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First published April 1990

Citizen Participation and Environmental Risk: A Survey of Institutional Mechanisms

Abstract

Standard approaches to defining and evaluating environmental risk tend to reflect technocratic rather than democratic values. One consequence is that institutional mechanisms for achieving citizen participation in risk decisions rarely are studied or evaluated. This article presents a survey of five institutional mechanisms for allowing the lay public to influence environmental risk decisions: public hearings, initiatives, public surveys, negotiated rule making, and citizens review panels. It also defines democratic process criteria for assessing these and other participatory mechanisms.

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1. A thorough discussion of the instrumental arguments for participation can be found in Cook and Morgan's Participatory Democracy (1971). Also see Davis (1986), Elliott (1984), and Johnson (1987) on how increased public control over the management of facilities may reduce opposition to controversial siting decisions. On the divergence between technical and social perceptions of nuclear power, see Bickerstaffe and Pearce (1980).
2. On participatory mechanisms and environmental risk decisions, see the report by the Organization for Economic Development and Cooperation (1979); Nelkin and Pollak (1980); Nelkin (1977): and Kraft (1988).
3. This discussion draws upon Barber's Strong Democracy (1984); Bachrach's The Theory of Democratic Elitism (1967); Cobb and Elder's Participation in American Politics (1972); Mansbridge's Beyond Adversarial Democracy (1980); Margolis's Viable Democracy (1979); Cook and Morgan's Participatory Democracy (1971); Olsen's Participatory Pluralism (1982); Pateman's Participation and Democratic Theory (1970); and Thompson's The Democratic Citizen (1970). The democratic process criteria discussed in this section are developed more fully in Fiorino, Environmental Risk and Democratic Process: A Critical Review (1989a, 530-39).
4. Even as strong an advocate of governance through face-to-face contact as Mansbridge observes that some distance may be appropriate in situations of high conflict (see Mansbridge, 1980, 272-77).

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Article first published: April 1990
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Daniel J. Fiorino
U.S. Environmental Protection Agency

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