on a local level. In this article, we compare the LA21 processes of two cities, Helsingborg in Sweden and Vienna in Austria, to seek insight into the varying implementation approaches of common international political commitments. Our focus of analysis is on the social organisation of the two processes, the way local residents are integrated into LA21 work, and especially the political images of citizens—which we call 'imagined citizens'—that different actor groups hold. The results of the study illustrate two almost diametrically opposed organisational forms of local sustainability governance, the Swedish process relying on a more expert-led, technocratic model of implementation and the Austrian process strongly building on deliberative forms of citizen participation.     

Imagined citizens and participation: Local Agenda 21 in two communities in Sweden and Austria

Abstract

Local Agenda 21 (LA21), which has its roots in the UN Conference on Environment and Development held in 1992 in Rio de Janeiro, aims at fostering processes of sustainable development on a local level. In this article, we compare the LA21 processes of two cities, Helsingborg in Sweden and Vienna in Austria, to seek insight into the varying implementation approaches of common international political commitments. Our focus of analysis is on the social organisation of the two processes, the way local residents are integrated into LA21 work, and especially the political images of citizens—which we call ‘imagined citizens’—that different actor groups hold. The results of the study illustrate two almost diametrically opposed organisational forms of local sustainability governance, the Swedish process relying on a more expert-led, technocratic model of implementation and the Austrian process strongly building on deliberative forms of citizen participation.     

The National Forest and Local Agenda 21: An Experiment in Integrated Landscape Planning

The post-Rio environmental accord has offered new opportunities for landscape planning linking global concerns with Local Agenda 21 through concepts of sustainable development. This paper analyses the potential for integrated landscape planning by linking the aims of global sustainability with a major initiative of the UK Government, the National Forest located in the English Midlands. A common commitment to concepts of partnership and participation facilitated by local authorities can be found in the National Forest Strategy and in the principles of Local Agenda 21. Using case studies comparing local fora created to implement parts of the National Forest Strategy with focus groups formed to prepare Local Agenda 21 Action Plans, it is argued that a common consensus between these endeavours has not so far been achieved. Problems associated with the interpretation of national government policy guidance following the Earth Summit coupled with the constitution, membership and goals of specific groups are viewed as the primary reasons for conflict. These have implications for achieving compatibility between the Forest ideals and those enshrined in Local Agenda 21, particularly in localities where mineral exploitation and landfill are contentious planning concerns.     

Policy And Practice The Focus of Local Agenda 21 in the United Kingdom

The paper examines whether environmental issues are taking precedence over socio-economic issues in the UK LA 21 process. A categorization to separate issues which can be considered socio-economic from those which are environmental has been developed and a questionnaire sent to all UK local planning authorities. Results demonstrate that local authorities are indeed giving more emphasis to environmental issues, which is at odds with previous studies and with the concept of sustainability.The research has indicated that the cause may be a tendency to place LA 21 within the remit of environment departments and, whether this is the explanation or not, it implies that a re-emphasis of effort may be required on behalf of the local authorities.     

Social and Environmental Justice in South African Cities: Including ‘Invisible Stakeholders’ in Environmental Assessment Procedures

In South Africa an intensive reform process to democratize policy, legislation and related institutions in the country commenced after the first democratic elections in 1994. While environmental law reform includes active public participation and equity principles, it is proposed in this paper that ecological modernization dominates current environmental assessment practice. This paper presents a Social Impact Assessment (SIA) of a proposed landfill on the periphery of Durban, where large informal settlements and peri-urban areas exist as a relic of apartheid planning. The methodology of the SIA was explicitly designed within a framework of social justice to include poor and marginalized people, who remain excluded from environmental decision making despite the promise of democratic equality. The study claims to deepen democratic practice by demonstrating that alternative methodologies can be designed to include the interests of ‘invisible stakeholders’ in environmental assessments despite the dominance of ecological modernization in the implementation of environmental law and policy.     

Sustaining Technologies? Agenda 21 and UK Local Authorities' Use of the World Wide Web

The Agenda 21 treaty adopted at the 1992 United Nations Conference on Environment and Development set out new goals for the provision and management of information in a sustainable society. New information and communications technologies (ICTs) have the potential to be used as tools for managing information and consequently have a role in sustainable development. This paper considers the use of ICTs to manage local information areas and the extent to which these new technologies are compatible with the broader goals of Agenda 21 such as social inclusion and public participation in decision making. The use of the World Wide Web by local authorities in the UK to manage local information and promote Agenda 21 is explored through a critique of website contents. It is concluded that, although the use of ICTs is not incompatible with the broader aims of Agenda 21, and has many possible positive applications, current use of the World Wide Web by local government in the UK does not yet fulfil this potential.     

Environmental Mediation in Planning Appeals: Lessons from the Land and Environment Court of New South Wales

In both England and Wales (UK) and New South Wales (Australia) the respective planning systems permit the applicant a right of appeal to challenge the merits of a town planning decision. These systems have experienced a growing appeal workload over the last 10 years whilst their administrators have sought to increase the speed of decision making. To deal with such pressures, as well as to provide an alternative method of resolving appeal disputes, the Land and Environment Court of New South Wales has introduced a mediation facility in planning appeals. The Court itself has estimated that some 736 hours have been spent in mediation with an estimated saving of Court time of approximately 405 days. This paper examines how these reforms have sought to reduce the level of dispute in the planning system and consequently the number of appeals with their associated time and expense. Comparison will be made with reforms introduced into the UK system, in particular the Informal Hearing method. The extent to which such mediation could operate in the UK is considered.     

Putting Young Old Ideas into Action: the relevance of Growing Up in Cities to Local Agenda 21

Agenda 21, the Habitat Agenda and the United Nations Convention on the Rights of the Child have brought new relevance to Growing Up in Cities, a project of participatory action-research for urban children and youth. The origins of the project in the 1970s under the leadership of the urban planner Kevin Lynch are described, along with a brief history of the project's revival. The results of the project's recent implementation in eight countries are summarised with an emphasis on children's perspectives on environmental quality, as well as lessons learned regarding how children can be most effectively integrated into LA21 processes.     

Surrender or resistance to the implementation of Local Agenda 21 in Portugal: the challenges of local governance for sustainable development

The aim of this paper is to understand how Local Agenda 21 (LA21) is contributing to update local policy and decision making towards sustainable development in Portugal. Departing from a theoretical view of governance for sustainable development – its core values and challenges – and the role of LA21 in its endorsement, the paper presents the main results of a questionnaire survey submitted to Portuguese municipalities, with the purpose of understanding how far LA21 is being incorporated into planning and management. The paper then tries to expose some of the main potential, limitations and challenges in the local Portuguese case for the short-term sustainable future.     

Putting Young Old Ideas into Action: The relevance of Growing Up in Cities to Local Agenda 21

Agenda 21, the Habitat Agenda and the United Nations Convention on the Rights of the Child have brought new relevance to Growing Up in Cities, a project of participatory action-research for urban children and youth. The origins of the project in the 1970s under the leadership of the urban planner Kevin Lynch are described, along with a brief history of the project's revival. The results of the project's recent implementation in eight countries are summarised with an emphasis on children's perspectives on environmental quality, as well as lessons learned regarding how children can be most effectively integrated into LA21 processes.     

Environmental Justice,Local Knowledge,and Risk: The Discourse of a Community-Based Cumulative Exposure Assessment

While risk assessment continues to drive most environmental management decision-making, its methods and assumptions have been criticized for, among other things, perpetuating environmental injustice. The justice challenges to risk assessment claim that the process ignores the unique and multiple hazards facing low-income and people of color communities and simultaneously excludes the local, non-expert knowledge which could help capture these unique hazards from the assessment discourse. This paper highlights some of these challenges to conventional risk assessment and suggests that traditional models of risk characterization will continue to ignore the environmental justice challenges until cumulative hazards and local knowledge are meaningfully brought into the assessment process. We ask whether a shift from risk to exposure assessment might enable environmental managers to respond to the environmental justice critiques. We review the US EPA's first community-based Cumulative Exposure Project, piloted in Brooklyn, NY, and highlight to what extent this process addressed the risk assessment critiques raised by environmental justice advocates. We suggest that a shift from risk to exposure assessment can provide an opportunity for local knowledge to both improve the technical assessment and its democratic nature and may ultimately allow environmental managers to better address environmental justice concerns in decision-making.     

Attitudes to Sustainable Development in Planning: Policy integration, participation and Local Agenda 21, a case-study of the Hertfordshire Structure Plan

This paper explores the debate about the pursuit of an integrated and participatory approach to sustainable development within the UK planning system, using the Examination in Public (EiP) of the Hertfordshire Structure Plan as a case-study. The Hertfordshire Structure Plan incorporated a concept called 'whole settlement strategies', requiring that the major settlements in the county were planned holistically to assess their potential to meet development needs. The debate at the EiP sheds light on issues associated with the operationalism of key themes of sustainable development in planning, and on the relationship between emerging approaches to Local Agenda 21 and the development plan system. It also highlights the contested meanings of sustainable development between those promoting a strong approach and those holding to a weak definition based on meeting development needs.     

Integrating Local Environmental Management and Federal/State Interests Through Governance: The Case of the Garden Island Environmental Advisory Committee

The apparently unresolvable differences between managing national defense and local conservation, public recreation, and scientific research can be overcome through an advisory committee, with a strong and dedicated entity to drive the processes of governance and change. The case of the Garden Island Environmental Advisory Committee shows how the organizational and political difficulties of integrating state interests and federal concerns were met. Garden Island, off the coast of Perth, the capital of the State of Western Australia, is a base for the Royal Australian Navy which is administered by the federal Department of Defence. Examples are given of the committee's approach to integrated environmental management and the implementation of the Navy's environmental policy.