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Participation

Participation

Samuel Hickey | Giles Mohan

(2008)

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Abstract

Participation has established itself as a significant approach to project implementation, policy-making and governance in developing and developed countries alike. Recently, however, it has become fashionable to dismiss participation as more rhetoric than substance, and subject to manipulation by agencies and social change agents intent simply on pursuing their own agendas under cover of community consent. In this important new volume, development and other social policy scholars and practitioners seek to rebut this simplistic conclusion, while addressing the problems of power and politics which have beset some approaches to participation. They describe and analyse new experiments in participation from a wide diversity of social contexts that show how, far from being a redundant and depoliticizing concept, participation can -- given certain conditions -- be linked to genuinely transformative processes and outcomes for marginalized communities and people. This volume is the first comprehensive attempt to evaluate the state of participatory approaches in the aftermath of the 'Tyranny' critique. It captures the recent convergence between participatory development and participatory governance, and spans the range of institutional actors involved in these approaches - the state, civil society and donor agencies. It places participatory interventions in a political context, and links them directly to issues of popular agency. The volume embeds participation within contemporary advances in development theory and proposes theoretical and practical ways forward for relocating participation as a genuinely transformative approach. Scholars and practitioners alike, and from a diversity of disciplines and community and development agencies, are likely to find this volume a theoretically illuminating and practically useful source of ideas about how participation can achieve concrete liberatory outcomes.
Samuel Hickey is a lecturer in Social Development at the Institute for Development Policy and Management, University of Manchester. Giles Mohan is a lecturer in Development Studies in the Development Policy and Practice discipline of the Open University. He is the coauthor of Structural Adjustment: Theory, Practice and Impacts (2000) and of Power, Space and Development (2003).

Table of Contents

Section Title Page Action Price
Contents\r v
Acknowledgements x
Part one | From tyranny to transformation? 1
1 | Towards participation as transformation: critical themes and challenges 3
Setting the scene 3
A brief history of participation in development 5
Participation and development theory 9
Reframing participation: towards citizenship 11
Transformation 13
The temporal aspects of participation 15
Space 16
Representation 19
Conclusion 20
Notes 21
References 21
2 | Towards participatory governance: assessing the transformative possibilities 25
Relating people and institutions 25
Working both sides of the equation 27
Reconceptualizing participation and citizenship 28
New forms of citizen–state engagement 30
The need for more evidence 31
Assessing power relations in participatory spaces 34
Spaces for participation 35
The visibility of power relationships 37
Conclusion 39
Note 39
References 39
3 | Rules of thumb for participatory change agents 42
Rule I: Don’t work for the World Bank 43
Rule II: Remember: co-optation, co-optation, co-optation 45
Rule III: Data belong to those from whom they were taken 47
Rule IV: Work only in languages you understand as well as your first 48
Rule V: Always work for local rates, or for free 49
Rule VI: Have it done to yourself 50
Rule VII: Historicize theory and practice 51
Conclusion 52
References 54
Part two | Rethinking participation 57
4 | Relocating participation within a radical politics of development: critical modernism and citizenship 59
Of theory and analysis: relocating and politicizing participatory thinking 60
Relocating participation in a radical theoretical home 60
Critical modernism and the left: between political economy and populism 62
Reconceptualizing participation as citizenship 65
Realizing a project of radical citizenship and critical modernism 69
Conclusion 70
Notes 71
References 71
5 | Spaces for transformation? reflections on issues of power and difference in participation in development 75
Spaces for change? 75
Of spaces and places 77
Making spaces 78
Situating participation 80
Contestation and resistance 81
Spatial practices, agency and voice 83
Making a difference: towards more transformative participation 85
Notes 88
References 88
6 | Towards a repoliticization of participatory development: political capabilities and spaces of empowerment 92
Mainstreaming participation, depoliticizing development 92
Re-evaluating participation: institutional analysis and political capabilities 95
Learning from participation: ‘success’ and ‘failure’ in South Asia 98
Towards the repoliticization of participation 100
Conclusions 103
Notes 104
References 105
Part three | Participation as popular agency: reconnecting with underlying processes of development\r 109
7 | Participation, resistance and problems with the ‘local’ in Peru: towards a new political contract? 111
Development and participatory practice 112
A history of participatory development and translocal livelihood in Matachico, Peru 114
Ways forward: towards a new political contract? 119
Notes 121
References 122
8 | The ‘transformative’ unfolding of ‘tyrannical’ participation: the corvée tradition and ongoing local politics in Western Nepal 125
Setting the context: Majuwa and the corvée tradition 126
Ongoing local politics in Majuwa 127
Local patterns of participation in flood control projects 128
Renegotiations of the begaari norm 130
Non-linear progression of ‘participatory’ processes 132
Towards ‘transformation’? Participation in the 2001 flood control project 134
Conclusions: rethinking ‘tyranny’ and ‘transformation’ 136
Notes 138
References 138
9 | Morality, citizenship and participatory development in an indigenous development association: the case of GPSDO and the Sebat Bet Gurage of Ethiopia 140
Citizenship and participation 141
The Sebat Bet Gurage and GPSDO 143
Gurage migration and citizenship discourses 144
The process of participation 147
Sanctions underpinning participation 149
Volunteerism and leadership 151
Conclusions 152
Notes 154
References 154
Part four | Transformative participation in practice: State and civil responses 157
10 | Relocating participation within a radical politics of development: insights from political action and practice 159
The pinnacle of participation? PPAs and PRSs 159
Participatory governance and democratic decentralization 161
NGOs and participatory development 163
REFLECT: Regenerated Freirean Literacy through Empowering Community Techniques 164
NGOs and rights-based approaches 164
NGO advocacy 165
Social movements 166
Identifying the politics of participation as transformation 168
Conclusion 170
Notes 170
References 170
11 | Securing voice and transforming practice in local government: the role of federating in grassroots development 175
Beyond developmental NGOs: the power of federating 175
Transforming models of urban development: Victoria Falls, 1999–2002 177
Reflecting on achievements and emerging lessons 184
Conclusion 187
Notes 188
References 188
12 | Participatory municipal development plans in Brazil: divergent partners constructing common futures 190
Local development plans as social innovation in Brazil 191
The origins of the LDP idea 195
Comparing Araponga and Tombos 196
Conclusions 202
Notes 203
References 203
13 | Confrontations with power: moving beyond ‘the tyranny of safety’ in participation 205
‘The tyranny of safety’ 206
The School for Peace approach 207
The Commission on Poverty, Participation and Power 210
‘Non-phoney’ participation: some pointers 213
Remaining questions 214
Notes 216
References 217
14 | Failing forward: going beyond PRA and imposed forms of participation 219
The disappointments of participation and PRA 219
Rights, citizenship-building and ‘deep’ political literacy 222
Adapting REFLECT: Village AiD’s experience of Arizama in Northern Ghana 224
Deep political literacy and transformation: EKANAK in Sierra Leone 230
Conclusion 231
Notes 232
References 232
Part five | Donors and participation: caught \rbetween tyranny and transformation 235
15 | Participation in poverty reduction strategies: democracy strengthened or democracy undermined? 237
The theoretical basis for participation in PRSP development 237
The World Bank’s PRSP Sourcebook 239
The PRSP process in Cameroon 246
Conclusion 249
Notes 250
References 250
16 | Beyond the technical fix? participation in donor approaches to rights-based development 252
Rights, participation and institutional change 253
Rights-based development and ‘genuine’ participation 254
Operationalizing the discourse: participatory rights-based assessment 255
Discussion: can donors drive institutional change? 259
Conclusion: beyond technical fixes? 263
Notes 265
References 265
Part six | Broader perspectives on ‘from tyranny to transformation’ 269
17 | The social embeddedness of agency and decision-making 271
Citizenship, agency and culture 271
Collective action, governance and institutionalizing participation 274
Conclusion: the partiality of agency, the inequality of structure 276
References 276
18 | Theorizing participation and institutional change: ethnography and political economy 278
Notes 282
References 282
Contributors 284
Index 288