Designing for Community Intelligence
ref: Designing
Multi-Process Public Participation Programs
A THIRD CONSIDERATION
IN DESIGNING MULTI-PROCESS DIALOGUE AND DELIBERATION PROGRAMS:
DESIGNING FOR COMMUNITY INTELLIGENCE:
EMBRACING AND TRANSCENDING THE USUAL LOGIC OF PUBLIC PARTICIPATION
There is a widely noted "spectrum" or "ladder"
of public participation, which I'll illustrate here with two of
its most common forms:
a) the International Association for Public Participation (IAP2)'s "Spectrum
of Public Participation" ranges through the following functions,
from high power to low:
Empower
Collaborate
Involve
Consult
Inform
b) Sherry Arnstein's classic "Ladder
of Public Participation" ranges through similar functions, from
high power to low:
8 Citizen Control (Citizen Power)
7 Delegated power
6 Partnership
5 Placation (Tokenism)
4 Consultation
3 Informing
2 Therapy (Non-Participation)
1 Manipulation
I want to suggest that there is a further stage, which I am
calling community intelligence. From the community intelligence
perspective, the reason we need to inform, consult with, engage
or empower citizens is to build the community's capacity to reflect
and respond collectively, as a whole. To succeed we need to do
all these functions and more.
The community intelligence approach looks at the society, itself,
as the holonic unit and seeks to improve the capacity of the social
whole as an organism. While it includes many of the functions
addressed in public participation and empowerment, such as those
listed below, it is not the isolated functions themselves that
make the focus on community intelligence unique, but the recognition
that all these functions need to be addressed together and in
service to this larger community capacity. It is almost as if
empowerment + systems thinking leads us to the idea of community
intelligence.
Below is one model of community intelligence that looks at
some basic functions that need to be served if a community is
to be whole, alive, informed and thoughtful.
1. Community information - Alerting and informing the
community about public conditions and issues, and the activities
being undertaken to handle them. This includes official briefings,
media of all kinds, formal and informal punditry, and other sources
of information on public concerns.
2. Community conversation - Connecting up the lives
and interests of the community's members through every type of
conversation -- formal and informal; online and off; among citizens,
stakeholders, experts and officials.
3. Community healing - Healing fragmentation and adversity
among the community's diverse groups through full and deep hearing
and often a search for common ground.
4. Community engagement - Helping members of the community
find meaningful, coherent ways to work together to serve their
community. This "coming together" can take many forms,
such as networking, self-organization, collective visioning,
collaborative management, etc.
5. Public judgment - Involving diverse members of the
community in together shaping the governance of the community,
identifying sensible policies and programs. This involves deliberation
among stakeholders and/or members of the general public.
6. Public reflection - Generating the insight, oversight
and wisdom (see Appendix C)
needed to guide life in the community. This function watches
the community, from the inside and out. It persistently delves
into the underlying dynamics of what does or doesn't make sense,
welcoming dissonance, emotion, honesty, and anything else that
clarifies and "processes" what's going on. It involves
various deepening activities by individuals, relationships, groups
and the whole community.
Community intelligence will thrive to the extent that all these
functions are being served. In Appendix
A they are explored further, including notes about processes
that serve them.
But for our present purposes, I want to now explore some of
the kinds of thinking involved in designing for community intelligence.
Again, this is a rough draft which could benefit from more co-creative
development and "cooking." Hopefully it points in intriguing,
potentially useful directions for further thinking.
SOME BASIC PRINCIPLES, ASSUMPTIONS AND CONSIDERATIONS FOR
DESIGNING COMMUNITY INTELLIGENCE SYSTEMS AND PROGRAMS
A. BUY-IN: Partisan stakeholders, decisionmakers and
the public can all play roles in implementing and/or impeding
needed community solutions and initiatives. They will most likely
be an asset to implementation to the extent they are engaged in
the process -- from education and input at the beginning, through
full co-creative deliberative efforts to understand the issues
and craft solutions, to providing their reactions to proposals
along the way and in the end.
B. UNITY/DIVERSITY: Community wisdom (e.g., high quality
outcomes) is invoked by recognizing and nurturing both diversity
(demographics, full-spectrum information, dissent, etc.) and unity
(common ground, convergence, similarities, etc.). Of course, unity
and diversity can also be destructive, appearing in such familiar
forms as acrimonious divisiveness and stultifying conformity.
In most cases, a process is helpful to the extent that it supports
people in using both diversity and unity creatively.
C. HEARING: Defensiveness, assertiveness and withdrawal
are all minimized when people feel they are really being heard.
When people feel they've been adequately heard, they tend to ease
up on their certainties and boundaries and to open up to people
and ideas around them. Real co-creativity can usually get off
the ground only to the extent people have felt really heard.
So the more diversity (of people, perspectives, information,
etc.) we engage with and fully hear, the wiser our results will
be, the more people will view the process as fair and legitimate,
and the more cooperation we will get. The sooner and longer people
are engaged and honored in the process, the more sense of ownership
they will have in the outcomes. And the more effective the group
process and facilitation are, the more our diversity will be engaged
in a creative manner, which will generate better outcomes.
D. COLLECTIVE LEARNING: Learning is an ongoing iterative
process, filled with informational feedback loops. Community intelligence
is enhanced by ongoing engagements, with insights from one process
feeding into another, and with real-world results of earlier insights,
actions and policies being fed back into community conversations
and deliberations. Although resource limitations are a real factor,
one-time, one-process events are inherently limited in how much
community health or evolution they can produce. (However, if community
intelligence systems were applied to the subject of "lack
of resources for community well-being," the chances are good
that that problem would cease to be such a problem.)
E. DEMOCRATIC ROLES: We encounter many different assumptions
about democracy when we design programs like this. One of the
questions we might ask is: What are people's assumptions about
the relative decisionmaking roles of the following categories
of people?
- the citizenry
- stakeholders
- elected officials
- professional bureaucrats
Each group has gifts to bring to the table and legitimate claims
to participation. But each group also brings limitations and problems.
Below I've listed some roles characteristic of each class of participants.
None of these lists are complete, but I believe they are sufficient
to make the case that all four groups should be given significant
but limited roles in both deliberation and decisionmaking.
- The values, interests and majoritarian power of the CITIZENRY as a whole are by definition
the foundation of democracy and there is vast untapped intelligence,
creativity and concern in the general public.
- STAKEHOLDERS collectively
hold important information, expertise and passion, having very
high "interest" in the issues they're connected with.
Furthermore, some definitions of democracy suggest that those
most affected by a decision should be most involved in making
it.
- ELECTED PUBLIC OFFICIALS
are the primary empowered decisionmakers in our republican form
of government and tend to have an overview of the larger landscape
of issues and forces shaping the community.
- PROFESSIONAL BUREAUCRATS
tend to have vital knowledge of the ongoing constraints and demands
related to issues in their domain and are usually the ones who
have to implement the decisions of government.
At the same time, each of these groups is problematic as a
decisionmaking power and participant in democratic dialogue and
deliberation.
The effective contribution of CITIZENS
to productive public dialogue and deliberation is often limited
by
- ignorance of important information related to any given issue
- our adversarial political culture (which reinforces sides,
positions, conflict)
- the absence of opportunities and infrastructure needed to
experience dialogue and deliberation
- personal life factors (time, money, demands, distractions,
etc.)
- a cynical sense that government is inept, corrupt, etc.
- vulnerability to manipulation through mass media and unhealthy
social dynamics
The effective contribution of STAKEHOLDERS
to productive public dialogue and deliberation is often limited
by
- our adversarial political culture (which reinforces sides,
positions, conflict)
- their intrinsic bias and positionality (defending their "stake"
or "interest"), which can close their hearts and minds
- the absence of opportunities and infrastructure needed to
experience dialogue and deliberation
- a cynical sense that the general public is ignorant and easily
manipulated.
- a cynical sense that government is inept, corrupt, etc.
The effective contribution of ELECTED
OFFICIALS to productive public dialogue and deliberation
is often limited by
- media attention and bias in favor of conflict, scandal, etc.
- our adversarial political culture (which reinforces sides,
positions, conflict)
- political turf and ego issues
- a cynical sense that the public is ignorant, fickle, divisive,
etc.
- vulnerability to the manipulations and constraints of powerholders
and wealthy supporters
- a need to limit and shift their attention on various issues
according to political winds
- the absence of opportunities and infrastructure needed to
experience dialogue and deliberation
- legal constraints (e.g. sunshine laws) that inhibit openness
and authenticity
The effective contribution of PROFESSIONAL
BUREAUCRATS to productive public dialogue and deliberation
is often limited by
- bureaucratic turf and ego issues
- a cynical sense that the public is ignorant, fickle, divisive,
etc.
- our adversarial political culture (which reinforces sides,
positions, conflict)
- the absence of opportunities and infrastructure needed to
experience dialogue and deliberation
- a tight web of laws, regulations, requirements, institutional
arrangements, etc., feeding a general sense of constraint, fed
by hard experience, that can impede openness and creativity
This suggests that no one of these groups should be central
in designs for community intelligence systems and programs. It
also suggests that their diverse strengths can be supported and
their diverse limitations ameliorated in properly planned dialogues
and deliberations (as well as institutional changes that shift
distorted power arrangements).
So another basic principle might be
Healthy deliberative systems respect the gifts and limitations
of the general citizenry, stakeholders, elected officials and
bureaucrats. As a result, we need to include in the multi-process
programs deliberations that empower each group, with the others
on tap to them, AND, also, forums in which all of these groups
are peers.*
For example, citizen deliberative councils empower citizens.
The other three groups and other experts may testify to the citizen
panel to ameliorate the citizens' ignorance. On the other hand,
government briefings tend to empower officials -- and the citizens
and stakeholders can ask questions and give input to clarify for
officials the political context in which they're working. Consensus
councils empower stakeholders -- and government officials and
citizens may show up only as stakeholders. An Open Space or World
Cafe can be designed so that all groups can participate as interested
equal parties.
However, we need to keep in mind that the ongoing effective
power is (in our current system) in the hands of the government
officials and that public participation programs are primarily
about giving citizens and stakeholders a greater and/or more deliberative
voice. So the primary balance of power we want may be between
the citizenry as a whole and the full spectrum of stakeholders.
F. ALL-STAGE ENGAGEMENT: In handling any social concern
we can consider five main points in the process where voices can
be heard, deliberations done, or power exerted:
· framing the issue (articulation, selection, analysis,
prioritization)
· establishing guidelines for addressing the problem (values,
principles, design criteria, etc.)
· creating, evaluating, and selecting options or solutions
· implementing selected solutions
· reviewing and evaluating the results
Ideally both the public and stakeholder groups would have a
deliberative say at each stage (and sub-stage, such as creating
AND evaluating AND selecting solutions). For efficiency, they
could share power -- as in the famous division of labor in which
Sandy cuts the pie and Martha chooses the first piece. For example,
priority community problems could be identified by a citizen-based
Wisdom Council. A Consensus Council could establish guidelines
for addressing the problem and offer a stakeholder-derived consensus
solution. This could be evaluated (and compared with other options)
by a Citizens Jury. Their findings and recommendations could be
worked over by an all-party Open Space Conference. Public officials
could then suggest what they think will work politically and an
AmericaSpeaks event could evaluate that. Etc.
_ _ _ _
Some other areas (among many) about which preliminary principles
could be developed:
a) Role of information: Under what circumstances is certain
information too little or too much or two biased or too left-brained
or.... and what are the consequences of and solutions to those
things... what is the role of the internet as a source of info
in public deliberation... how do we include official and unofficial
(or mainstream and alternative) info sources... etc.
b) The intrinsic value of small groups deliberating with privileged
information access, time and process facilitation AND broad participation
processes AND media coverage/broad public awareness. There should
be feedback loops between these three kinds of activity for maximum
community intelligence.
c) ......
_____________
* Experts are another important category
which could be included in this analysis. Many people in the four
categories explored here are themselves experts. However, outside
of the four categories above, experts are properly seen as sources
of information (on tap) rather than as legitimate active players
in decisionmaking. The fact that they, like corporate executives
and power brokers, sometimes make decisions that can affect the
lives of millions is a subject for another essay. For our purposes
here, their participation should be limited to supplying facts,
insight into relevant dynamics, and a sense of the possible consequences
of various options.
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