Public participation is a cornerstone of the UN climate goals – as societies reshape themselves in the face of climate change, it’s imperative that these transformations are responsive to the needs of everyone, and that means including everyone in the process of creating them. But what does good public participation really look like? Authentically widening the scope of participation can be challenging, especially for groups who are already excluded from decision making. At INTEGRATED, we’re researching ways that broad public participation can drive meaningful change in the climate space.
This happens at a wide range of levels. Sometimes it’s as simple as exchanging knowledge on climate issues or consulting citizen groups on policy decisions. Other times it involves putting citizens in the driver’s seat to lead climate action. In many cases, citizens not directly involved in policymaking institutions have valuable knowledge and perspectives that are crucial to efficient and just climate transitions, and organizations need to take active steps to make sure those voices are heard.
Many systems exist for classifying public participation, with the most famous being Arnstein’s Ladder, first published by Sherry Arnstein in 1969. The ladder describes sequential levels of participation, from the total exclusion or manipulation of citizens at the bottom, to limited forms of engagement like consultation in the middle, to true citizen power at the top. The relevance of different methods and the ways they interact depend on context – what follows are some examples of public participation in action in Jordan from INTEGRATED’s recent research.
Education
The most basic form of public engagement, and one commonly used by climate and environmental projects, is education. This involves raising general awareness of climate change and the human forces that drive it, particularly among groups that might be excluded from educational systems. An equally important component of education goes the other way, helping institutional actors recognize and understand forms of climate knowledge that sit outside the scientific mainstream.
In Jordan, a country on the front lines of climate-driven drought and desertification, this understanding takes many forms. Many people are already well-informed about climate issues – one 2022 survey from the European Investment Bank found 81% of respondents recognized the effects of human-caused climate change in their daily lives. But other research has found that there are significant generational gaps. In rural areas, older generations had a deep concern for changing weather patterns that they observed over the last few decades but were unfamiliar with the concept of global climate change. Effective climate education goes both ways, giving citizens the tools and vocabulary to express their concerns to institutions, and institutions the awareness to listen.
Consultation
When authorities make key decisions on climate projects, such as the development of water treatment plants or renewable energy infrastructure, it is imperative that they seek out and carefully consider the input of as many different citizen stakeholders as possible. This can come in the form of consultation workshops or meetings with key representative organizations, helping to ensure that projects are effective and equitable.
Consultations were a key part of Jordan’s 2022 Voluntary National Review, in which the Ministry of Planning and International Cooperation (MoPIC) met with diverse groups, including local governments, private industry, and civil society, to better understand how to meet its development goals, particularly in the climate sector. Getting a broad range of inputs is critical for effective policymaking but can also be challenging. Consultations might be passed over as too costly or time consuming, and it can be difficult to connect with groups that are not formally organized, despite them having valuable insights. One study, for example, reported that women in home-based caregiver roles had critical knowledge of household-level water usage, but lacked the formal modes to express it. These important insights into the effects of water policies then go on to be overlooked by institutions.
Enlisting Local Knowledge
Often, citizens who live their daily lives with the effects of climate change have the most relevant knowledge about how the environment is changing, and how to best to adapt. This knowledge may sit outside the scientific mainstream but should not be discounted by development projects aiming to address the same issues. Furthermore, many communities hold deep traditional knowledge of their environments, passed down through generations, which may hold the key to effective, locally relevant climate adaptations.
Jordan is rich in traditional knowledge that can inform environmental policy, from medicinal wild plants to ancient agricultural techniques. The climate pressures already facing many Jordanians are also driving grassroots innovation, such as the recently documented grazing preserves established by farmers in Northeast Jordan that foster biodiverse wild pasture for livestock within planted fields. These techniques offer locally adapted climate solutions but can be overlooked when local knowledge holders lack access to systems of power. It is incumbent on development organizations to start with local observations, knowledge, and priorities, and co-develop projects with citizen stakeholders.
Citizens as Drivers of Climate Action
The truest form of public participation occurs when citizens have the power to lead development initiatives themselves, directing resources to most effectively address urgent needs. Authentic collaboration at this level can be elusive – sometimes organizations aim to include citizen groups in decision making, but systemic barriers prevent citizens from taking on true leadership roles. When it does work, though, it creates enduring solutions that communities can sustain and benefit from long after project activities cease.
Calls for citizen climate action in Jordan are increasing, particularly among the younger generation. The Local Youth Climate Change Conference held in Amman last fall showcased this interest, highlighting young social entrepreneurs working in smart agriculture, solar energy, and recycling. As these projects garner more attention and support, it can be the starting point of a self-sustaining cycle where public engagement becomes the norm, empowering more people to employ their unique skills and expertise in locally led climate action.
