growing-together-for-a-sustainable-future.pdf

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TheKirwanInstitutefortheStudyofRace&Ethnicity|JasonReece

APRIL

2011

GrowingTogetherforaSustainableFuture:

StrategiesandBestPracticesforEngagingwithDisadvantagedCommunities

onIssuesofSustainableDevelopmentandRegionalPlanning


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GrowingTogetherforaSustainableFuture:

StrategiesandBestPracticesforEngagingwithDisadvantagedCommunitiesonIssuesofSustainable

DevelopmentandRegionalPlanning

JasonReece,

Senior

Researcher,

Opportunity

Communities

Program

1

TheKirwanInstitutefortheStudyofRace&Ethnicity,TheOhioStateUniversity

April2011

TableofContents: Page:

I. Introduction&Background 3

II. Sustainability,Equity&EngagementwithDisadvantagedCommunities 5

III. Engagement&VulnerableCommunities:DefiningCivicEngagement 7

IV. TheBenefitsofCivicEngagementtoSustainable&EquitablePlanning 13

V. StrategiesforSuccessfulCivicEngagement 18

VI. EngagementwithCommunity:ConsiderationsfortheEngagementProcesswithSpecific

DisadvantagedCommunities

31

VII. TheCivicEngagementProcess:WheretoStart? 37

VIII. AppendixA:NationalCoalitionforDialogue&Deliberation(NCDD)sEngagementStreams

Framework:TypologiesofEngagementApproachesandDefinitionsofCommonEngagement

Techniques

41

IX. AppendixB:AReviewofPublicParticipationandConsultationMethods 46

X. AppendixC:References LiteratureandResourcesCited 48

1Formoreinformation,pleasecontactJasonReeceatreece.35@osu.eduorvisitwww.kirwaninstitute.org


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Thewayweliveincitiesisatthecruxofmanyenvironmental,economic,andsocialchallengesHowdo

wefindanewway?1

CarlAnthony,BreakthroughCommunities:SustainabilityandJusticeintheNextAmericanMetropolis

I. Introduction&

Background

SustainableregionaldevelopmentintheUnitedStatesfacesmanychallenges.Distressedcommunities,

fragmented open space, damaged ecosystems, and climate change are powerful reminders of the

unsustainabledevelopmentpatternsandpolicieswhichhaveproducedharm tobothour societyand

our planet. Sprawling development and the continual movement of opportunities, investment, and

peopleawayfromourcityandtraditionaltowncentersdiminishesruralandnatural landscapes,while

accelerating long auto commutes which increase CO2 emissions. In our distressed communities,

continualdisinvestmentandtheflightofresourcesand lackof investmentproducesextreme isolation

formarginalized

communities,

resulting

in

segregation

into

distressed,

unhealthy

environments

where

residentsareseparated from thecritical life sustainingopportunitystructuresneeded tosurviveand

thriveinour21stcenturysociety.

While farmland isbeingpavedover fornewhousing and roadways,disadvantaged andmarginalized

communities cant find access to healthy produce. A massive investment in new infrastructure is

occurring for suburbangrowth,whileexisting infrastructure isneglected inourexistingcommunities.

New housing and commercial construction on the urban fringe contrasts sharply with existing

neighborhoodspockmarkedby vacanthomes and abandonedbusinesses. Localdevelopmentpolicy,

jurisdictional fragmentation, and interregional competition interactwith allof theseprocesses,often

workingto

promote

unsustainable

growth

and

unhealthy

communities.

The

development

model

which

has fueled our economy in past decades and shaped our communities, and nation, represents an

unsustainable system which must be reshaped to produce sustainable development, livable

communities,andanequitable,healthysociety.

In2010,theU.S.DepartmentofHousingandUrbanDevelopmentawardedapproximately$100million

inSustainableCommunities Initiativegrants topromotecoordinated regionalplanning thatembraces

andintegratestheprinciplesoflivability,sustainability,andsocialequity.Thisgroundbreakingprogram

seekstobettercoordinatehousingandtransportationwhilesupportingmoresustainableandequitable

landuse,infrastructure,andzoningdecisions.

HUDsustainabilitygrantsrepresentanunprecedentedinfusionoffederalsupportforregionalplanning

thatissustainableandequitable.Theimpactofthisnewwayforwardandfederalsupportcannotbe

overstated.Regionalconsortiumsthatwereawardedgrantswillbeabletoutilizeregionalplanningto

align billions of dollars worth of capital investments investments that will revitalize some of our

nations most distressed neighborhoods, support healthy, livable communities, and make access to

opportunityrichareasviableforallresidentsinaregion.


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Publicandcivicengagementiscriticaltothetwingoalsofsustainabilityandequity.Civicengagementis

essential for developing an informed and cohesive shared vision for regions while also building a

constituency tosupport theplanningprocessandproactivelypush forplan implementation.HUDhas

acknowledged the importance of civic engagement to the success of the sustainable communities

initiative,stating:

Successful (sustainablecommunities initiative)applicantsshouldbeableto:Engageresidents

andstakeholderssubstantivelyinthedevelopmentofsharedvisionanditsimplementationearly

andthroughouttheprocess.

U.S.DepartmentofHousingandUrbanDevelopment,SustainableCommunitiesInitiative2

With an explicit focus on equity goals, effective public and civic engagement in the sustainable

communitiesprogramwillrequireproactiveandfocusedengagementwithdisadvantagedcommunities.

These disadvantaged communities are often underrepresented or overlooked by traditional public

engagementapproaches. Planningforsustainablecommunitieswillrequireengagingandempowering

disadvantagedcommunities

to

contribute

and

act

as

decision

makers

in

the

regional

planning

process,

andincreasingparticipationamongtraditionallymarginalizedcommunitieswhocandevelopownership

ofsustainableregionalplanningplansandgoals. Engagementwithdisadvantagedcommunitieswillnot

only benefit the sustainable communities planning process, but also potentially produce long term

benefitsincapacitybuildingindisadvantagedcommunitiesonissuesofsustainabilityanddevelopment.

The HUD sustainability grants represent a new paradigm of regional development withwhich some

practitionersandsustainabilityconsortiumshavelimitedexperience.Thereisarealneedintheplanning

fieldforunderstandinghowtobringequitytothetable fromtheoutset,toengagewithmarginalized

groupsandadvocacyorganizationsasdecisionmakers,notjustasconsultants,and forunderstanding

how to incorporate equity concerns into regional planning. Capacity must be built in both regional

planning consortiums anddisadvantaged communities and communityorganizations. Together these

effortscancatalyze the regionalplanning field,expand thecapacityof communityorganizations,and

benefittheregionalsustainabilitymovement.

The following reportprovides strategiesandbestpractices inengagingdisadvantagedpopulationson

issuesof sustainableandequitable regionaldevelopment.The reportexplores successfulmodelsand

techniques forengagingdisadvantagedandmarginalized communitiesand illustratesequity concerns

most relevant to marginalized communities. The goal of this report is to provide sustainable

communitiesgrantees

and

other

regional

planning

entities

aframework

for

engaging

disadvantaged

communitiesaspartofthetheireffortstosupportequitableandsustainablegrowthanddevelopment.


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II. Sustainability,Equity&EngagementwithDisadvantagedCommunities

Theconcernsofmostlywhitesuburbanenvironmentalists(protectingtreesandbirds)andthe

concernsofurbanandruralpeopleofcolorenvironmentalists(toxicpollution,occupationalhazards,

unemployment,abandonedlots,rundownproperties,andlackofdecentgrocerystores)werelinked.

Asocial

movement

that

put

these

ideas

together

began

to

emerge.

3

CarlAnthony,BreakthroughCommunities:SustainabilityandJusticeintheNextAmericanMetropolis

Given the pressing need for models of sustainable development, the sustainability movement has

accelerated inboth theUnitedStatesandglobally.Globalchallenges like climate changehaveadded

newurgencyandawarenessoftheneedforanewmodelforourcommunities,nation,andtheglobe.As

planners, advocates, and policymakers look to produce more sustainable communities, we face

multiple, interrelated challenges. We faceenvironmental challenges inmitigating theenvironmental

harms produced by certain types of development. We must address social, racial, and geographic

inequities,ascertaincommunitiesaredeprivedofinvestmentandopportunity. Andwemustalsowork

tocreate

avibrant

economy,

attract

investment,

and

stimulate

economic

growth

that

is

beneficial

to

all

residents.

Theseobjectivessometimesconflictwitheachother;perhapsthegreatestchallengefacingsustainable

development is the need to balance these different interests. Indeed, balancing these interests is a

fundamentalpremisebehind the sustainabledevelopmentmovement.Sustainability advocates argue

that development decisions must be guided by three goals, often referred to as the three Es of

sustainability: Environmental protection, Economic prosperity, and social Equity.4 While sustainable

developmentoughttoconsiderallthreeEsinadvocatingforpolicies,thesegoalsarenotalwaysgiven

equalweight,producingunintentionalconflict. Mostnotably,socialequityisoftentheforgottenE,as

manysustainability

initiatives

focus

more

on

addressing

environmental

concerns,

or

balancing

environmentalandeconomicconflict,whileignoringormissingequityconcerns.5

RegionalSustainability:TheCostofNotEngagingIssuesofEquity

Geographicandsocial inequitiesharmpeoplebeyondthemarginalizedgroupsandcommunities.They

impact the health and vitality of the entire region, imperiling a community and regions economic

future. Inequitiesanddisparitiesaremorethanjustarepresentationofonegrouporcommunitydoing

worsethanothers,theyareasymptomofagreaterchallenge: theisolationormarginalizationofalarge

numberofacommunitysresidents.Disparitiesarean indicatorthatentiregroupsorcommunitiesare

isolatedfrom

the

critical

opportunities

and

tools

needed

to

succeed,

thrive,

and

survive

in

our

society.

These residents facemanyobstacles tosuccessandmanyareneverable tomeet their fullpotential,

representingnotonlyan individual tragedybuta societal tragedy.Thehigh schooldropoutwho falls

prey to the challenges in the community could have been the communitys next business leader,

educator,entrepreneur,communityorganizer,orpolitical leader.This individualstory istragic,butan

entire community of youth lost this way is a societal challenge that can prove disastrous to having

economicallyvibrantcommunitiesandasustainablefuture.


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Inequities represent waste in our society wasted human capacity and human potential. As the

economistRichardFloridastatesinTheFlightoftheCreativeClass:

Rising inequality isadeadweightdragonoureconomiccompetitivenessThebasicformula is

simple:Thosecompanies,regionsandcountriesthatreducewasteandeffectivelyharnesstheir

productive

assets

have

a

huge

advantage

in

the

Darwinian

competition

thatpowers

creative

capitalism.6

Aswemovefurther intoour21stcenturyeconomyand learnhowoureconomy ischanging,thepush

forcollaboration, innovation,andtheeducationallofourchildrengrowsinimportance.Theeconomic

future for regionswillnot look like theeconomyof the20thcentury,amodelofmassproductionor

employmentbuiltaroundunskilledlabor. Thefuturewillbebasedoninnovationandaworkforcethat

isskilledwithtechnicalprowessandmoreadvanceddecisionmakingcapability. Innovation istheroad

to regionalandsocietalwealth in the21stcentury.But,an innovationbasedeconomywillstruggle to

succeedwithoutaneducatedandskilledlaborforce,andcivicallyengagedcommunities.

Ourregionsandnationfaceadifficultchallenge.Aswegrowmorediverseasanation,wearefinding

growinglevelsofinequityandisolationformanydisadvantagedcommunities.Notonlyareourregions

becomingmorediverse and inequitable, they are also increasingly important economic engines in a

globalizedworld.Regionalplanningthatdoesnotaccountforthisdiversity,and internalizeaddressing

inequity as a guiding principle for sustainable development, will lag behind. In fact, a 2006 Federal

Reserve study found that a skilled workforce, high levels of racial inclusion, and improved income

equalitycorrelatestronglyandpositivelywitheconomicgrowthattheregionallevel.7

EngagingEquityThroughEngagementwithDisadvantagedCommunities

If our communities are to succeed and be sustainable in the future, the old models of fragmented

planning,development,anddecisionmakingmustalsobe retired. Inclusiveand sustainable regional

development, planning, and decision making are the road to a more sustainable and economically

vibrant future. Robust and sustained engagement with disadvantaged communities is critical to

understanding and addressing issues of inequity, and essential to promoting true regional and

sustainabledevelopment.


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III. Engagement&VulnerableCommunities:DefiningCivicEngagement

Whatempowersacommunitywhereordinarypeoplecreatebetterplaces,transformtheir

ownandothers'liveswhilesolvingthepublicproblemsoftheday?Inclusiveplanning,for

starters.Inrecentyearsplanninghasmadegreatstridesinmobilizingbroadparticipation,

incorporatingadiversityofinterestsandstakeholdergroupsofdifferentculturalandeconomic

backgroundsandages.

RamonaMullahey,YouthEngagementinPlanning,AmericanPlanningAssociation.8

Citizen engagement, publicparticipation, and civic engagement in theplanning field emerged in the

aftermathofurbanrenewalpoliciesthatproveddamagingtomanydisadvantagedneighborhoodsand

asabyproductoflargersocialmovementsemerginginthe1960s.9Therearevariousdefinitionsforthe

manyengagementmodelsandpracticesutilizedtoengage,interact,anddefineproblemsandsolutions

withthepublic.Engagementmustbeatwo wayrelationship,withinformationflowingbackandforth

between those administering the planning process and the public. As stated by Klein, planning

administratorsmust

serve

the

public

with

information

and

technical

expertise,

and

the

public

must

be

abletodirectlyinfluencethedecisionmakingandplanningprocess:

Decisionmakersmustbeintouchwithgoodinformationconcerningcharacteristicsandtrends

ofthecommunity,buttheymustalsobeintouchwiththeaspirations,values,andvisionsofthe

citizenstheyserve.

TheconceptofDemocraticPlanningcapturesmanyoftheelementsofcontemporarydefinitionsofcivic

engagement.Planningprocessesarenotjustshapedbyplanningprofessionalsandarenottopdown.

Technicalconceptsaredemystifiedforlocalcommunitiesandplanningactivitiesengagefulldecision

makingby

local

citizens

and

communities.

10

Engagement

with

the

public

is

more

than

just

passive

information collecting,but should also seek toempower communities in termsof guiding the short

termplanningoutcomesbutalsoinbuildinggreaterciviccapacityforlong termcommunityhealth.This

expandedandmore substantialdefinitionofengagement captureswhat isoften referred toascivic

engagement. As illustrated in the definitions in Figure 1,11 civic engagement goes beyond just

traditional engagement activities with the public, instead utilizing every engagement opportunity to

build long termcapacity,organizational leadership,andskills incommunities.Civicengagement isnot

traditional public involvement but a longer term effort focused on relationship and community

building,assummarizedbytheNationalParkService.

Civicengagement

differs

from

public

involvement

in

both

concept

and

implementation.

Public

involvement, sometimes referred to as consultation, is a legal requirement of the National

Environmental PolicyAct (NEPA) and the National Historic PreservationAct (NHPA)planning

processesandtypicallyendswhentheplanningprocess iscomplete.Civicengagement,on the

otherhand,isasustainedeffortandactivity.Itmovesbeyondtheshorttermlegalrequirements

ofpublicplanning to build and strengthen relationships betweenpeople in their communities

overanextendedtimeperiod.12


8/56

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Page|9

empowerment.ThisspectrumofpublicinvolvementisillustratedinFigure3,producedbyInternational

Association for Public Participation. Effective public engagement will be oriented toward the more

proactive and empowering activities that help build community capacity and support long term

sustainabilityforplanninginitiatives.

Figure

2:

Various

engagement

techniques

documented

in

practice

and

literature.

Chart

authored

by

Rowe

&

Frewer

and

directly reproduced from the publication:Gene Rowe& Lynn Frewer. A Typology of Public EngagementMechanisms.

Science,Technology&YHumanValues:Vol.30No.2.Spring2005.251290.

Engagementisabroadconceptbecauseofitswideapplicationinsupportingandaddressingchallenges

facing disadvantaged communities, emphasizing both collaborative decision making, education and

social, economic, or political development. As described in Engaging Community for Sustainable

Revitalization

The road to engagement has many unexpected twists and turns. So, for some funders and

practitioners,engagementhasanintangible,graspingatairqualitytoit.Therearethreereasonsfor

this. First, engagement is both aphilosophy and a strategy of social action.As aphilosophy, its

proponents are attempting topromote a new way of thinking about development thatputs low

income and marginalizedpeople at the center. But, increasingly, advocates are also elaborating

engagementapproaches intoawiderangeofalternativecommunityrevitalizationtechniquesthat

attempttostrengthenresidentssocialandeconomicresources.Theyarealsoconsideringwaysto

collaborate with others to addresspolicy and other issues that constrain opportunityfor lower

incomeandotherconstituencies16


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Engagement must be distinguished from consultation (or providing information) and simply seeking

inputorfeedback.17Engagement isrooted inunderstandingandsensitivitytocommunityneedswhile

alsocreatingreciprocalprocessesforresident ledplanninganddecisionmaking.Engagementseeksto

leavea lasting impact,both in respect to the sustainabilityof theactiveplanningprocessbutalso in

regardstothecultureofcivicengagementfoundinthecommunity.AsdescribedbyHashagen:

Itisnecessaryforthegovernancesystemtofullyunderstandthedynamicsofthecommunitiesand

bepreparedtoadaptanddevelopstructuresandprocessestomakethemaccessibleandrelevantto

those communitiesthe term engagement warns us against making assumptions about

communities: itasksforadialogue.Governmentwillneedtoengagewithcommunitiesaswellas

askcommunitiestoengagewithit.18

CivicEngagement:APathwaytoBuildingaCivicCommunityandSocialCapital

Theoverarching

goal

of

civic

engagement

should

be

to

build

acivic

community,

one

in

which

civic

infrastructure is supported and community capacity is enhanced. Civic engagement activities are a

pathwaytodevelopingthisciviccommunity.Engagementisanopportunitythroughpolicyandplanning

efforts to engage the community in ways which not only produce a better planning process and

outcomes,butalsoisanactivitywhichproducesacriticalinvestmentinciviccapacityforcommunities.

Thisiscriticallyimportantfordisadvantagedcommunitiesthathavetraditionallynotbeenfullyincluded

inplanningandpolicyprocesses. AsdescribedbyLionelBeaulieuoftheSouthernRuralDevelopment

Center,buildingaciviccommunityiscriticaltolong termcommunitydevelopmentandisalong term

process,requiringcommitmentbybothleadersandcommunitymembers.

Building a civicminded community takes time. It requires thatpeople who have had little

historyofengagement in localaffairsbegiven theopportunity totakepart in local leadership

opportunities. Itmeansfindingamechanism thatallows the ideasand issuesweighingon the

mindsofallsegmentsofthecommunitytobeheardanddiscussed.Moreover, itdemandsthat

local government, localpeople and local organizations work as equalpartners in addressing

existingopportunitiesandchallenges.It isthissharingofleadershipresponsibilitythatwillhelp

generateanetworkoftrustamongtheseentities.19

Aciviccommunityrequiressomehistoryofengagementandforampleopportunitiestohaveavoicein

local leadershipanddecisionmakingopportunities. Inaddition, communitiesmusthaveprocesses to

allowfor

diverse

interactions

and

encourage

discourse

of

diverse

viewpoints.

A

civic

community

has

an

abundanceofsocialcapital;socialcapitalrepresentsthesocialnetworksandinstitutions,relationships,

andnormsthatshapethequalityandquantityofcommunityinteractions.20 Communitieswithgreater

civicparticipationandsocialcapitalhavebeenshowntobehealthierandmoreeconomicallyvibrant.21

Whilesocialcapitalistremendouslybeneficialtoallcommunities,researchindicatesthatsocialcapitalis

on the decline in the United States. Robert Putnams groundbreaking book Bowling Alone has


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documented thisdiminishingpoolof social capital inournation.22Thisdecline isdue to avarietyof

factors ranging from our contemporary lifestyle, changing family structures, technology, and our

development patterns, namely urban sprawl and the lack of community cohesiveness, and isolation

producedbysprawlingdevelopment.23Fordisadvantagedcommunities isolatedfromopportunity,this

decline of social capital is magnified. The sustainable communities initiative and the engagement

process which will accompany regional sustainability plans create an opportunity to foster civic

communitiesandencouragegreatersocialcapitalindisadvantagedcommunities.


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Figure3:TheSpectrumofPublicParticipation.ProducedbytheInternationalAssociationforPublicParticipationand

accessibleonlineat:http://www.sparc.bc.ca/1ap2spectrumofpublicengagement


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IV. TheBenefitsofCivicEngagementtoSustainable&EquitablePlanning

Toooftenwethinkthatthesoleforcesshapingourcitiesandsuburbsareimpersonalmarket

factorsortechnicalexpertise,forgettingthatthemostimportantaspectsofourlivesareoften

theoutcomeofothersocial,political,psychological,orspiritualdynamics.24

Carl

Anthony,

Breakthrough

Communities:

Sustainability

and

Justice

in

the

Next

American

Metropolis

Therearetremendousbenefitstobederivedfromutilizingeffectivecivicengagementtoguideplanning

processes,especiallyplanningprocessestargeting issuesofequity,acorecomponentofsustainability.

Successful engagement activities can help avoid unproductive conflict while building public will to

supportsustainableplanningsolutions.Robustandtargetedcivicengagement iscriticalforaddressing

the equity concerns and needs of disadvantaged communities, giving voice to traditionally voiceless

constituencies while producing more informed and innovative ideas or solutions. Successful civic

engagementalsocanproducelong termbenefits,helpingproduceacivicinfrastructureincommunities

thatneedtobuildcapacitytoaddress long termgoalsofcommunitydevelopment,sustainability,and

equity.

AvoidingUnproductiveCommunityConflict

Civicengagementisatwo wayprocess,sometimesledbythegovernmentandothertimesoriginating

among thepublicorparticular communities. This community ledengagementoften is inprotestor

opposition toplanninganddevelopmentdecisions,as impacted communitiesorganizeand speak to

power to fight an unpopular, insensitive, or sometimes misunderstood planning decision. For

potentiallycontroversialdecisions,assumingengagementcanbeavoided(forfearofconflict)willoften

inevitablyproduceconflictandpublicpushback.AssummarizedbyTheRegionalEquityDemonstration

projectat

Rutgers:

Thequestionatstakeisthusnotwhethercivicengagement isnecessaryorpossiblebutrather

how,when,andunderwhattermsitoccurs.Civicengagementisalreadyareality.Government

mandates it by statute and needs it, as apractical matter,for legitimacy. Citizens engage

themselvesthroughprotest,litigation,andothermeansavailabletothem.Thequestionofcivic

engagementisnotifbuthownotwhetherbutforwhatpurpose,throughwhatmechanisms,

andtowhateffect.25

Public opinion also expects and supports fair representation in regional planning processes. Focus

groupshave

found

widespread

support

among

all

demographics

that

afair

planning

process

with

fair

representationof all groups is an important role for government and regionalplanning.26 However,

focus groups express skepticism that development and planning decision making wants true public

involvement,assummarizedbelowinresearchpreparedforSmartGrowthAmerica:

Respondentsbelievepublic involvement indecisions isusually,andoften intentionally, limited

byinadequatenotice,impracticalmeetinglocationsandtiming.Manysaydecisionmakershave


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theirmindsmadeupbefore thepublicmeetingsParticipantsacrosspoliticalperspectivesand

sociodemographics firmly believe that increased public participation in planning, increased

effortsto informthepublicearly intheprocess,and increasedeffortstofullyengagethe local

communitywillbethebestandmostcertainavenuetobetterdecisions.27

Thispublic

expectation

for

fair

and

democratic

processes

in

planning

and

intrinsic

skepticism

regarding

theplanninganddevelopmentprocesscreatesa risk ifplanningactivitiesdonotembracerobustand

transparent civic engagement processes. Well planned, deliberate, and dynamic civic engagement

activitiescanhelpavoidpotentialconflictbyengagingcommunitiesfully intheprocessandgivingthe

communityvoiceinguiding(andowning)planningdecisions.

BuildingPublicWillandSustainableCoalitions

Civicengagement anddeliberations conductedwith the community in theplanningprocessnotonly

produces engagement but also builds ownership, which increases the likelihood of successful plan

implementations.Building

public

will

can

also

encourage

consistency

in

plan

implementation

over

a

long termperiod,evenwhenchangesoccurtopoliticalorpublicpolicyleadership. Thisabilitytobuild

aconstituency iscriticalto thegoalsof thesustainablecommunitiesplanningprocess.Buildingpublic

will through civic engagement can also build a constituency to counter opposition to sustainable

practices and policies.28 Research indicates that communities that have adopted more sustainable

planning policies tend to have more participatory planning and policy making processes.29 While

engagementandparticipationcanincreasethelikelihoodofacommunityembracingsustainability,this

isnotguaranteed. Engagementshouldnotseekto induceNot InMyBackyard(NIMBY)tendenciesor

competitionbetweendifferentcommunitiesandconstituenciesduring theplanningprocess.30Careful

framing

and

development

of

regional

norms

and

collective

goals

across

communities

can

help

deter

this

fearofNIMBYtendenciesandcompetitiontoundermineplanninggoals.31

Manymodelsofsustainablegrowthandbestpracticesarecurrentlyinuseorareknownintheplanning

community.Whatiscriticaltothewideradoptionofthesesustainablepracticesandsolutionsisapublic

embraceofthesepractices,andthepublicwilltodemandplansbefollowedandpoliciesbereshaped.

DavidRusk, inhisBuildingSustainableInclusiveCommunities,notesthatthis isaprimarychallengefor

thesustainablecommunitiesinitiative:

Thestory istoldofPresidentFranklinDelanoRooseveltmeetingwithhisnewdealbraintrust

around some contentious issue. All right, FDRfinally said. Im convinced. Now go out and

publiclyforce

me

to

do

it.

This

is

precisely

the

challenge

the

Sustainable

Communities

Initiative

facesifitistoavoidfallingfarshortofitsvision.Whatislackingisnotsufficientbestpractices

policytools.Whatislackingisthepoliticalwilltousethem.32

Engagementcanalsohelpbuildthediverseandmultidisciplinarycoalitionsneededtoaddressregional

sustainabilityconcerns.Linkingorganizationsandinterestsacrossmultipledomainstoworktogetheron

issues of regional concern, while effectively engaging with disadvantaged communities, creates an


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opportunity to link equity advocates into greater regional sustainability efforts, broadening these

coalitions across race, ethnicity, class and geography. The sustainability movement must openly

embraceequity,andwork to link togetherdifferent interests, stakeholders,andcommunitiesas they

shapedevelopmentpolicy.

Thoughdifficult,

these

linkages

and

collaborations

are

critical

to

successful

sustainable

development.

Forexample,manyofChicagosrecentaffordablehousinginitiatives intheregionssuburbshavebeen

spurredbythebusinesscommunity.33InMichigan,environmentaladvocatesandracialjusticeadvocates

unitedtoadvocatesuccessfullyformoreequitabletransportation investmentsthatwoulddirectmore

spendingtourbancommunitiesandlimitroaddevelopmentinundevelopedareas.34 Thiskindofbroad

basedcoalitionbringstogetherasufficientnumberofdifferentstakeholderssothatattentiontoeachof

thethreeEsofsustainabilityisproperlybalanced. Afterall,conflictbetweenthethreeprinciplesof

sustainable development is not inherent; environmental protection and social equity can work

extremelywell inconcert. Onlybybuildingdiversecoalitionsofbusiness,environmental,andequity

interests,

is

it

possible

to

generate

the

public

and

political

will

essential

to

convincing

policy

makers

to

adoptanambitiousagendaforamoresustainablefuture.

EngagingIssuesofEquityandtheNeedsofDisadvantagedCommunities

Dedicatingresourcestocivicengagementprovides thebestpathway togivingvoice todisadvantaged

communities and addressing equity concerns. Disadvantaged communities are directly impacted by

equity concerns and residentsof these communitieshave themost informedopinionof the various

equity challenges andopportunities in their communities.Asdescribedby PolicyLink in their report,

BuildingCommunitiesofOpportunityThroughtheSustainableCommunitiesInitiative:

Social equity leadership as (a core principal) to both the application and planning

implementation and governance: Plans tend to be stronger, yield more equitable results, and

havegreatercommunitysupportwhenarearesidents,neighborhoodgroups,andsmallbusiness

owners are involved in their creation. Community memberspossess invaluable knowledge of

neighborhood needs and assets, and have important ideas to contribute. The most inclusive

processes engage residents from the beginning, before major decisions are made, and

throughout theplanning and developmentprocess. Communitybasedorganizing groups often

catalyze greater resident involvement and can help government agencies successfully engage

diversecommunityresidents.35

Althoughcivicengagementcanempowerdisadvantagedcommunities,disadvantagedandmarginalized

communitiesremaintheleastlikelytobeactivelyengagedinpublicaffairsandhavehighlevelsofsocial

capital.36 The likelihood of communities being engaged in civic engagement is directly related to

communityassetsandresources.37Thosewithmoreresources,income,orwealtharemorelikelytobe

engagedandconnectedtostrongsocial, institutional,andcommunitynetworks.Toeffectivelysupport


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civicengagementincommunitiesthataredisadvantagedrequiresresourcestomeetthisresourcegap.

AsdescribedbytheCorporationforNationalandCommunityService:

participationinciviclifeisfosteredthroughareinforcingcycle,whereresources,engagement,

and connections to social networks develop throughout an individuals life,feeding into one

anotherand

thereby

leading

to

greater

civic

participation.

Addressing

the

growing

gap

in

civic

engagement,therefore,requiresastrategicapproachtoprovidingtheproperresourcestothose

fromdisadvantagedcircumstances,thereby introducingthemtothepositivelyreinforcingcycle

ofcivicparticipation.38

Sustainabilityplanningmustworkdirectlywithdisadvantagedcommunities toempowercommunities

andfullyaddressequity issueswithinasustainableplanningagenda.Disadvantagedcommunitiesface

tremendous resourcebarriers toengagement; thus toeffectively addressequityand incorporate the

voice of disadvantaged communities, resources must be targeted to promote civic engagement and

build social capital in those communities thatneed it themost. Inaddition,engagementmust try to

encourage innovative and collaborative leadership development and be built upon a process of

purposeful public deliberation, a process that weighs multiple options and has mechanisms for

managingconflictwiththegoalofcreatinginnovativeandcreativesolutions.39

BuildingCommunityCapacityandCivicInfrastructureinDisadvantagedCommunities

Oneof themost importantbenefitsproducedby civicengagement is the ability tobuild community

capacityandcivicinfrastructureintraditionallyneglecteddisadvantagedcommunities.Communitiesare

able to utilize civic engagement to be better organized, identify new solutions, advocate for policy

changes,andotherbenefits.Communitydevelopmentisintricatelyconnectedtocommunityactionand

engagement.Community baseddecisionmakingand leadership isenabledbyprovidingtechnicaland

research based information and facilitating interactions that allow the community to engage,

deliberate, and respond.40 As described by Copeland Carson & Associates, this form of community

buildingpositionscommunitiesforlong termimprovement.

community buildingisanessentialfoundationtosustaincommunitydevelopmentacrossthe

dynamic and largely unforeseen economic, political and other changes that influence a

neighborhoodsfuture. The community buildingprocess strengthens community capacityfor

revitalizationcreatingapipelineofconstituentswiththeknowledge,skills,andcommitmentto

engageincollectiveactionforcontinuouscommunityimprovement.41

Theseactivitiesproducea long termbenefitasengagementactivitiesstrengthensocialcapitalwithin

thecommunity.Each$1 incivicengagement investment inLosAngelescommunitiesbyphilanthropic

organizationswasfoundtoproduce$91inbenefitstocommunities,inadditiontoothernonmonetary

benefits.42 Entrepreneurialism isalsotightly linkedtocivicengagement.Avirtuouslyreinforcingcycle

exists between the entrepreneurial community and a civically engaged community.43 Fran Rudoff

outlines threeof the long termbenefitsandcivicoutcomesofcivicengagement in theGrantmakers


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Forums Practitioners Perspectives on Building Civic Engagement. Noting that civic engagement

enhancedparticipantsthroughimproving:civicskills(theabilitytocriticallythink,collaborate,problem

solve, advocate and resolve conflict); civic knowledge (developing a greater understanding of

communityneedsandpublicsectorpoliciesordecisionmakingmodels);andcivicefficacy(knowinghow

tocreateanddesigncommunity ledinitiativesandinfluencepolicymakers).44


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V. StrategiesforSuccessfulCivicEngagement

Buildingacivicallyengagedcommunitydoesnecessitatesomeimportantshiftsinhowthingsgetdone.It

meansthattheentrenchedleadershipisnolongeratthehelmofdecisionmaking.Instead,allsegments

areactivelyengagedinguidingthefutureoftheircommunity.Newandexpandedleadershipisnot

thwarted,but

is

overtly

embraced.45

LionelBeaulieu,CreatingVibrantCommunities&EconomiesinRuralAmerica.

Embracing civic engagementwith disadvantaged communities is essential to developing an effective

planning process for regional sustainability plans. But successfully integrating civic engagement

activities,especiallywithcommunitiesthatfacemanybarrierstoengagementorhavehistoricallybeen

marginalized,canbedifficult.Thefollowingareconsiderationsandstrategiesforsuccessfullyengaging

with disadvantaged communities in a manner which would improve the outcomes of sustainable

regionalplanningeffortsand inamannerwhichcultivates long termbenefitssuchasbuildingacivic

communityandsocialcapitalindisadvantagedcommunities.

AdoptaParticipatoryandDeliberativeProcess&StartwithIssuesofCommunityConcern:

The engagement process should balance both citizen based and government based engagement

activities.Engagementactivitiesshouldopenlyembracebottomuporcommunity ledactivitiesand

interactions.Engagementprocessesshouldbehighlyparticipatory innatureandnotviewedassimple

information sharing with disadvantaged communities. Community members should feel that their

efforts and involvement is appreciated or valued and will potentially impact planning outcomes.

Engagement activities should identify, explore, and focus on issues of concern for disadvantaged

communities.These critical issues shouldbe the startingpoint forengagementsanddiscussions,and

linkedto

issues

of

sustainability

and

equity.

As

described

in

Engaging

Community

for

Sustainable

Revitalization:

organizations with an engagement focus go one step further and also involve the

communitysmostmarginalizedandisolatedintheearliestphasesofissueidentificationwithan

emphasisonideasorskillsthattheycaninitiateorcontributetoresolvetheconcern.Insteadof

starting with apredetermined solution to a community challenge, an engagement strategy

would involveconstituents inanalyzingwhytheproblemexists;exploringalternativesolutions;

buildingasharedvisionforaddressingit;andpossiblycreatingacoordinatedstrategytoresolve

itthatbuildsontheresourcesofallinvolved.46

Traditionalpublicengagementapproaches,suchaspublichearingsandpassiveinformationsharing,can

actuallyescalateconflictsaroundplanninganddevelopment.AsdescribedbytheFundersNetworkfor

SmartGrowthandLivableCommunities:

Manyresidentsfirstbecomeactivein landuseissuestofightaprojecttheyfearwilladversely

impact their neighborhood. People are deeplyprotective of theplaces they live. Residents get


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angry when the institutional mechanisms used for making such decisions are outmoded or

brokenandprecludemeaningfulcitizenparticipation.Evenunfoundedfearsarereinforcedwhen

residentsfeeltheyarenotgivenachancetoparticipateuntilit istoolatetochangeoutcomes.

Thetraditionalpublichearingprocessexacerbatesthefearsofmanylocalresidents,encouraging

them toband together inopposition. Lackof information,superficial involvement indecisions,

andconflicting interestsfuelsuchoppositionandcancreatepoliticalgridlockand leadtopoor

decisionmaking.47

Civicengagement shouldalsohelpbuild localnetworksofengagedcommunitymembers.These local

networkscanbepowerfulmechanisms forsharing information,technicalskills,andscalingupsmaller

successfulinitiatives.48Successfulengagementmustworktoexpandthewebofstakeholdersinvolvedin

theplanningprocess,fromtraditionalorformalstakeholderstonontraditionalorinformalgroups,such

ascommunitynetworks,civicclubs,parentandeducationgroups,youthorganizations,religiousleaders

andcitizens.49Consortiumsshouldbuildextensive localnetworks forcivicengagement,usingmultiple

methods

of

publicizing

activities

and

types

of

engagement

activities

to

attract

a

diverse

constituency.

As

describedinEngagingCommunityforSustainableRevitalization,thelong termgoalofengagementisto

builddiversenetworkswhichreducesocialisolationfordisadvantagedgroupsandcommunities.

While engagement organizations work with institutions, they also work as informal levels of

community to involvepeople who are socially isolated or excludedfrom community decision

making. This may involve convening people across racial, ethnic or other community

demographicgroupsaswellasbuildingsocialrelationshipswithinthem.Theconveningprocess

is specifically designed to not only expand resident social networks but to buildfeelings of

mutualtrust,belonging,sharedcommitmentandvalues,whilereducingsocialisolation.50

BuildTrust:

Share

Information,

Responsibility

and

Decision

Making

Trustisessentialtoeffectivecivicengagementwithtraditionallymarginalizedorexcludedcommunities.

Willingnesstosharepower,responsibility,and leadershipauthoritybuildstrustamongthecommunity

and official decision makers. Committing resources, commitment to the process, consistency, and

culturalcompetencyencouragesengagementandalsobuildsgoodwillandtrustbetweencommunities

andplanningconsortiums.51AssummarizedbyPolicyLink:

Authenticcommunityengagement(shouldbeencouraged),includingconveningandfacilitation

ofacaucusoradvisorycommitteewithdecisionmakingauthoritythatinvolvesresidentleaders

andcommunity

organizations

who

can

ensure

acommunity

perspective

throughout

the

planning

process;andgrantstosupportcommunityparticipation.52

It iscriticalfordisadvantagedcommunitiestoactinmorethanjustanadvisoryrole,buttobeactively

involved in decision making processes. Public sector entities must also be transparent in sharing

information,detailsonprocess,goals,anddecisionmakingapproachestoplanning initiatives.Conflict

mustbedealtwithinanopenandconstructiveway,promotingcollaborativeengagementandavoiding


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adversarialengagement.Additionally,disagreementsandconflictsshouldbediscussedopenlybutwith

sensitivitytodisadvantagedcommunities.

Trust building also takes time, and the longer that engagement activities and relationship building

occurs, thegreater the likelihoodof trustbeingdevelopedbetween consortium representativesand

disadvantaged

communities.

Trust

building

is

also

essential

to

the

long

term

goal

of

building

community leadership (and potential future leaders to support the regions sustainability planning

efforts). As described by the W.K. Kellogg Foundation in their publication The Collective Leadership

Framework:AWorkbookforCultivatingandSustainingCommunityChange:

Forcollectiveleadershiptoemerge,itiscriticaltobuildtrustingrelationships.Attentionmustbe

paidtounderstandingandappreciatingdifferencesamongallthosewhoareinthegroup.Todo

that, each member needs to be able to understand and articulate his/her own area of

competence andpassion, communication style, and view of the community. Building trusting

relationshipsincludeshelpingeachmemberfindhisorherownvoice.Thiswillhelpallmembers

become

comfortable

communicating

with

one

another

in

reinforcing

and

constructive

ways.

As

membersgettoknowandaccepteachother,theydevelopastrongsenseofbelong.Thissense

ofbelongingsupportsindividualrisktaking.53

EmbraceRobustCivicEngagement:EmphasizeEducationandEffectivenessoverEfficiency

Robustengagementmovesawayfromjustsoliciting information inapassiveway.Onthespectrumof

engagement, activities should be more targeted toward community involvement, collaboration, and

empowerment.Engagementactivitiesshouldbeseenasnotonlyaprocessto informdecisionmakers

but also as an educational opportunity for the public, enabling them to better understand planning

conceptsand

issues

pertaining

to

sustainability.54

Engagement

processes

must

not

overemphasize

efficient participation (numbers of attendees at events) over indicators of empowered or effective

participation (the ability of disadvantaged groups to organize or express their needs in the political

process).55AsstatedbyGallardoandStein:

Toachieveequitablecommunityparticipation,plannersmustconsiderthetypesofparticipation

that should be utilized. Here one might differentiate between more superficial or symbolic

participationversusmoreempoweredoreffectiveparticipation(i.e.,actualcontrolofresources

andreceiptofbenefits,aswellascontributionstoplanninganddesign).56

EngagementActivitiestoSupportRegionalPlanning:CollaborativeAction&Planning

Forregionalplanningissues,acommonengagementapproachrecommendedbytheNationalCoalition

for Dialogue & Deliberation is a model of CollaborativeAction. This model is intended to empower

multiple communities toproblem solve together inorder to address complicatedproblems and take

responsibility for solutions. The process utilizes dialogue and deliberation to generate collaborative

actionplanswhichalsoencouragecollaborativeactivitiesamongdiversestakeholdersacrossaregion.


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Understandingwhichgroupsneedtoberepresented,whichgroupsareaffectedbuthavetraditionally

beenexcluded,andunderstandingexistingpowerdynamicsarecriticalissuestoaddressinthisprocess.

Studycirclesandvisioningarecommon facilitation techniques toachieve thisgoal.57Visioningefforts

whichhavebeenmoresuccessfulhavehadthefollowingcharacteristics:

A visible open door philosophy to participation which is welcoming to all groups; clearcommunicationandvisibleincorporationofpublicinputintodecisionmaking.

Partnershipwitheducationalinstitutions,non profitrepresentatives,andbusinessinterests. Easyinteractivefeedbackmechanismsandeasyaccesstopublicpolicymakers. Deliberateefforts toengage groupswhich are traditionallyexcludedordifficult toengage in

participationprocessesandaddressingbarrierstoengagementearlyintheprocess.

The use of workshops and charettes to enhance public knowledge and widespread use oftraditionalandnewmediaplatforms.

The incorporationofmappingtechnologiestounderstandregionaldynamicsanddiscussionofregionalisminthecontextofglobalization.58

Asimilarmodelhasbeendescribedascollaborativeplanningbythe InstituteofUrbanandRegional

Development at the University of California Berkeley. This model is seen as effective in building

agreementamongdiversestakeholders,assuringafairandopenprocess,andproducingtransformative

education for the community or group learning. The model is dependent on interactive learning

betweenmultiplestakeholders,includinginterestgroups(suchasnon profits),membersofthepublic,

andvariousgovernmentalactors(seeFigure4).AsdescribedbyInnesandBooher:

In this model, participants jointly develop a mission and purpose, lay out their interests

(avoidingtakingpositions)foralltounderstand,developasharedunderstandingofaproblem

andagreementonwhattheyneedtodo,andthenworkthroughaseriesoftaskswhichleadto

action or agreements that all, or most, believe will improve their ability to meet their own

interests and, in theprocess, improve the collective welfare. They reach these results, not by

argument,butbycooperativescenariobuilding,roleplayingandbricolagepiecing together

theideas,informationandexperiencesallmembershavetocreatenewstrategiesthatoftencan

getthegroupoutofsomeimpassethatwouldotherwisehavepreventedaction.59


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Communications:FramingCommunicationforEffectiveEngagement

Peopleuseframesorschematounderstandinformationinourcomplexworld.Theseframesarebuilt

from experiences, information, and other implicit biases and help guide decision making, especially

implicitdecisionmaking.Framescanbepositiveornegativeandtheyway informationisframedcan

be very influential in respect to how people respond.As described in The Kirwan Institutes Talking

AboutRace:

Resource

Notebook:

Framesaremostsimplyunderstoodasamentaldefaultunderstandingorworldviewof.They

setthetermsofadiscussionandaffecthownewinformationwillbeencounteredand

incorporatedintoadebate,thusservingasmentalshortcutsthatallowpeopletomakesenseof

theirworld.Researchinsocialpsychologysuggeststhatthehumanmindrequiresthese

shortcutstonavigatetheflowofinformation;neworcontradictoryinformationmayberejected

ratherthancompellingtheindividualtorejectoralterhisorherprevailingmentalframe.Frames

areconstructedbyidentifyingandnamingasetofcorevaluesorprinciplesthatarecentral

toanindividualsabilitytoevaluateandunderstandtheworld. Inthiscontext,widelyand

stronglyheld

frames

have

the

power

to

set

the

terms

of

debate.

60

Careful framing can assist in producingmore conducive engagement around issues of sustainability,

regionalplanning,andequity.Regionalism,smartgrowth,sustainability, race,andequityarecomplex

issues,whichcanbedifficulttohaveproductivepublicconversationsabout.Althoughthesetopicsmay

be difficult to broach, they are essential to having honest, inclusive, and productive dialogue. The

followingarestrategiestoframeissuesofregionalism,smartgrowth,sustainability,race,andequityin

ordertobetterengageaudiencesandhavemoreproductivepublicengagementexperiences.

Figure4:ModelofCollaborative

Planning,CreatedbyInnesandBooher

atUCBerkeley,graphicreproduced

fromthereport:PublicParticipation:

NewStrategiesforthe21stCentury.

November2000.UCBerkleyInstituteof

UrbanandRegionalDevelopment.IURD

WorkingPaper

Series.


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Donotdiscusstheregionintheabstract,useittoillustrateconcreteissuesofmutualconcern,suchasthetransportationsystemorwaterquality.Emphasizetheroleofregionalcoordination

andplanningtohelpcommunitiesrealizemutualbenefitsandaddressmutualchallenges.61

Always emphasize the importance of public engagement and involvement to the planningprocessandplanningoutcomes.Describesolutionsandplansbeinggeneratedasnotproduced

by government but the result of a public democratic process representing the interests and

insightsoftheregionspeople.62

Connect human stories to policy issues and concepts that some may find too abstract.63Describedevelopment in termsof its impactonpeopleandcommunities,beexplicitand talk

aboutreal impactsonpeople.Peoplerelatetostorytellingandnarratives,usethisto illustrate

developmentpatternswhicharesustainableandhealthy.64

Emphasize the interaction between various issues, such as transportation and the regionseconomic health, education, and housing or public services and planning or development

decisions.Explainhowsustainableplanningcanhaveimpactsacrossthesevarioustopicswhich

maybe

issues

of

concern

for

participants.

Donotavoidtalkingaboutissuesofraceandsocialinequity,butdonotoverlyemphasizeracialorsocialdisparitieswithoutalsodiscussingthebarrierstoopportunitythatmake itdifficultto

thriveincertaincommunities.Simplisticdiscussionsaboutracialandsocial inequalitieswillnot

resonatepositivelywithaudienceswhichmayalreadyhold implicitorexplicitbiasesregarding

thosepopulations.Unlessdiscussionsof inequity are framed appropriately theymay actually

hardenoppositiontowarddisadvantagedgroupsamongsomemembersofthepublic.65

Whentalkingaboutcommunityimprovementandsocialorracialequity,emphasizefairnessandopportunity. The opportunity frame is a positive framewhich appeals to the core American

belief

that

everyone

should

have

a

chance

to

achieve

their

full

potential.

66

As

described

in

ActionMediaspublication,ProsperityThroughRegionalDevelopment.FocusGroupFindings&

Recommendations.

Talk about opportunityaccess to transportation and services, opportunityforjobs,

opportunityfor education, opportunity to live in safer neighborhoods, opportunityfor

prosperity.Mobilizepublicparticipationformoreopportunitytobeheard,andtoraise

thefundamentalquestions:whosincluded,whobenefits,whosleftout?67

The opportunity frame resonates deeply with most Americans, across different social and

political beliefs. As described by The Opportunity Agenda (a communications and research

organization),the

opportunity

frame

is

particularly

appealing

to

the

public:

Itactivatespeople.Mostpeoplebelievestrongly thateveryoneshouldhaveaccess to

opportunity.Whenthey lookattheir livesthroughtheopportunityframeandrealize

theways inwhich theyorothersaround themaredeniedopportunity, theywillact to

defend their rights.And since theframe helpspeople talk about their issues in less

controversial ways, it makes it easierfor them to talk about their issue withfamily,

friends,andthemedia.68


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Technology&Media:IntegrateNewMedia,MappingandOtherInternetBasedMethods

Engagementprocessesshouldintegratenewmediatechnologyanddatadrivenindicatorsystems,while

beingsensitivetodigitaldividesanddigitalaccessbarriersfordisadvantagedcommunities.Newmedia

technologiesallow

for

new

ways

to

interact

and

engage

with

the

public.

Online

tools

allow

for

easier

recruiting for engagement activities, more real time and cost effective information dissemination,

provide follow up interactions from engagement activities, conduct online dialogue between

communitymembers,andbuildbetterconnectionsamongcommunitymemberswhomaynotbeable

toattendinfacemeetingsorengagements.69

Data drivencommunitymappingand indicator systemsareadditional technical tools tohelpengage

with communities on issues of equity and sustainable development.70 Maps are powerful

communicationtools.GISmapsusingaccurateandreliabledatacan identifycritical interventionareas

and can reach a large audience through good visualization and representation of community issues.

Participatorymapping

exercises

are

promising

ways

to

increase

community

ownership,

participation,

andcollaborativeplanninganddevelopmentinitiatives.71Participatorymappingprojectscreateproblem

solvingandinformationgatheringopportunitieswithcommunitymembers,whichalsocanaddvalueto

deliberation.72 There are examples of participatory research in environmental management, urban

planning, and severalother advocacy fields.73 Asmore andmore citizensparticipate in theprocess,

issuesand concerns canbe clearly identified, leading tomore targeted andaccurate solutions.Well

designed communitybased participatory research can provide the best opportunity for building

communityownershipofprojectsand initiatives.These initiativesallow for thecollectionofnewand

uniquetypesofdata.HandheldremotemappingorGPSdeviceswillspurthegrowthoftheseinitiatives.

Processis

critical

in

assuring

aproductive

participatory

mapping

exercise.

Mechanisms

for

incorporating

theresultsofthemappingprocessmustbeclearandclearlycommunicatedtoparticipants.Theprocess

shouldbecommunity ledand facilitatedwithtechnicalassistanceandsupport fromthepublicsector

agency.74 Participatory mapping projects can also be helpful in clarifying the perspectives of the

communityfromthe localpopulation,oftenpresentingauniqueanddifferentviewofthecommunity,

thanwhat ispopularlybelieved in thewider region.Communities thatmayhave anoverwhelmingly

negative external reputation may have critical assets and resources that can be identified through

participatory activitieswith local residents.75 Technology based engagementmustwork to integrate

bestpractices incommunity buildingwithbestpractices incommunitytechnology,throughaprocess

whichseekstofirstidentifycommunityneedsandthenpairstechnologytoaddressthoseneeds.76

Engagingthroughnarratives

Inadditiontodataandotherempiricalevidence,manypeople learnthroughnarrativesorstorytelling.

AsdescribedinKitchenTableSustainability:PracticalRecipesforCommunityEngagement:

wehavefoundthatpeoplerelatemoretostoriesthantodate,evidenceordirectivesabout

what to do. Stories arepowerful. They help us make sense of our lives and allow us to make


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meaning ofpast experiences. Stories encouragepeople tofind and share their own stories.

Spoken aloud, each story becomes a catalystfor others to tell their stories. When stories are

shared,eachperson gainsanewperspective.Theyglimpse theirshared experiencewithin the

sharedexperienceofthecommunity.77

World

Cafes

are

one

popular

method

for

stimulating

storytelling

or

narrative

development.

Additionally,newmediaandotherparticipatoryprocessesfacilitatethedevelopmentoflocalnarratives

relatedtoplanning,development,equityandsustainability.AsdescribedbyFoth,KlaebeandHearne:

By making new media techniques accessible, andproviding guidance and training resources,

communitiescanconducttheirownhandsonworkshops indigitalstorytelling,oralhistoryand

future scenario building in a self directed manner withpeer support, and thenpresent these

outcomesinavirtualrealmasexhibitablecontentforpublicviewing.

Narrativesnotonlysupportcommunitymeaningmakingaboutplace,butalsotheconstruction

of planning policy, development strategies, as well as the assembly and interpretation of

empirical

planning

data.

Urban

phenomena

(such

as

traffic,

clustering

of

activities

and

environmental outcomes) emerge out of the interaction of complex systems of micro scale

processes.Newmediaapproaches,guidedby interpretivenarratives,canmodelthesedynamic

systemsinamorecomprehensibleandaccessiblefashion.78

Web basedandother interactive toolsallow forand stimulate thedevelopmentofnarrativesabout

placeorcommunity.Creatingopportunitiesforgroupdecisionmakingandcommunity basedlearning

anddevelopmentofpowerfulnarrativescan informplanningprocessesaswellasengageandeducate

thecommunityaboutplanning.79Inadditiontoparticipatorymappingtechnologiesandprocesses,other

newmedia tools, fromFacebook,FlickerandWikipedia tomore informal localsocialnetworkingweb

sites,can

be

powerful

tools

to

further

expand

the

engagement

process

and

collect

local

narratives.

80

In respect to sustainabledevelopmentplanning andmapping analysis,mapping shouldbeutilized to

educate residents and encourage deliberation and problem solving among communities and other

stakeholders.Sustainabilitydatacollectionandanalysisshouldaddressthe intersectionofopportunity

andmarginalizedcommunities.AsdescribedbyPolicyLink:

Communitydatacollectionincludingneedsassessmentsandsocialequitymappingtoestablish

a baseline and set targets that include attention topoverty and racial concentration, social

indicators, housing affordability, and mapping the location of opportunitiesfor employment,

qualityschools,freshfood,parksandopenspace,healthcenters,andotheramenities.81

TheKirwanInstituteutilizesopportunitymappingandmodelstoidentifyequitychallengesandpromote

engagement with disadvantaged communities. Opportunity mapping seeks to identify solutions for

connectingmarginalizedcommunitiestocriticalopportunitystructures,suchassuccessfulschools,safe

neighborhoods,healthy environments, and sustainable employment.82 Opportunitymapping creates

composite index maps based on numerous neighborhood indicators of community opportunity and


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vitality. Thismapping, research, and communityengagement and advocacymodelhas severalbroad

goalsandoutcomes.Thesegoalscouldinclude:

Toraisesignificantattentionandawarenesstothestructuralandcommunitybarriersimpactingdisadvantagedcommunities.Toidentifypolicysolutionstoremedybarrierstoopportunityfor

disadvantagedcommunities.

To

provide

an

entry

point

for

starting

consensus

building

or

collaborativediscussionsamongstakeholders.

Toprovidealocalresourcetoidentifyareasofgreatestneedincommunitiesandassessgapswhereneedisnotbeingmetbyongoingadvocacyefforts,localinitiatives,investmentsor

policyinitiatives.

Toutilizethemappingtoinformandguideadvocacycampaigns,policyadvocacy,andcommunityplanning. Toprovidedata,analysis,andrecommendationstohelpbuildlocal

organizationalcapacityinunderstandingchallenges,needsandstrategiesfordisadvantaged

communities.Toprovideacollaborativeframeworktocollectivelyorganizethestrategic

planning

of

multiple

stakeholders

in

communities.

Whiledigitalinclusioniscriticalintodayssociety,disparitiesexistinrespecttowhohasaccesstodigital

resourcesintheUnitedStates. Regional,age,incomeandrace/ethnicitydisparitiesstillexistinrelation

tointernetaccessintheU.S.(SeeFigure5).83 Thedigitaldivideisstillaprominentdivideinmanyrural

areas,mostnotablyinpoorruralcommunitiesintheSouth.84Growingapplicationslikehandheldmobile

devices,growingbroadbandservices,andschool baseddigitalresourcesprovidepromisingresourcesto

counterdigitalaccessissuesandshouldbeconsideredwhendesigningengagementapproaches.While

significantdisparitiesexist inhome internetaccessbetweenhigh and low incomehouseholds in the

US,smallerdisparitiesexist inrespecttocellphoneormobiledeviceusageandoverall internetusage

forlow

income

households

(See

Figure

6).85

This

data

suggests

growing

low

cost

handheld

devices

and

other technology may help sharply reduce digital isolation from disadvantaged communities in the

future.


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Figure5:AnalysisofinternetusageratesbyincomeandgeographyintheUS;Chartnotauthoredbythisreportsauthorand

reproduceddirectlyfromthefollowingreportRuralBroadbandAtaGlance,2009Edition.ByPeterStenbergandSarahLow.

EconomicInformationBulletinNo.(EIB47).February2009.Originalchartandreportavailableonlineat:

http://www.ers.usda.gov/Publications/EIB47/


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Figure6:Broadband,InternetUseandCellPhoneOwnershipbyincomegroupintheU.S.;Chartnotauthoredbythisreports

authorandreproduceddirectlyfromthereportUseoftheInternetinHigherIncomeHouseholds.ProducedbyPewInternet

&AmericanLifeProject,AProjectofthePewResearchCenter,producedbyJimJansenandavailableonlineat:

http://pewinternet.org/Reports/2010/Betteroffhouseholds/Overview.aspx

Logistics:CreatingaWelcoming,InteractiveandEffectiveEngagementProcess

Details are critical in successfully implementingengagement activities, from the location, layout, and

formatofmeetingstofacilitationtechniques.ResearchbySarkissianet.al.haveidentifiedthefollowing

factorsthatcanincreasethelikelihoodofengagementprocessestofailtobeeffective:

inadequateinfluenceindecisionmakingforcommunityparticipants, utilizingtheengagementactivitiestojustifyexistingactionsorpolicydecisions, inadequateresourcesorfailingtouseavarietyofengagementapproaches, notfocusingonlocalcapacitybuildingasagoaloftheprocess, fearofchallengingexistingbeliefsorpowerstructures, not developing networks within communities of interest and not expressing respectfor local

knowledgeandcommunitymemberinput,and

toomuchemphasisplacedonexpertsforsupportingdecisionmaking.86Differenttypesofengagementprocessesaremoreappropriatethanothers,dependingonthespecific

outcomesdesiredfromtheengagement.Smallgroupdiscussionsareusefulforgroup learning,sharing

experiences, or developing priorities or dialogue. Large group engagements aremore suited toward

energizingongoing communitydialogue, announcing an initiative, sharing information,or connecting

stakeholders.Onlineorothertechnology basedengagementsallowfordetailedinformationsharingor


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targeted information sharing with hard to reach audiences, follow up from formal engagement

activities,andgatheringinputfromalargesampleofresidentsandstakeholders.

Establishingasetofgroundrulesforengagementeventsandsettingexpectationsregardingcontentand

processwill increasethe likelihoodofaneffectiveengagementevent.Additionally,beawareofpower

dynamics

within

the

community

that

may

impact

the

engagement

event.

Be

attentive

to

the

norms

and

culture of the community and pay attention to the engagement process to assure that specific

individuals or organizations are not dominating the discussion or any group based decisionmaking

processes.87

Figures7and8provideanoverviewofadditionalconsiderationswhendesigningengagementactivities

andfacilitatingengagementinteractions.Figure7describescriticallogisticalconcernswheninvitingthe

public toanengagementactivity.Figure8providesanoverviewofhowtodesignandaskcompelling

andthoughtprovokingengagementquestions.

CREATINGANOPENENGAGEMENTENVIRONMENT:DRAFTINGINVITATIONSANDPLANNING

Theinvitationforpullingthecommunityintotheengagementprocessiscritical.Invitationsshould

clearlydescribethepurposeoftheevent,theprocessleadingtotheevent,aclearthemetothe

eventsactivities,expectationsfromthosewhoparticipate,clearlogisticalinformation(time,location

andagenda)andacknowledgementoftheresourcesbroughtbythoseinvited(andstatingthe

importanceoftheirparticipation).

SampleInvitationLanguage:ProducedbyMichaelHermanofMichaelHermanAssociates.

PleasejoinusforOurpurposeissimpleandimportant. Becauseyoucareaboutyouhavetheskills,experiencesandinsightsthatareessentialto

makeitbetter

Weneedyourdeepengagementintheissuesandopportunitiessurroundingthepresentandfuture

of

toward

the

resolution

of

current

issues

and

realization

of

untapped

potential

for

Theworkofthissessionwillcontributeandleadtoward Wherethereisagreement,wecanmoveforward.Wherethereisdifferencewecanseek

understanding,commonground,andworkablecompromise.

Inaddition,severalothercriticalissuesmustbedecideduponintheengagementeventplanning

process,theseinclude:roomlayout,followupactivitiesandresources(whichshouldbeannounced),

recordkeepinganddocumentationandidentificationofwhatcriticaldataorinformationneedstobe

presentedaspartoftheprocess.Figure7:Tipsandtechniquesforcraftinganopenengagementevent.Materialsderivedfrom(andsamplequestionsquoted

from)thefollowingreport:MichaelHerman.OpenSpaceTechnology:AnInvitingGuide.MichaelHermanAssociates.

Chicago,IL.FourthEdition.October2006.


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Figure8:Techniquesforaskingpowerfulquestionsforeffectiveparticipation.Allmaterialsreproducedand

adaptedfromthefollowingreport.EricVogt,JaunitaBrown&DavidIsaacs.TheArtofPowerfulQuestions:

CatalyzingInsight,Innovation,andAction.PublishedbyWholeSystemsAssociatesandDistributedbyPegasus

Communications,Inc.September2003.

AskingPowerfulQuestions

Thefacilitationmethodandquestionsasked are

attheheartofcivicengagementactivities.

Effective

engagement

requiresaskingstimulatingandpowerulquestions.

Engagementquestionsshouldavoidblack/whiteandeither/orsimplisticquestions.Questions

shouldprovokereflectionandbecatalytic.

Whereto

Start

Questionswhichproposeourillustratenewscenariosorvisionsofthefuturecan

stimulatecreativethinkingandidentifynew

opportunities.

Forexample,youmightask:"whatwouldmakeyour

communitysustainableandhealthyinthefuture?"Or"whatisyourvisionofan

opportunityrichcommunity?"

Be

clear

in

clarifying

the

scope

ofyourquestions,focusonkeepingquestionswithinareasonablescopeforpeopletoconceptualizesolutions.

Understandimplicitandexplicitassumptionswithinyourengagement questions.

Doesthegroupyouareengagingwithaccepttheseassumptions? Docertain

definitionsneedtobedefinedandagreeduponinadvance?

Questionsto

Ask

Questionsshould:

"Stimulatecreativity,motivatefreshthinking,surface

underlyingassumptions,focusintention,attentionand

energy,andopenthedoortochange."

APowerfulquestions:

"generatecuriosityinthelistener,stimulatereflective

conversation,arethoughtprovoking,invitescreativity

andnewpossibilities,generatesenergyandforwardmovement,channelsattentionandfocusesinquiry,stayswithparticipants,touchesadeep

meaningandevokesmorequestions."

Facilitationquestionsandactivitiesshould:

Notbejudgementalandencourage

diverse

opinions.

Honortheparticipantsinvolvementandcontribution.

Activelylookforconnectionsbetweencomments/ideasand

demonstratesharedunderstanding.

Clearlyunderstandandidentifyassumptionsand

preexistingbeliefs.

Identifyandsharecollectiveideas.


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VI. EngagementwithCommunity:ConsiderationsfortheEngagementProcess

withSpecificDisadvantagedCommunities

Ofcoursenotalldisadvantagedcommunitiesarethesameandengagementstrategiesneedtoreflect

this fact. The following provides an overview of considerations when working with a variety of

potentiallydisadvantagedcommunities.

WorkinginImpoverishedCommunities:

Low income communities are not monolithic and represent a wide variety of racial and ethnic

populations, cultural norms, languages, geographic characteristics, with distinct barriers to

opportunity.88 Engagementwith these communitiesmust recognize thesedistinctions and integrate

them intoengagementapproaches.Whileengagementshouldbeauniversalgoal,targetedandtailor

made approaches will be needed to effectively engage with a diverse number of communities.

Additionally, low income communities may already be engaged through less formal engagement

networks,but

for

active

engagement

these

communities

face

tremendous

barriers

which

must

be

understoodandaddressedintheengagementprocess.89

Workingwithfaith based leadersandclergymaybeaneffectivewaytoreachandunderstanddiverse

populationslivinginimpoverishedcommunities.AsdescribedinALocalOfficialsGuidetoWorkingwith

ClergyandCongregations.PublicEngagementandCollaborativeGovernance:

Workingwithclergyandcongregationscanbeastrategyforreachingoutbeyondtheusuals

to includeadditionalvoicesfromthecommunity.Congregationscontainnotonlyadiversityof

religious denominations, but also additional diversities of race, ethnicity, culture, age and

nationality; all representative of their local communities. In many communities, a significant

numberofresidentsaremembersof localcongregations;workingwithsuchorganizationscan

enablelocalagenciestoconnectwithbroadercrosssectionsofthecommunity.90

A first step recommended forengagingwithdisadvantagedorhard to reachpopulations is to first

develop relationships and outreach with local clergy. To effectively work with clergy, relationship

building,trust buildingandcommunicatingrespectfully iscritical.Relationshipsmustbeseenastwo

wayandbeneficialtoboththecongregationandpolicymakers.91

Althoughlow incomecommunitiesmaynotbeactivelyinvolvedwithformalcommunityorganizations,

theymaystillparticipateinmoreinformalsocialnetworksinthecommunity.Forpolicymakerslooking

to

engage

these

populations,

they

must

consider

accessing

these

informal

social

networks

to

further

engagement.92 Researchhasfoundthat increasedratesofhomeownershipareassociatedwithhigher

levels of social capital. However, research also suggests that increasing levels of participation in

neighborhoodactivitiescanalso increasesocialcapital.AsstatedbyBrissonandUsher:[P]rograms

that promote community participation and indigenous leadership and empower decisionmaking

processes may provide more sustainable positive outcomes for families living in lowincome

neighborhoods.93


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WorkinginRuralCommunities:

The characteristics of rural communities vary significantly. Rural communities could be experiencing

rapidgrowthorbeisolatedwithpersistentpoverty,andthishassignificantimplicationsforsocialcapital

andpotentialmethodsforengagement.94Disadvantagedruralcommunitiescontainbothassetswhich

encourage

civic

engagement

and

barriers

to

engagement.

Assets

may

include

stronger

social

networks

andtieswithinthecommunity;barriersmay includemoreentrenchedpolitical leadershipthatmaybe

resistanttochangeorinexpandinginfluencetootherstakeholders.95 Isolatedruralcommunitiesmust

focus on internally driven development (such as entrepreneurship) and the ability to successfully

support internal community development requires social capital.96 Healthy rural communities with

strong leadershiphaveeffectivecommunicationmechanisms,developedsocialcapital,higher levelsof

community engagement, and more collaboration across and within communities.97 Rural civic

involvementhasalsobeenshow tobehighlysupportiveof locally focused farmingandhealthyrural

agriculturaleconomies.98

Research

has

found

more

viable

(economically

healthy)

rural

communities

have

strong

female

leadership representation and strong personal or organizational ties to state and other external

resourceorganizations.99 Persistentlypoor rural regionshavehigher levelsof inequality in respect to

access to capital, finance, and political systems. These factors undermine social capital and limit

community development. The continued outmigration of skilled residents in these persistently poor

ruralregionsalsosuppressessocialcapital.100 Nonprofitorganizationscanbetremendouslybeneficialin

supporting socialcapital in ruralareas,helpingbuild linkagesandcreateopportunities forcompeting

intereststohavedialogue.101Distancemattersinengagementwithinruralcommunities.Effortstooffset

financial costs and access barriers in rural areas may greatly enhance sustained engagement and

effectiveparticipationintheengagementprocess.102

Successful community engagement in rural areas should focus on several goals: extensive

encouragementofyouthparticipation,cooperative relationship buildingbetween rural communities,

networkdevelopmentamongdiversestakeholdersrepresentingvariousinterestsofruralcommunities,

an open door policy or easy accessibility to public policy leaders involved in guiding the planning

process, opportunities for real decision making for community participants, and open access to

informationorothertechnicalresources.103

WorkingwithImmigrantCommunities

Immigrantcommunitiesareanimportantandgrowingsegmentofoursociety.Immigrantcommunities

arewell poised toembracecivicengagementbecause theyhavehigher levelsofsocialcapitalwhich

may soften the impacts of some community challenges for communities often marginalized by

traditionalengagementprocesses.Severalprominentbarrierstocivicengagementcreatechallengesin

engaging with immigrant communities. Impediments to engagement include: language, literacy and

cultural barriers; limited experience with local political processes; fear of political repercussions for

interacting with government or speaking out in regards to public policy; and limited time and


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resources.104 TheCollaborativeGovernment Institutehas identifiedtheprimarybarriersto immigrant

participationandtheseinclude:

Language,literacy,andculturalbarriersmaymeannewcomersareunawareofopportunitiestoparticipate,ormayfindparticipationembarrassingordifficult,especially if theyarepromoted

andconducted

only

in

English.

Lackofknowledgeaboutlocalpoliticalprocessesandissuesmaymakepeoplefeelunqualifiedtoparticipateunlesstheyunderstandthateveryonehasvaluesandprioritiestocontributeandthat

everyonewillbegivenunderstandablebackgroundinformation.

Lingeringfearofanoppressivegovernmentintheircountryoforigincanmakesomeimmigrantswaryofpublicmeetings.Theymaybelievethatchallenginggovernmentpoliciesorspeakingout

willleadtotroublewiththeauthoritiesorwithpeoplewhohaveantiimmigrantsentiments.

Too little time and resources to attend a meeting is a common refrain, especiallyfor thosenewcomers working long hours at lowpaying jobs. Lack of awareness of opportunities for

involvementcan

be

abarrier

to

diverse

participation.

Fearofdeportationorpoliticalrepressionintheircountriesoforiginmaymakenewcomersandtheir families wary of public participation, especially if it occurs in very public or official

settings.105

Despite these challenges, engaging with immigrant communities is important, as described by the

CollaborativeGovernmentInstitute:

Overall,engagingimmigrantsinthecivicandpoliticallifeoftheircitiesandcountieswillcreate

stronger and more successful communitiesfor at least two specific reasons: 1. It will result in

decisionsthat

are

more

responsive

to

the

full

communitys

needs

and

interests;

2.

It

will

hasten

theprocessofintegratingnewcomersintothebroadercommunity.106

Well plannedandinclusiveengagementapproachescanbesuccessfulwithimmigrantcommunitiesand

informal relationship building with communities can help build trust. Language access is critical to

immigrantengagementactivitiesaswellasdeveloping relationshipsand trustwithkey leaders in the

communities.Collaborationwithimportantinstitutions,suchasschoolsandreligiousorganizationsand

othergatewayinstitutions,canbeeffectivewaystointeractandengagewithimmigrantcommunities.

Creating a variety of engagement formats (small group interactions, one on one engagements, and

largerengagement activities) is important.Additional training and leadershipdevelopment and long

termengagement

activities

in

immigrant

communities

can

help

break

down

obstacles

to

engagement

anddeveloptrust.Inaddition,theCollaborativeGovernmentInstitutehas identifiedseveralsignificant

factorswhichwill increasethepotential foreffectiveengagementwith immigrantcommunities,these

include:


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Createasmallfocusgroupofleadersandresidentsfromlocalimmigrantcommunities.Haveafacilitateddiscussionto identifycommunityconcerns, interestsandengagementprocessesthat

wouldbringcommunityresidentstogethertodiscusstheseissues.

Introductory comments that welcome and express the importance of allparticipants to themeeting,andthatincluderemarksbyimmigrantcommunityleadersmayhelpsetacomfortable

andproductivetone.

GoodfacilitationmaybeparticularlyimportanttoensureparticipationbythosewithlessEnglishspeakingcapacityorconfidencetoparticipate.

Itmaybehelpfultoensureopportunitiesformembersof thesame immigrantcommunities tospeak together in their native languages at the beginning andat times during the meeting to

ensureunderstandingandfullparticipation.

Provideopportunitiesforsmallgroupaswellaslargegroupparticipation. Beawarethatinmorestratifiedcommunities,somegroupmembersmaybelesswillingtospeak

untilothershavealreadydoneso.Forcingtheissuemaycreatediscomfort.

Immediately address dynamics tha

growing-together-for-a-sustainable-future.pdf

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