The Negation of Politics in Participatory Development Projects,Kurnool, Andhra Pradesh

Based on a case study of two watershed development projects in Kurnool district of Andhra Pradesh in India, this article argues that participatory development projects are legitimized by using formalistic compliance criteria, while removing politics as a context. It shows how key aspects of the liberal political framework have not been fully harmonized with communitarian theories; the result is an interpretation of participation as a set of practices that are far removed from politics. As a development practice, participation can turn into the itemizing of participatory objectives, which are then to be fulfilled in the same way as physical and financial targets. The practitioners see their role as merely ‘technocratic’ and the projects they implement as ‘apolitical’. The author argues that, central to these claims, is a limited definition of ‘politics’ as a one dimensional domain comprising contest and irreconcilable conflict, from which the participatory projects, based on so‐called consensus, publicly expressed, are to be shielded. The article concludes that participatory projects accommodate and reflect existing relations of domination and control much more than their outward orientation would suggest.     

Participation and Power: Poor People's Engagement with India's Employment Assurance Scheme

‘Participation’ has become an essential part of good developmental practice for Southern governments, NGOs and international agencies alike. In this article we reflect critically on this shift by investigating how a ‘participatory’ development programme — India's Employment Assurance Scheme (EAS) — intersects with poor people's existing social networks. By placing the formalized process of participation in the EAS within the context of these varied and uneven village–level relationships, we raise a number of important issues for participatory development practice. We note the importance of local power brokers and the heterogeneity of ‘grassroots’ (dis)empowerment, and question ideas of power reversals used within the participatory development literature.     

Development for Children,or Children for Development? Examining Children's Participation in School‐Led Total Sanitation Programmes

The Community‐Led Total Sanitation (CLTS) approach is said to have radically revolutionized a poorly performing sanitation sector. The claims of CLTS programmes successfully stopping practices of open defecation have only recently begun to be critically reviewed: scholars and practitioners are questioning the sustainability and scrutinizing the participatory nature of this approach. This article builds on these analyses to draw attention to the School‐Led Total Sanitation (SLTS) programme which promotes the role of children as sanitation change agents to ‘trigger’ a shift of behaviour in their peers and elders in school and surrounding environments. The article reviews the active role of children in SLTS in the context of how ‘participation’ is structured in demand‐led sanitation approaches, as well as in relation to children's rights to participation in developmental projects in general. Reviewing the arguments supporting SLTS in practitioner literature and drawing on observations from SLTS case studies in Ghana, the authors notice a significant contradiction in the concept of children's participation as premised in SLTS initiatives and as outlined in the child rights agenda. These findings expose inherent tensions in SLTS between children's rights, participation and the role of children as sanitation change agents. They build on existing critiques of participation as coercion within demand‐led sanitation approaches that have ‘gone global’.     

The Discourse of Maendeleo and the Politics of Women’s Participation on Mount Kilimanjaro

Studies of participatory development and empowerment often fail to place people’s actions and motivations within their wider cultural, social, political and economic context. Drawing on fieldwork which looked at village‐based women’s groups on Mount Kilimanjaro, Tanzania, this article deconstructs the dominant discourse of development on the mountain (maendeleo) to show how women’s participation in their local organizations is used as a strategy to boost their social status and financial gains. Local, national and global discourses on development, modernity and gender are reappropriated by Chagga men and women to produce a normative Chagga developmental subjectivity which women can demonstrate by participating in women’s groups. The over‐representation of better‐off and higher‐status women in these groups suggests that, in excluding the poorest women, participation in women’s groups is serving to legitimate, and perpetuate, existing inequalities within Chagga society.     

Unpacking the ‘Joint’ in Joint Forest Management

This article examines the concept of ‘jointness’ in India’s Joint Forest Management (JFM) programme, understood as an engagement between the state (in this case the Forest Department) and people organized into ‘communities’, with NGOs, where available, acting as the interface. By examining the commonalities between older examples of joint or co‐management of resources and current practices of joint forest management, the article challenges the notion that ‘jointness’ is a new feature of forest policy, or that it represents a resurgence of civil society against the state. Further, insofar as the basic agenda of the programme is pre‐determined, it cannot be considered very participatory in nature. None the less, within the limited degree of choice that JFM allows, there is a new and joint construction of needs.     

Reconceptualizing Participation for Sustainable Rural Development: Towards a Negotiation Approach

In many popular intervention methodologies aimed at stimulating sustainable rural development (in the widest possible sense) the idea of ‘participation’ is a leading principle. This article will demonstrate that the process in which actors are supposed to participate is often thought of as being a process of planning, decision‐making and/or social learning. It will be argued that such an operationalization of development processes is based on inconsistent theoretical assumptions, and can easily lead to unproductive development interventions due to an inability to handle conflicts. As an alternative it is proposed to use negotiation theory as a basis for organizing participatory development efforts. The implications of such a shift in thinking about participation are far‐reaching: it requires new modes of analysis, and different roles, tasks and skills for facilitators of participatory processes.     

Community‐Based Resource Management in Turkey: ‘Je Participe,Tu Participes,Il Participe… Ils Profitent’1

The current discourse and practice of natural resource management rest on the assumption that participatory decision‐making mechanisms offer efficient and equitable policy solutions. There is increasing recognition, however, that such mechanisms might fail in ensuring effective participation of all stakeholders and, consequently, be prone to (re)producing inequalities and remaining ineffective in environmental protection. Taking this observation as a backdrop, this study addresses the under‐investigated implications of state–society relationships on the operation of participatory processes. By employing a unique combination of data provided by focus groups, in‐depth interviews, and a survey administered to 377 individuals, it analyses the ‘failure’ of participatory decision making within the context of an internationally‐funded environmental conservation project in Sultan Sazl???, Turkey. The article argues that the specific manifestations of state–society relationships and the political economy dynamics at the local level account for this failure. It shows that local materializations of state behaviour, interacting with local inequalities and perceptions of the decision‐making process, impinge on effective participation. In emphasizing that the capability of different groups to participate is shaped by the state in important ways, this article calls for more research on the political economy of state–society relationships and community‐based resource management.     

The Paradoxes of Community‐based Participation in Dar es Salaam

The current discourse and practice of international development rest on the assumption that community‐based participation is an essential component of efforts to facilitate change across the global South. Such participation is thought not only to ensure efficiency and sustainability, but also to accelerate broader structural transformation by empowering individuals to exercise agency in relation to development. This article seeks to contribute to critical participation studies by analysing the broader processes and structures that shape participatory opportunities in Dar es Salaam, Tanzania. The author argues that by promoting community‐based organizations (CBOs), national and transnational development actors have produced and legitimated a system of popular participation that, in contrast to their claims, disempowers local citizens. Paradoxically, these CBOs have further contributed to the exclusion of the majority of community actors.     

Heritage and participatory governance: An analysis of political strategies and social fractures in Spain

In the heritage field, institutions tend to see social participation as a synonym for good governance practice. This extends to other areas such as the environment, humanitarian aid, and sustainable development. In this article, the authors analyze the use of participatory models in the management of heritage through the study of three heritage sites in Spain: the prehistoric paintings in Altamira, the Mosque‐Cathedral in Córdoba, and the Cabo de Gata‐Nijar Natural Park. Their study suggests that, despite the promises of more democratic heritage governance, participatory methods are commonly bounded by social fractures that are concomitant to certain ‘heritage regimes’. They conclude that the critical study of participation in heritage should go beyond the dichotomy between ‘good and bad’ participation. Rather, it should focus on understanding what participation does to the entire heritagization process.     

The Malleability of Participation: The Politics of Agricultural Research under Neoliberalism in Bolivia

This article analyses how neoliberal restructuring encouraged the use of participatory methods in agricultural research in Bolivia and how, at a later stage, participatory development initiatives had to be adapted to prevent conflicts with the post‐neoliberal views of farmer organizations. The article contributes to the debate on the normalization of participatory methods in agrarian development. Engaging with Foucault's work on governmentality and neoliberalism, our analysis goes beyond interpretations of participation which conceptualize it exclusively as a technology of power to discipline subjects. Drawing on a distinction between a liberal and a neoliberal moment in the restructuring of agricultural research, we study the case of PROINPA (Foundation for the Promotion and Research of Andean Products), a national NGO that was once part of the state system for agricultural research but was then privatized. Although PROINPA employed participation mainly to enhance managerial effectiveness, it also facilitated moments of participation from below. We argue that participation designed by this type of NGO is not just ‘technical’ as PROINPA professionals would like to perceive it, nor is it simply ‘political’ as critical views on participation hold. Instead it is malleable in the sense that each actor is involved in finding a new balance between technical, economic and political considerations.     

Relocating Participation within a Radical Politics of Development

In response to (and in sympathy with) many of the critical points that have been lodged against participatory approaches to development and governance within international development, this article seeks to relocate participation within a radical politics of development. We argue that participation needs to be theoretically and strategically informed by a radical notion of ‘citizenship’, and be located within the ‘critical modernist’ approach to development. Using empirical evidence drawn from a range of contemporary approaches to participation, the article shows that participatory approaches are most likely to succeed: (i) where they are pursued as part of a wider radical political project; (ii) where they are aimed specifically at securing citizenship rights and participation for marginal and subordinate groups; and (iii) when they seek to engage with development as an underlying process of social change rather than in the form of discrete technocratic interventions — although we do not use these findings to argue against using participatory methods where these conditions are not met. Finally, we consider the implications of this relocation for participation in both theoretical and strategic terms.     

Witchcraft,Social Cohesion and Participation in a South African Village

The past thirty years have seen development agencies, non‐governmental organizations and their funders embrace ‘participatory’ development strategies. These strategies require the poor to take part in decision‐making about, and the implementation of, development projects and programmes. Underlying enthusiasm for participation is the recognition that centralized, top‐down systems and methods have not delivered development, and the assumption that the poor are eager and able to ‘participate’. Using ethnographic research on witch beliefs and their impact on social relations in a South African village, this article argues that such assumptions are not always justified. It shows that witch beliefs and related conflicts have long‐term negative consequences for intra‐community relations and examines what this implies for development policy and practice.     

Unequal Knowledges in Jharkhand,India: De‐Romanticizing Women’s Agroecological Expertise

Taking the Jharkhand region of India as a case study, this article uses empirical data to intervene in ‘women, environment and development’ and ecofeminist debates regarding women’s environmental knowledge. The article first outlines the adoption of gender/environmental issues into development planning and considers the dangers of overestimating women’s agroecological knowledges and assuming that they can easily participate in development projects. It then highlights the local complexities of environmental knowledge possession and control with reference to gender and other variations in agricultural participation, decision‐making and knowledge transfers between villagers’ natal and marital places. Particular emphasis is placed on the economic, socio‐cultural and ‘actor’ related factors that supplement gender as an influence on task allocation, decision‐making, knowledge distribution and knowledge articulation. The article concludes that given the socio‐cultural constraints women face in accumulating and vocalizing environmental knowledge, simplistic participatory approaches are unlikely to empower them. Instead, more flexible, site‐specific development initiatives (coupled with wider structural change) are required if opportunities are to be created for women to develop and use their agroecological knowledges.     

Four Perspectives on Public Participation Process in Environmental Assessment and Decision Making: Combined Results from 10 Case Studies

Knowing how people think about public participation processes and knowing what people want from these processes is essential to crafting a legitimate and effective process and delivering a program that is widely viewed as meaningful and successful. This article reports on research to investigate the nature of diversity among participants' perceptions of what is the most appropriate public participation process for environmental assessment and decision making in 10 different cases. Results show that there are clearly distinct perspectives on what an appropriate public participation process should be. We identified four perspectives: Science‐Centered Stakeholder Consultation, Egalitarian Deliberation, Efficient Cooperation, and Informed Collaboration. The literature on public participation tends to presume that there are clear and universal criteria on how to “do” public participation correctly or that context is the critical factor. This study has revealed that even within a specific assessment or decision‐making effort, there may be different perspectives about what is viewed as appropriate, which poses a challenge for both theorists and practitioners. Among the active participants in these 10 case studies, we found limited agreement and strong differences of opinions for what is a good process. Points of consensus across these cases are that good processes reach out to all stakeholders, share information openly and readily, engage people in meaningful interaction, and attempt to satisfy multiple interest positions. Differences appeared about how strongly to emphasize science and information, how much leadership and direction the process needs, what is the proper behavior of participants, how to tackle issues of power and trust, and what are the outcome‐related goals of the process. These results challenge researchers and practitioners to consider the diversity of participant needs in addition to the broad context when conceptualizing or carrying out participatory processes.     

Participation and Passive Revolution: The Reproduction of Neoliberal Water Governance Mechanisms in Durban,South Africa

Abstract: This article demonstrates that Gramsci's concept of passive revolution can be utilised to help unearth some of the contradictions of participatory development within neoliberal governance systems in the global South. I argue that some approaches to “participation” within neoliberal governance systems can, in part, be understood as moments within a protracted process of passive revolution. The argument is traced through eThekwini municipality's Community Participation Programme and the related extension of Free Basic Water (FBW). This article contributes to existing scholarship by demonstrating how a Gramscian analysis is indispensable to understanding the way in which state–civil society relations are conceived in participatory development strategies and the implications this might have for radical social change. I argue that a Gramscian approach compels us to reconsider current understandings of state–civil society relations so that we might overcome the impasse of passive revolution and move towards a more progressive form of politics.     

Actually how Empowering is Microcredit?

This article re‐assesses the effect of microcredit programme participation on women's empowerment by applying an analytical framework that recognizes the conceptual shift in emphasis in the definition of empowerment, from notions of greater well‐being of women to notions of women's choice and active agency in the attainment of greater well‐being. The author finds that microcredit programme participation has only a limited direct effect in increasing women's access to choice‐enhancing resources, but has a much stronger effect in increasing women's ability to exercise agency in intra‐household processes. Consequently, programme participation is able to increase women's welfare and possibly to reduce male bias in welfare outcomes, particularly in poor households.     

Participation and Environmental Policy in Canada and the United States: Trends Over Time

This article explores trends in participation and environmental policy in Canada and the United States over three time periods: from the early 1970s to the mid-1980s; from the mid-1980s to the early 1990s; and, finally, over the past few years. The article examines possible interactions among the two variables within each country over these periods and searches out overall tendencies toward convergence or divergence. The article argues that there was divergence between the two countries in the first period, with the U.S. providing more participatory opportunities earlier than Canada and establishing a more developed regulatory framework. An overview of progress over the second period, showing some convergence among the two countries, is then provided. Canada seemed to be catching up to its southern counterpart in terms of both participatory opportunities—although they took a distinctively Canadian form—and policy decisions. More recently, however, the trend has been toward divergence. The article explains that, over the past few years, participatory opportunities in Canada have been diminished and the environmental regulatory framework has been scaled back. Although there have been some changes in the U.S. case, the scale of these changes has not been as extensive. The final section of the article then attempts to relate these broader trends in participation and policy decisions to the political context in each country. It is argued that institutional frameworks in the two countries have played a key role in the identified trends. In particular, Canada's institutional structure—specifically the concentration of power in the executive and its federal structure—has hastened these recent developments, while the U.S. institutional framework—with its multiple power centers—has acted as a brake on those who advocate significant change to the existing environmental policy regime.     

Rethinking Development Space in Emerging Countries: Turkey's Conservative Countermovement

Despite an increasingly flexible global policy context, most emerging countries refuse to venture beyond their pre‐existing development strategies. This article contends that in some cases domestic political constraints under liberalized markets might preclude policy dynamism. In particular, it draws attention to the tension between market expansion and social cohesion as a formative influence over policy patterns. This tension is sometimes addressed through a conservative countermovement whereby liberally‐oriented governments entice sections of the poor into broad electoral coalitions by employing palliative interventions alongside market‐expanding policies. Turkey's ruling Justice and Development Party (AKP) is one example. Central to the Turkish case has been the redeployment of the country's historic foreign capital‐dependent pattern of growth in the service of selective redistribution and credit‐fuelled consumerism. The ensuing deficit‐led neoliberal populism assured stable and equitable growth in the extraordinary international and domestic context of the mid‐2000s, but has proven unfeasible since the global crisis. However, this coupling of market and social preferences has become politically so firmly entrenched in time that it now constrains the policy options to address Turkey's developmental impasse.     

‘Benchmarking’ and Participatory Development: The Case of Fiji’s Sugar Industry Reforms

Since the mid‐1970s, opposition has grown within developing countries to the use of ‘top‐down’ development approaches by foreign consultants. Disenchantment with these development strategies, it is often claimed, has led to the current incorporation of participation in consultants’ development practices. This study is concerned with the practice and methods of participatory development planning. It evaluates the Strategic Plan adopted by the Fiji sugar industry in 1997 in response to challenges that are attributed to the pressures of globalization and international competitiveness. The authors assess the external consultant’s self‐proclaimed ‘participatory methods’ in the articulation of these challenges, in the design of restructuring programmes, and in shaping the discourses of reform more generally. The consultant’s use of the fashionable ‘benchmarking’ methodology is seen to be one of the most problematic features of the ‘participatory’ process.     

'People Try to Put Us Down …': Participatory Citizenship of 'Generation X'

This article evaluates the participatory citizenship of Australian young people. Its argument is that in the utilisation of empirical research 'contemporary citizenship needs to recognise what people actually do' (R. Prokhovnik, Feminist Review 60(2) 1998: 95). For this research, an alternative approach to the exploration of participation has been developed which questions the traditional, institutionalised measures of political participation and/or notions of civic engagement that do not look at a broad range of individual and organisational experiences. The article is based on a survey of 18-34-year-old Australians conducted via telephone, by Newspoll Market Research, in early 2001. The article shows that rather than 'Generation X' having homogeneous (or even negligible) participatory experiences, four distinct participatory typologies emerge. These four typologies are labelled as Activist, Communitarian, Party and Individualistic to reflect the clustered modes of participation. The article also explores the relationships between participation and the discussion of political and social issues.