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EVALUATIOH OF PUBLIC PARTICIPATION

DEE

LEVEL

B

RIVER BASIN STUDY

Joan Wright

A s s o c i a t e P r o f e s s o r of Adult and Community C o l l e g e E d u c a t i o n North C a r o l i n a S t a t e U n i v e r s i t y

The r e s e a r c h on which t h i s p u b l i c a t i o n i s based was s u p p o r t e d i n p a r t by funds provided by t h e O f f i c e of Water R e s e a r c h and Technology, U.S. Department of t h e I n t e r i o r , Washington, D.C. t h r o u g h The U n i v e r s i t y of North C a r o l i n a Water Resources Research I n s t i t u t e a s a u t h o r i z e d by t h e Water Research and Development Act of 1978, w i t h matching funds provided by t h e

S t a t e of North C a r o l i n a .

P r o j e c t

No.

B-120-NC

(2)
(3)

Public participation is a non-formal adult learning activity man-

dated in many government-sponsored planning efforts. Although many

planners firmly believe that public participation is a good thing, few

are skilled in designing and conducting an effort appropriate for achiev-

ing intended outcomes. This is a study of the public participation

effort in a major river basin planning project, the Yadkin-Pee Dee Level

B River Basin Study.

Designed to determine the relative efficacy of particular techniques

of public involvement in promoting anticipated learning outcomes among

planners and publics, the study combined a series of 3 surveys with par-

ticipant dbservation and document analysis. Early in the river basin

study interviews were conducted with a) all planners involved in the

study; b) a sample of Citizen Advisory Committee members; and c) a

matched sample of non-member residents.

A

second wave of interviews was

held midway in the planning project. The final survey included three

samples: a) residents in a typical county (general public)

;

b) planning

staff; and c) persons targeted for participation and included on the

study mailing list. The first group was interviewed and the other two

received mailed self-administered questionnaires. Outcomes of interest

were the publics' and planners' understanding of role expectations; the

publics' awareness of the river basin study and the problems/solutions it

addressed; and planners' awareness of publics' concerns, interests, and

preferences.

Results of the study included: 1) Although more involvement was

associated with more learning on the part of the publics, no one tech-

nique was clearly superior to another;

2 )

Although the planners did not

develop an explicit rationale (means-ends statement) for the public

participation effort, they considered it successful because no serious

public objections were raised concerning the final plan; 3) The public

participation effort was shaped less by preconceived ideas of representa-

tiveness, desired outcomes, and means-ends relationships than by changing

demands and circumstances imposed by the nature of the planning project,

the sponsoring agency, and, to a lesser extent, the publics. Skills in

identifying, negotiating, and responding flexibly to these demands are

vital for public participation efforts. Illuminative evaluation is more

appropriate than goal-oriented in cases like this where both the ability

to conduct

a

stable program and the understanding of Likely outcomes is

uncertain,

(4)

This research could nat have been done without the full cooperation

of John Wray, chief planner in this Level

B Study from the North Carolina

Department of Natural Resources and Community Development; Tom Nelson,

the Study manager; and their staff who worked on the project. Particular

thanks are due to Reba Gettys Hill, public participation coordinator for

most of the Study, and Rosalyn Snyder, who served as coordinator in the

first phase of the Study and who has provided critical assistance in the

preparation of the final report. Members of the research team were Janis

Franklin, Linda Lange, and Richard Carpenter, with computer work done by

Azimi Hamzah. The staff of the Water Resources Research Institute were

very helpful in expediting the project, with special thanks to James

Stewart, Acting Director of the Institute. For their discussion of

public participation, water resources planning, and related topics in the

hours of driving to and from public meetings as well as in more struc-

tured interview settings, the Study staff have my sincere gratitude.

Finally, appreciation is expressed to each public participant who provid-

ed the data from which much of this report is constructed.

(5)

Page

1 . .

BSTBBCT...o...~11

Background

Infomation...4

The Development of North Carolina's Public Participation

Effoft...4

Before Study Approval

Early Stages of the Study

The Plan of Study

Public Participation

Events...,...l3

March 1979 CAC Meetings

Public Information Meetings

November 1979 CAC Meetings

Task Group Meetings

August 1980 and January 1981 CAC Meetings

Dissemination of Information to the

Public...19

Apparent Strategy of the Public Participation Effort...22

JUMI4 1979

SURVEY

OF CAC MMBBRS,

P

I

Background..

...

26

Methodology

...

26

Findings

...

26

Planners

Responsibilities of Planners and CAC Members

CAC Members and Residents

Conclusions

. . . p . . .

35

IV.

SPRIXG

1989 SU

OF PERSONS

DESI6aPATED

AS

TASK GROUP ABVISORS

FOR

YADKIMi-PEE

DEE

L B RIVER

W I N

S!WDY...,..43

Introduction

...

43

...

Methodology

44

Findings

...

46

Extent of Involvement

Grasp of the Study's Substance

Comments on Public Information Efforts

Readiness for Task Group Advisor Role

Conclusions

...

56

Interest Level

Knowledge Level

(6)

TABLg OF COafEATS

(continued)

Page

V.

-I!.&

GUBV$Y

OF RESIUEIOTS,

TARGET POPULATIOl9,

A1IID

FLAHHERS--WI#TISR

1980-'

81.

...

.58

Backgrou I I C I . . . , . . . 5 8

S t u d y of S t a n l y County R e s i d e n t s . . . , . . . , . . . , . . . 5 9

Met hod0

1

ogy F i n d i n g s

Summary Conclusions

Survey of P u b l i c P a r t i c i p a t i o n T a r g e t P o p u l a t i o n . .

...

.67

Met hod0

1

ogy

Respondent C h a r a c t e r i s t i c s

Nature and E x t e n t of Involvement Respondents' S a t i s f a c t i o n s

Respondents' C o s t s

D i f f i c u l t i e s A s s o c i a t e d w i t h P a r t i c i p a t i o n

~ e s p o n d e n t

s '

Comments Regarding C i t i z e n Advisory Committees P u b l i c F a m i l i a r i t y w i t h t h e L e v e l B Study

Summary

R e l a t i o n s h i p s Among V a r i a b l e s Summary

Conclusions

Survey of P l a n n e r s i n Yadkin-Pee Dee Study..

...

,88

Method01 ogy

P l a n n e r s

'

Involvement i n P u b l i c P a r t i c i p a t i o n P l a n n e r s ' S a t i s f a c t i o n w i t h P u b l i c P a r t i c i p a t i o n A t t i t u d e s Toward F u b l i c P a r t i c i p a t i o n

Opinions Regarding t h e Yad kin-Pee Dee Study L e a r n i n g f r m t h e Yadkin-Pee Dee S t u d y

C o n s t r a i n t s and Resources P e r c e i v e d by P l a n n e r s Summary

S u g g e s t i o n s f o r P u b l i c Involvement i n F u t u r e L e v e l B S t u d i e s i n North C a r o l i n a

Summary Conc l u s i o n s

VI.

COICLUBIOHS A1PI) lZgCO IONS . . . l o 3

P u b l i c P a r t i c i p a t ion a s a n E d u c a t i o n a l P r o c e s s . .

...

.I03

P l a n n e r s a s E d u c a t o r s

P l a n n e r s ' Involvement The C o o r d i n a t o r ' s Role E x t e n t o f L e a r n i n g

Role L e a r n i n g S k i 1

1

L e a r n i n g

(7)

VI

.

Continued

...

Page

...

Components of t h e P u b l i c P a r t i c i p a t i o n Program. 105 D i r e c t P u b l i c Involvement

Informat ion v s . Involvement Cost of D i r e c t Involvement I n d i r e c t P u b l i c Informat ion

Cost E f f e c t i v e n e s s

R e l a t i o n s h i p t o Pub1 i c Involvement S p e c i f i c Techniques

C i t i z e n Advisory Committees Task Group Advisors

The Study N e w s l e t t e r

Involvement of Local Government Of i c i a l s Recommendat ions

...

The U n c e r t a i n Nature of P u b l i c P a r t i c i p a t i o n . .

,109

S t r a t e g y f o r P u b l i c P a r t i c i p a t i o n C l e a r Sense of Purpose

Need f o r F l e x i b i l i t y

I n f l u e n c e s on P u b l i c P a r t i c i p a t i o n The P r o j e c t

The Agency The P u b l i c ( s ) Recanmendat ions

APPENDIX

A--Interview Schedules for June

1979

Survey of

CAC

Members, Planners,

a d

Basin

Residents...113

APPENDPII

B--Interview Schedules

for

Spring

1980

Survey

of Persons Deei ated

as

Task Group

Advisors...,,...,..,126

APPE1PI)XX

C--Instruments

for Final

Survey

of Residents,

T a q e t Popdatiarn, a d

Planners,

and Measurement

of

(8)

H H H H H H H H H H H H H H H H H H H H H H H H H H H H H H H H H H H H H

C C < C C C d H H H H H H H H

H H H H H H H H H H H H

I I I I

V,

4 m C n

I - m v . ' d . 'd

0 0 . 0 .

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= $ . w - ( - I .

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O m :

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v - 0 c

o m . 0 9 r(

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Elm 0

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' m

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N h) N

(9)

LIST

OF TABLES

(comt

Page

P l a c e s of employment of r e s p o n d e n t s and t h e i r s p o u s e s

( ~ ~ 2 0 2 )

...

60

...

Occupat i o n s of r e s p o n d e n t s and t h e i r s p o u s e s ( ~ ~ 2 0 2 ) 60

...

Respondents' r e s i d e n c e and f a m i l i a r i t y w i t h s t u d y . . 61

Source of i n f o r m a t i o n f o r r e s p o n d e n t s f a m i l i a r w i t h

...

s t u d y . by r e s i d e n c e 61 F a m i l i a r i t y w i t h s t u d y and o c c u p a t i o n s of r e s p o n d e n t s

...

( R ) and t h e i r spouses ( s ) 62 Sources of i n f o r m e t i o n f o r r e s p o n d e n t s f a m i l i a r w i t h

...

s t u d y . by o c c u p a t i o n 63 Respondents' d i s c u s s i o n of s t u d y . by p l a c e of

...

r e s i d e n c e 64 Respondents' d i s c u s s i o n of s t u d y . by employment s t a t u s

...

64

Respondents' d i s c u s s i o n of t h e s t u d y and o p i n i o n s a s

...

t o need f o r s t u d y 64 Respondents' d i s c u s s i o n of t h e s t u d y and t h e i r p e r c e p t i o n of consequences i f t h e s t u d y had n o t been c o d u c t e d

...

65

~ e s p o n d e n t s ' d i s c u s s i o n of t h e s t u d y and t h e i r awareness of problems t h e s t u d y a d d r e s s e d

...

65

Sub-basin l o c a t i o n of r e s p o n d e n t s ' r e s i d e n c e . .

...

69

~ e s p o n d e n t s ' o c c u p a t i o n s

...

.

.

.

.

...

70

Respondent a ' e d u c a t i o n a l background

...

7 0 Respondents' age

...**...

71

Respondents' family income l e v e l (1979)

...

71

Respondents' involvement i n t h e L e v e l B Study

...

71

Respondents' a t t e n d a n c e a t Yadkin-Pee Dee Study m e e t i = s

...

73

Respondents' i d e n t i f i c a t ion w i t h s p e c i a l i n t e r e s t s

...

74

Respondents' s e l £-reported a c t i v i t y l e v e l i n a s p e c t s o f Yadkin-Pee Dee S t u d y

...

74

Respondents' s a t i s f a c t i o n w i t h s e l e c t e d a s p e c t s of p u b l i c p a r t i c i p a t i o n i n Yadkin-Pee Dee Study.

...

76

C o s t s of p a r t i c i p a t i o n i n Yadkin-Pee Dee S t u d y

...

77

D i f f i c u l t i e s i n p a r t i c i p a t i n g i n t h e Yadkin-Pee Dee S t u d y

...

77

Things p l a n n e r s can do t o h e l p c i t i z e n s p a r t i c i p a t e

...

78

Q u a l i f i c a t i o n s CAC members s h o u l d have

...

79

A p p r o p r i a t e a c t i v i t i e s f o r CAC members

...

79

Respondents' p r e f e r e n c e f o r f r e q u e n c y of p u b l i c m e t i n g s

...

80

Respondents' o p i n i o n s a s t o most i m p o r t a n t problems addressed by t h e Level B S t u d y

...

81

Respondents' f a m i l i a r i t y w i t h a l t e r n a t i v e s o l u t i o n s

...

81

E x t e n t t o which s o l u t i o n s a r e l i k e l y t o cause problems

...

82

(10)

LIST OF

TABLES

(wt

l"

Page

S i g n i f i c a n t r e l a t i o n s h i p s among a s p e c t s of

...

p a r t i c i p a t i o n

84

S i g n i f i c a n t r e l a t i o n s h i p s between a s p e c t s of

p a r t i c i p a t i o n and o p i n i o n l l e a r n i n g v a r i a b l e s . .

...

.84

S i g n i f i c a n t r e l a t i o n s h i p s among o p i n i o n l l e a r n i n g

variables...,...,...85

Number of planners involved i n v a r i o u s a s p e c t s of p u b l i c p a r t i c i p a t i o n i n t h e Yadkin-Pee Dee Level B

S t u d y

...

89

Number of planners who had e x p e r i e n c e i n v a r i o u s

a s p e c t s of p u b l i c p a r t i c i p a t i o n . .

...

.90

Extent of p l a n n e r s ' involvement i n t h e Yadkin-Pee Dee

pub l i c p a r t i c i p a t ion ef f o r t and number of a c t i v i t i e s

i n which they p a r t i c i p a t e . .

...

.90

Extent of p l a n n e r s ' experience i n o t h e r p u b l i c

p a r t i c i p a t i o n e f f o r t s and number of o t h e r a c t i v i t i e s

i n which t h e y had p a r t i c i p a t e d . .

...

.91

S a t i s f a c t i o n w i t h Yadkin-Pee Dee p u b l i c involvement

efforts,...,...,.,....,...91

P e r c e p t i o n s of water r e s o u r c e p l a n n e r s ' a t t i t u d e s r e p u b l i c

involvement....,...,...93

planners

'

o p i n i o n s about t h e Yadkin-Pee Dee Study,

...

- 9 6

P r o p o r t i o n of t o t a l Level B r e s o u r c e s t h a t should be

...

a1 l o c a t e d t o p u b l i c p a r t i c i p a t i o n . .

.97

Maximum proport ion of t o t a l s t a f f time t h a t should be

...

devoted t o p u b l i c p a r t i c i p a t i o n . .

.97

Most important opinion sources d i r e c t l y involved i n a

Level

B

Study

...

98

Most important opinion sources i n d i r e c t l y involved i n

...

a Level

B

Study

98

Whose s k i l l i s most important t o p u b l i c involvement

effectiveness?...,...,...99

(11)

Page

1

.

Map of t h e Yadkin-Pee Dee R i v e r Basin

...

5

2

.

O r g a n i z a t i o n of t h e Yadkin-Pee Dee River Basin Study.

...

6

3

.

Task Groups i n t h e Yadkim-Pee Dee Study

...

7

...

4

.

Study Phases and t h e Schedule of P u b l i c Meetings 1 2

5

.

Chronology of Events i n t h e Yadkin-Pee Dee Level B Study

...

14

6

.

S c a t t e r Diagram of P l a n n e r s

'

S a t

i s

f a c t i o n and Involvement

(12)

L e g i s l a t i o n t h a t c a l l s f o r v a r i o u s l e v e l s of government t o conduct w a t e r r e s o u r c e s planning g e n e r a l l y r e q u i r e s t h a t such planning i n c l u d e a p u b l i c p a r t i c i p a t i o n component. Presumably, a f f o r d i n g t h e p u b l i c an o p p o r t u n i t y f o r o v e r s i g h t of planning a c t i v i t i e s i s a means of e n s u r i n g t h a t p l a n n e r s do indeed determine and p r o t e c t t h e p u b l i c s ' i n t e r e s t s .

P u b l i c p a r t i c i p a t i o n , however, need not be c o n s i d e r e d as

a

quasi- a d v e r s a r i a l a c t i v i t y i n which p u b l i c s ( r e l a t i v e l y powerless, i n e x p e r t , and unorganized) attempt t o keep t h e p l a n n e r s ( i n f u l l a u t h o r i t y by d i n t of o f f i c e , e x p e r t i s e , and c o n t r o l of r e s o u r c e s ) h o n e s t . An a l t e r n a t i v e view, and one t h a t i s consonant with much of t h e language of p l a n n i n g

l e g i s l a t i o n , i s of p u b l i c p a r t i c i p a t i o n a s an e d u c a t i v e a c t i v i t y . From t h i s p e r s p e c t i v e t h e f u n c t i o n of p u b l i c p a r t i c i p a t i o n i s t o ensure t h a t p l a n n e r s l e a r n which p u b l i c s have i n t e r e s t s i n water r e s o u r c e s , what t h o s e i n t e r e s t s a r e , how t h o s s i n t e r e s t s a r e perceived t o be jeopardized o r p r o t e c t e d , and what c h o i c e s t h e p u b l i c s p r e f e r when i n t e r e s t s con-

f l i c t . A t t h e same time t h e p u b l i c s l e a r n ( i f they a r e not a l r e a d y aware) t h a t t h e i r i n t e r e s t s a r e a t s t a k e i n d e c i s i o n s about water

r e s o u r c e s . They must l e a r n , i f they a r e t o express informed p r e f e r e n c e s , what t h o s e i n t e r e s t s a r e and how they c o n f l i c t . Furthermore, t h e y must

l e a r n how t h e planning process i s organized and how t h e y may p a r t i c i p a t e e f f e c t i v e l y .

The r e s e a r c h d e s c r i b e d i n t h i s r e p o r t was undertaken from t h i s p e r s p e c t i v e . It was a c a s e s t u d y of t h e North C a r o l i n a p u b l i c p a r t i c i p a - t i o n e f f o r t i n t h e Yadkin-Pee Dee Level B R i v e r Basin Study, Using

o b s e r v a t i o n , document a n a l y s i s , and a s e r i e s of surveys of v a r i o u s groups of p u b l i c s and p l a n n e r s , t h e r e s e a r c h addressed t h e following q u e s t ions:

Is i t a p p r o p r i a t e and u s e f u l t o view public p a r t i c i p a t i o n i n planning a s an e d u c a t i o n a l p r o c e s s ?

What were t h e components of t h e p u b l i c p a r t i c i p a t i o n e f f o r t , and what r e l a t i o n s h i p s were found between them and evidences of

l e a r n i n g ?

What shaped t h e p u b l i c p a r t i c i p a t i o n e f f o r t i n t h e Yadkin-Pee Dee Study?

What problems and i s s u e s were encountered i n t h i s p u b l i c p a r t i c i - p a t i o n e f f o r t ?

Pub1 i c P a r t i c i p a t i o n a s an E d u c a t i o n a l Process

Public participation i n planning is seen

by both planners and parti-

cipanta a s

an

educational experience for

the

public.

(13)

P e r s o n s who had p a r t i c i p a t e d i n t h e Yadkin-Pee Dee Study had been more involved i n l e a r n i n g about t h e Study ( e . g . t h r o u g h r e a d i n g Study m a t e r i a l s ) t h a n i n informing p l a n n e r s of p u b l i c p r e f e r e n c e s . The s i n g l e most i m p o r t a n t t h i n g t h a t r e s p o n d e n t s f e l t p l a n n e r s could do t o h e l p

c i t i z e n s p a r t i c i p a t e i n f u t u r e w a t e r r e s o u r c e p l a n n i n g was t o b e t t e r e d u c a t e t h e p u b l i c .

P l a n n e r s c l e a r l y c o n s i d e r e d t h e m s e l v e s a s e d u c a t o r s of t h e p u b l i c , and b e l i e v e d t h e y should make t h e i r work u n d e r s t a n d a b l e and i n t e r e s t i n g

t o t h e p u b l i c . Almost a l l b e l i e v e d t h a t t h e p u b l i c p a r t i c i p a t i o n compo- n e n t was s u f f i c i e n t l y i m p o r t a n t t h a t i t should and would be i n c l u d e d i n p l a n n i n g s t u d i e s even i f not r e q u i r e d . Most were w i l l i n g t o i n v e s t a t l e a s t 10 p e r c e n t of t h e i r time t o c o n t a c t w i t h t h e p u b l i c which, t h e y b e l i e v e d , should be f r e q u e n t enough so t h a t t h e p u b l i c could become w e l l -

informed and c a p a b l e of p r o v i d i n g u s e f u l o p i n i o n s about s t u d y i s s u e s . Without b e i n g educated about t h e c o n t e n t o f p l a n n i n g , t h e p u b l i c s ' i d e a s were n o t , a p p a r e n t l y , c o n s i d e r e d t o be v a l i d . Becoming e d u c a t e d about w a t e r r e s o u r c e s p l a n n i n g was seen t o be l a r g e l y t h e r e s p o n s i b i l i t y of t h e p u b l i c s , w i t h t h e p l a n n e r s p l a y i n g a f a c i l i t a t i v e r o l e .

Although p l a n n e r s i n d i c a t e d t h a t i t was d e s i r a b l e t o have p u b l i c o p i n i o n t o inform t h e i r work a t v a r i o u s p o i n t s i n t h e S t u d y , t h e y d i d n o t

appear t o have a c l e a r i d e a of what t h e y wanted t o l e a r n from t h e p u b l i c s o r how b e s t t o go about i t . The e d u c a t i v e n a t u r e of p u b l i c p a r t i c i p a t i o n was s e e n p r i m a r i l y a s a m a t t e r of t h e p u b l i c s l e a r n i n g what p l a n n e r s f e l t t h e y should know.

T e c h n i c a l a s p e c t s of w a t e r r e s o u r c e p l a n n i n g ( i n c l u d i n g problems, s o l u t i o n s , and t r a d e o f f s i n v o l v e d ) were s e e n a s t h e major c o n t e n t of l e a r n i n g f o r t h e p u b l i c . Both t h e p u b l i c s and p l a n n e r s needed t o l e a r n what was expected of them i n t h e v a r i o u s a s p e c t s o f p u b l i c p a r t i c i p a t i o n , and how t o f u l f i l l t h o s e e x p e c t a t i o n s e f f e c t i v e l y . P l a n n e r s i n f a c t g a i n e d s k i l l i n communicating w i t h t h e p u b l i c and h a n d l i n g o t h e r a s p e c t s of i n t e r a c t ion i n t h e p u b l i c p a r t i c i p a t i o n e f f o r t . There was room f o r improvement of b o t h t e c h n i c a l l e a r n i n g and r o l e l e a r n i n g 2n t h e Yadkin- Pee Dee Study.

Recommend a t io n s

1. A c a r e f u l d e f i n i t i o n of t h e p u b l i c i n p u t s t h a t a r e needed and u s e f u l a t each s t a g e of a p l a n n i n g s t u d y would be d e s i r a b l e . T h i s would g u i d e t h e p l a n n e r s ' e f f o r t s b o t h a s e d u c a t o r s and a s l e a r n e r s . It would a l s o p r o v i d e c l e a r e r d i r e c t i o n t o t h e p u b l i c f o r t h e i r involvement.

2.

Another k i n d of l e a r n i n g c o n t e n t t h a t should be c a r e f u l l y d e f i n e d i s t h a t people a r e expected t o do a s p l a n n e r s , a s p a r t i c i p a n t s i n a meeting, a s CAC members, and i n any o t h e r r o l e s t h a t a r e a p a r t o f t h e p u b l i c p a r t i c i p a t i o n e f f o r t .

(14)

3. Once defined, attention should be given to educating people to

what these expectations are and how to carry them out well.

4.

Skills training should be provided for the planning staff in

making presentations, handling discussion, working with groups,

designing a variety of ways for gathering information, and other

aspects of public participation.

5 .

The public participation coordinator should be selected in large

part on the basis of ability in these skill areas; continuing

opportunity for skill development is also important.

The Effect of Public Participation Components on Learning

The greater the direct involvement of participant@, the aore

ratirfied they were with the public participation effort and the mere

knoaledgeable about the Study itself. The type of invdlvemnt (attending

Citizen Advisery C d t t e e meetings, reviewing planning dcd~mEent8,

attending

Tark Gioap meetings, etc.) did net seem t~ makc much difference

to learning or eatisfattion,

but

the acclmatlation sf involvclssnt did.

The indirect pmblic iaformatioa

program

is a relatively effective

way

of creating awareness ~f a water rerourcer plaaning project if it ie

conducted ar an wtenrisn of and complement to a direct public

involvement effart.

The direct involvement events were much more expensive than the

indirect public information effort due in large part to the time of

planners spent in attending public meetings. Without the events,

however, it is doubtful that press coverage would have been so extensive,

or that issues would have been raised to spark citizen interest in the

Study. The two components are complementary, with awareness generated by

the news media (mostly newspapers) and knowledge advanced by the direct

involvement of publics.

In the Yadkin-Pee Dee Study Citizen Advisory Committees were not

involved in a way that justified the extra expense their designation

entailed. Any interested citizen could attend meetings, offer advice,

receive materials, and discuss the Study with planners. Similarly, many

persons with interest and expertise in a particular Study focus made

their ideas known to Task Group leaders without being formally designated

as Task Group Advisors,

Recommendations

1. It is recommended that the public participation effort in future

planning projects provide more frequent but less expensive

opportunities for involvement. Instead of having one relatively

(15)

formal meeting during each phase of a s t u d y , more informal commu- n i c a t i o n between i n d i v i d u a l p l a n n e r s and p u b l i c s should be

arranged throughout t h e p r o j e c t . It would r e q u i r e l e s s s t a f f time (and l e s s expense) and provide more o p p o r t u n i t y f o r informa- t i o n s h a r i n g i n both d i r e c t i o n s t o hold more f r e q u e n t and more focused meetings with l o c a l government o f f i c i a l s and r e p r e s e n t a - t i v e s of s p e c i a l i n t e r e s t groups.

The p r e s s u r e on p l a n n e r s t o be prepared f o r i n t e r a c t i o n w i t h t h e p u b l i c i s probably u s e f u l t o t h e p r o j e c t i n t h a t it emphasizes t h e importance of c l a r i t y , focus, and t i m e l i n e s s . Few of t h e p l a n n e r s i n t h i s Study demonstrated an e l i t i s t a t t i t u d e toward t h e p u b l i c . T h e i r work was undoubtedly slowed by t h e e x p e c t a t i o n t h a t each p u b l i c event was a major production i n s t e a d of an on- going kind of i n t e r a c t i o n , y e t few f e l t t h a t t h e p u b l i c p a r t i c i - p a t i o n e f f o r t was a waste of time. With g r e a t e r i n t e g r a t i o n of p u b l i c involvement i n t o t h e a c t i v i t i e s of each Task Group, t h e r e might be l e s s p e r c e p t i o n of work stoppage f o r an event and more

of b u s i n e s s as u s u a l .

P r e s e n t i n g t h e r e s u l t s of planning d e l i b e r a t i o n s a t t h e end o f each planning phase may h e l p t o c a p t u r e t h e a t t e n t i o n of t h e g e n e r a l p u b l i c . These r e p o r t s e s s i o n s would not r e q u i r e an

e x t e n s i v e (and expensive) s t a f f presence i f adequate a t t e n t i o n is given i n advance t o p r e p a r i n g c l e a r and b r i e f s u m a r i e s i n p r i n t and audio-visual media.

C a r e f u l a t t e n t i o n should be given t o i n t e g r a t i o n of i n d i r e c t e f f o r t s a t informing t h e g e n e r a l p u b l i c ( e . g . news r e l e a s e s , b r o c h u r e s , and f e a t u r e b r o a d c a s t s ) w i t h d i r e c t e f f o r t s t o i n v o l v e s p e c i f i c and g e n e r a l p u b l i c s ( e . g . committee meetings, workshops, p u b l i c i t y - g a i n i n g e v e n t s ) . This o r c h e s t r a t i o n should enhance t h e e f f e c t i v e n e s s of both e f f o r t s , and i n c r e a s e t h e k n o w l e d g e a b i l i t y of t h e g e n e r a l p u b l i c a s w e l l as t h e i r awareness.

I n s t e a d of a v o i d i n g o v e r t c o n t r o v e r s y by o b s c u r i n g m a t t e r s a t i s s u e i n t h e t e c h n i c a l terminology of l e n g t h y w r i t t e n r e p o r t s , i s s u e s should c o n s c i o u s l y be used t o g e n e r a t e i n t e r e s t , inform t h e p u b l i c of t h e i n e v i t a b l e t r a d e o f f s involved i n water

r e s o u r c e s p l a n n i n g , and focus p u b l i c i n p u t t o f i t p l a n n e r s ' "need t o know". The acknowledgement of c o n f l i c t i n g p o i n t s of view does not n e c e s s a r i l y lead t o unwanted and premature p o l a r i z a t i o n of o p i n i o n . Openness i n i d e n t i f y i n g and d i s c u s s i n g i s s u e s may, i n

f a c t , prevent t h e development of o p i n i o n s based on mis i n f o r m a t i o n o r l a c k of u n d e r s t a n d i n g .

(16)

a s s i s t a n c e t o l o c a l r e s i d e n t s i n e s t a b l i s h i n g such groups where t h e r e i s i n t e r e s t , t h e t a s k of m a i n t a i n i n g t h e groups would remain w i t h t h e i r members. The c o o r d i n a t o r might be involved i n a r r a n g i n g t o have planning s t a f f speak t o t h e groups when i n v i t e d and suggesting o t h e r r e s o u r c e people.

5.

I f an appointed a d v i s o r y committee is considered t o be p o l i t i - c a l l y d e s i r a b l e by t h e planning agency, t h e f u n c t i o n of t h a t committee should be t o o f f e r advice and a s s i s t a n c e on t h e p u b l i c p a r t i c i p a t i o n e f f o r t , and not t o attempt t o speak f o r a l l p u b l i c s i n r e g a r d to t h e planning p r o j e c t . P u b l i c i z i n g and a r r a n g i n g f o r e v e n t s , c o n t a c t i n g i n t e r e s t groups and l o c a l o f f i c i a l s , d i s t r i b - u t i n g m a t e r i a l s about t h e p r o j e c t , and s u g g e s t i n g ways i n which t o e d u c a t e and be educated by t h e p u b l i c a r e some of t h e t a s k s t h a t an advisory committee t o t h e p u b l i c p a r t i c i p a t i o n coordina- t o r might perform. This does not preclude t h e involvement of committee members i n t h e planning p r o j e c t ; i t may, i n f a c t , i n c r e a s e t h e i r i n t e r e s t and k n o w l e d g e a b i l i t y about t h e p r o j e c t

,

g i v i n g them purpose as w e l l as s t a t u s .

I n f l u e n c e s on t h e P u b l i c P a r t i c i p a t i o n E f f o r t

In

the Yaden-Pee Dee River Basin Study the two most potent inflaz-

ences

on

the lehape of the public participation effort appeared to be

1)

the nature of the planning project i t s e l f , and

2)

the s t a f f

a d

direc-

t i v e s of the l e

elnssy.

A

third potential ssurce of influence-

the p b l i e - w a s very umch interested i n the deaign of the public partici-

pation e f f o r t , bat was c~)nsafted

very l i t t l e regarding the actual shape

of the

program.

The scope of a Level B Study i n c l u d e s a whole r i v e r b a s i n , and i t s f o c u s i s o n l y g e n e r a l l y defined by t h e study proposal. Background i n f o r - mation on t h i s broad and complex a r e a could not be assembled i n d e t a i l u n t i l t h e major focus a r e a s of t h e Study had been s e l e c t e d . The work r e q u i r e d f o r each Task Group focus depended on t h e n a t u r e and complexity of t h a t focus. Uniform o p e r a t i o n s f o r Task Groups were not f e a s i b l e , and r a t e of p r o g r e s s through t h e phases of p l a n n i n g was d i f f i c u l t t o p r e d i c t i n advance. With t h e s e k i n d s of u n c e r t a i n t y a r i s i n g from t h e p r o j e c t i t s e l f , i t was d i f f i c u l t ( i f not i m p o s s i b l e ) t o d e s i g n t h e p u b l i c p a r t i - c i p a t i o n e f f o r t much i n advance of t h e planning e f f o r t and keep i t r e l a t e d t o each planning phase as t h a t phase developed.

The p u b l i c p a r t i c i p a t i o n c o o r d i n a t o r was l o c a t e d i n t h e lead s t a t e agency, allowing t h a t person easy a c c e s s t o t h e p l a n n e r s working on t h e Study, and t o d e l i b e r a t i o n s a f f e c t i n g t h e p r o g r e s s of t h e Study. A t t h e same time i t o f f e r e d t h e p u b l i c p a r t i c i p a t i o n e f f o r t no i n s u l a t i o n from t h e b u r e a u c r a t i c environment. Gaining c r e d i b i l i t y with and support from t h e t e c h n i c a l l y - o r i e n t e d planning s t a f f and p o l i t i c a l l y - o r i e n t e d adminis- t r a t o r s consumed a g r e a t d e a l of t h e c o o r d i n a t o r ' s time.

On

s e v e r a l

(17)

occasions plans for the public participation effort were changed to

accommodate agency concerns (largely political).

There was little early attempt by the Study staff to seek input from

the public about the public participation effort, although unsolicited

input from the public did influence the shape of the effort. Feedback

was solicited from persons attending public meetings in the latter half

of the Study, and

CAC

members were recruited to assist in hosting some of

the public meetings. The public participation effort, however, was not

conceived as an effort to organize volunteers, or as a conurmnity develop-

ment effort warranting the guidance of an advisory group.

Recommendations

1.

One of the most important tasks of the public participation coor-

dinator is to identify, prior to planning the public participa-

tion effort, the expectations of project, agency, and publics

'

regarding that effort. Presumably expectations will vary within

and between these sources of influence. Possibly one or more of

these sources may not have formed expectations for public parti-

cipation at the beginning of the project, but will do so during

the planning effort. The coordinator will need to continue moni-

toring expectations throughout the Study in order to keep the

public participation effort in line with expectations whenever

possible. (1t is also highly desirable to be able to keep the

same coordinator throughout the Study for continuity of effort

and direction.

)

2.

A

clear and detailed statement of the purposes of public partici-

pation should be developed as early as possible. This would

necessitate discussion and negotiation of differences in expecta-

tions among significant influence sources. Such negotiation

would not only build support for the resulting program purposes,

but would also set a pattern for constructive discussion when the

substance of planning was being considered.

3.

The importance of political influence on

the

planning study, and

particularly on the public participation effort, should be recog-

nized. If the Study is especially vulnerable to political pres-

sure, the appointment of a formal advisory committee to the

public participation effort which would assume responsibility for

gathering input from the publics may be very useful. This would,

in effect, reduce the agency's liability to charges of inade-

quately or inaccurately identifying interests and concerns of

publics that may be affected by planning recommendations.

4.

Because the focus of the public participation effort can only be

as sharp as that of the planning project, it is essential that

the planning project have a clear and widely accepted purpose.

If it is to merit participation by the public, every planning

project should have a purpose that merits public investment.

(18)

Problems and I s s u e s Encountered i n t h e P u b l i c P a r t i c i p a t i o n E f f o r t

1.

Unplanned i n f l u e n c e s : A c o n t i n u i n g problem faced by t h e p u b l i c p a r t i c i p a t i o n c o o r d i n a t o r i n t h e Yadkin-Pee Dee Level B Study was t h e need t o a l t e r p l a n s f o r p u b l i c p a r t i c i p a t i o n t o accommodate changes i n p l a n n e r s

'

work and a d m i n i s t r a t o r s

'

c o n c e r n s . The p u b l i c p a r t i c i p a t i o n program i n t h e Yadkin-Pee Dee R i v e r B a s i n Study was n o t g u i d e d by a c l e a r c o n s e n s u s a s t o t h e purposes i t should s e r v e o t h e r t h a n t o meet t h e

r e q u i r e m e n t f o r p u b l i c involvement. While members of t h e p l a n n i n g s t a f f d i d have preconceived i d e a s a s t o t h e n a t u r e and t h r u s t of t h e e f f o r t a t t h e b e g i n n i n g of t h e Study, t h e s e i d e a s v a r i e d from one person t o a n o t h e r and were l i t t l e concerned w i t h t h e f u n c t i o n s t o be performed o r r a t i o n a l e f o r t h e i d e a s . A c l e a r d e f i n i t ion of purpose would have been i n v a l u a b l e t o persons r e s p o n s i b l e f o r t h e p u b l i c p a r t i c i p a t i o n e f f o r t , even though t h a t p u r p o s e might have been c o n s c i o u s l y a l t e r e d d u r i n g t h e p l a n n i n g p r o j e c t . Given t h e ambiguous and f l u i d n a t u r e of t h e Level

B

Study it-

s e l f , r i g i d adherence t o a d e t a i l e d p l a n of o p e r a t i o n s would n o t o n l y have been u n r e a l i s t i c , but a l s o i n a p p r o p r i a t e . The a b i l i t y t o a d a p t t e c h n i q u e s was a p o s i t i v e a s p e c t of t h e p u b l i c p a r t i c i p a t i o n e f f o r t , I n t h e a b s e n c e of a c l e a r and d e t a i l e d s t a t e m e n t of t h e p u r p o s e ( s ) p u b l i c p a r t i c i p a t i o n was t o s e r v e i n t h e Yadkin-Pee Dee Study, however, t h e r e were few s p e c i f i c a t i o n s f o r t h e e f f o r t o t h e r t h a n t h e c o n s t r a i n t s imposed by t h e agency and t h e p r o j e c t . Under t h e s e c i r c u m s t a n c e s t h e c o o r d i n a t o r was n e c e s s a r i l y concerned more w i t h what was p o s s i b l e t h a n w i t h what might be o p t i m a l l y ef f e c t i v e

.

2 . C o n s t i t u e n c y development: One i s s u e was t h e d e s i r a b i l i t y and f e a s i b i l i t y of developing a formal c i t i z e n ' c o n s t i t u e n c y ' f o r t h e L e v e l

-

-

B

Study. 1 n - t h e e a r l y s t a g e s of Study p l a n n i n g it was decided t o a p p o i n t C i t i z e n Advisory Committees t o t h e S t u d y , one i n each of t h e t h r e e North C a r o l i n a sub-basin a r e a s . Almost a l l m e e t i n g s of t h e C A C ' s , however, were designed and prcmoted a s p u b l i c meetings--events a t which any i n t e r - e s t e d c i t i z e n was welcome t o l i s t e n and comment. Although CAC members r o u t i n e l y r e c e i v e d a1 1 S t u d y m a t e r i a l s g e n e r a t e d f o r p u b l i c i n f o r m a t i o n and r e v i e w , any person c o u l d r e q u e s t m a t e r i a l s o r ask t o be i n c l u d e d on t h e m a i l i n g l i s t . There was no o t h e r s p e c i a l b r i e f i n g o r o p p o r t u n i t y f o r CAC members t o e x p r e s s o p i n i o n s t h a t was n o t a l s o o f f e r e d t o any i n t e r - e s t e d r e s i d e n t . I n f a c t , a t s e v e r a l m e e t i n g s non-CAC members usurped most of t h e t i m e a v a i l a b l e w i t h s i n g l e - i s s u e monologues and r e q u e s t s f o r e x p l a n a t i o n of e a r l i e r S t u d y p h a s e s .

The o f f i c i a l d e s i g n a t i o n of CAC, members d i d o c c a s i o n e x t r a work and some s p e c i a l d i f f i c u l t i e s f o r t h e p u b l i c p a r t i c i p a t i o n e f f o r t . T a r g e t d a t e s were announced f o r subsequent m e e t i n g s a t each p u b l i c m e e t i n g , n e c e s s i t a t i n g e x t r a m a i l i n g s t o announce, c a n c e l , and r e s c h e d u l e t h o s e

d a t e s . I f t h e r e had been $0 cAC'S and a l l e v e n t s were p u b l i c m e e t i n g s ,

(19)

as to the intent of the Study in appointing CAC's that had no special

treatment or responsibility.

3.

Representation: Related to pragmatic concerns regarding the

designation of a project constituency is the issue of representation, or

whose interests should be represented in the public's side of the

involvement effort. Much of the concern regarding who should participate

in the Yadkin-Pee Dee Study can be attributed to uncertainty as to whose

interests were or might be at stake.

In the absence

of

a sharply

delineated project or irome a

e

object of planmring,

and given the

crtainty as to

t

cte

of a

Level B Study, it

may

indeed be

sonclble to rely

on local elected officials to represent all

petential interest$.

It does not seem necessary, however, to create a

formal advisory committee just to secure a member from each unit of local

government. Invitations to meetings may be sent as a matter of course to

all units of government in the planning area. More important in identi-

fying the concerns of local citizens through their elected and appointed

representatives is holding informal conversations with individual legis-

lators, or securing an invitation to meet with them in informal session

at their convenience.

Potential CAC members for the Yadkin-Pee Dee Study were identified

by asking existing interest groups (e.g. Sierra Club, League of Women

Voters, Community Development and Economic Development Councils, Chamber

of Commerce), industries, and agencies to nominate persons for appoint-

ment. As with local government, there is considerable turnover among

interest group members, and often more than one person was informed and

interested regarding the Study. Continuing information about Study

progress and events to known interest groups, as well as to specific

individuals, might have increased the likelihood that no publics' inter-

ests were overlooked during the Study's conduct.

4.

Evaluation of public participation: Public participation is a

phenomenon in which there are multiple stakeholders. What one stakehold-

er values about public participation may bear little resemblance to what

good public participation looks Pike to another. The search for 'what

good looks like' early in this research revealed little consensus within

the literature, among planners, among participants, or between planners

and publics. At the conclusion of the Yadkin-Pee Dee Study, however,

several important criteria emerged.

One criterion was that of feasibility--and in this Study, feasibili-

ty meant flexibility, ability to adjust to changing rules and resources.

The fact that a visible public information and involvement effort had not

only survived over the life of the Study, but had made obvious attempts

to encourage public inputs, earned positive comment from

10

or more

experienced participants.

In reflecting on the Study after the Recommended Plan had been sent

to the federal government, several Study officials informally declared

(20)
(21)

One of t h e b a s i c r e s o u r c e s e s s e n t i a l t o mankind i s w a t e r . The na- t u r e and e x t e n t of o u r w a t e r r e s o u r c e s a r e so i m p o r t a n t t o t h e q u a l i t y of l i f e - - i n d e e d , t o t h e s u s t a i n m e n t of l i f e - - t h a t t h e i r p r o t e c t i o n has long s i n c e became a m a t t e r of p u b l i c c o n c e r n . One form of t h i s concern i n t h e U n i t e d S t a t e s i s l e g i s l a t i o n which c a l l s f o r a r a t i o n a l p l a n n i n g approach t o "encourage t h e c o n s e r v a t i o n , development, and u s e of w a t e r and r e l a t e d land r e s o u r c e s . . . o n a comprehensive and c o o r d i n a t e d b a s i s by a l l l e v e l s of government and p r i v a t e i n t e r e s t s " ( u n i v e r s i t i e s ' Council on Water R e s o u r c e s , 1976, p. 320).

P l a n n i n g f o r our w a t e r r e s o u r c e s o f f e r s m u l t i p l e o p t i o n s f o r c o n s i d - e r a t i o n . These r e s o u r c e s c a n , f o r example, be p r o t e c t e d o r p o l l u t e d ; d i s t r i b u t e d o r w i t h h e l d ; used o r consumed; developed o r i g n o r e d . While d e c i s i o n s of t h i s s o r t a r e u n q u e s t i o n a b l y a m a t t e r of p u b l i c i n t e r e s t , t h e n a t u r e of t h e p u b l i c i n t e r e s t , o r of t h e m u l t i p l e p u b l i c and p r i v a t e i n t e r e s t s i n v o l v e d , i s f a r from c l e a r .

The r e s p o n s i b i l i t y of p l a n n e r s i n t h i s r e g a r d i s s u b s t a n t i a l . It i s n o t enough t h a t t h e y be t e c h n i c a l l y e x p e r t ; t h e y must a l s o be p o l i t i c a l l y s e n s i t i v e , a l e r t t o t h e i n t e r e s t s and p o t e n t i a l i n t e r e s t s of t h e v a r i o p s p u b l i c s a f f e c t e d by p l a n n i n g recommendat i o n s . P l a n n i n g conducted on b e h a l f of t h e p u b l i c i s u l t i m a t e l y r e s p o n s i b l e f o r d e t e r m i n i n g and pro- t e c t i n g t h e w a t e r r e s o u r c e s i n t e r e s t s of t h a t p u b l i c .

L e g i s l a t i o n t h a t c a l l s f o r v a r i o u s l e v e l s of government t o conduct w a t e r r e s o u r c e s ~ l a n n i n g g e n e r a l l y r e q u i r e s t h a t such p l a n n i n g i n c l u d e a p u b l i c p a r t i c i p a t i o n component. Presumably, a f f o r d i n g t h e p u b l i c an o p p o r t u n i t y f o r o v e r s i g h t of p l a n n i n g a c t i v i t i e s i s a means of e n s u r i n g t h a t p l a n n e r s do indeed d e t e r m i n e and p r o t e c t t h e p u b l i c s ' i n t e r e s t s .

P u b l i c p a r t i c i p a t i o n , however, need not be c o n s i d e r e d a s a q u a s i - a d v e r s a r i a l a c t i v i t y i n which t h e p u b l i c ( r e l a t i v e l y p o w e r l e s s , i n e x p e r t , and u n o r g a n i z e d ) a t t e m p t s t o keep t h e p l a n n e r s ( i n f u l l a u t h o r i t y by d i n t of o f f i c e , e x p e r t i s e , and c o n t r o l of r e s o u r c e s ) h o n e s t . An a l t e r n a t i v e view, and one t h a t i s . c o n s o n a n t w i t h much of t h e language of p l a n n i n g

l e g i s l a t i o n , i s of p u b l i c p a r t i c i p a t i o n as an e d u c a t i v e a c t i v i t y . From t h i s p e r s p e c t i v e t h e f u n c t i o n of p u b l i c p a r t i c i p a t i o n i s t o e n s u r e t h a t p l a n n e r s l e a r n which p u b l i c s have i n t e r e s t s i n w a t e r r e s o u r c e s , what t h o s e i n t e r e s t s a r e , how t h o s e i n t e r e s t s a r e p e r c e i v e d t o be j e o p a r d i z e d o r p r o t e c t e d , and what c h o i c e s t h e p u b l i c s p r e f e r when i n t e r e s t s con-

f l i c t . A t t h e same time t h e p u b l i c s l e a r n ( i f t h e y a r e not a l r e a d y aware) t h a t t h e i r i n t e r e s t s a r e a t s t a k e i n d e c i s i o n s about w a t e r

r e s o u r c e s , They must l e a r n , i f t h e y a r e t o e x p r e s s informed p r e f e r e n c e s , what t h o s e i n t e r e s t s a r e and how t h e y c o n f l i c t . F u r t h e r m o r e , t h e y must

l e a r n how t h e p l a n n i n g p r o c e s s i s organized and how t h e y may p a r t i c i p a t e e f f e c t i v e l y .

(22)

p e r s p e c t i v e . It

i s

an e v a l u a t i o n of t h e p u b l i c p a r t i c i p a t i o n e f f o r t of a major w a t e r r e s o u r c e s p l a n n i n g s t u d y , i n which an e s s e n t i a l outcome

i s

presumed t o be l e a r n i n g . It i s d e s c r i p t i v e , c o v e r i n g t h e i n t e n d e d n a t u r e of p u b l i c p a r t i c i p a t i o n and t h e a c t i v i t i e s a c t u a l l y conducted. It i s e x p l o r a t o r y , l o o k i n g f o r r e l a t i o n s h i p s between t h e p u b l i c p a r t i c i p a t i o n e f f o r t and l e a r n i n g r e p o r t e d by t h e a c t o r s i n v o l v e d . It i s a c a s e s t u d y ,

focused on p u b l i c p a r t i c i p a t i o n i n t h e North C a r o l i n a p o r t i o n of t h e Yadkin-Pee Dee L e v e l B R i v e r B a s i n S t u d y u n d e r t a k e n by North and South C a r o l i n a i n c o o p e r a t i o n w i t h t h e U. S. Water Resources C o u n c i l .

I n keeping w i t h t h e n a t u r e of t h e r e s e a r c h , t h e o b j e c t i v e s a r e t h e f o l l o w i n g :

t o d e s c r i b e t h e North C a r o l i n a p u b l i c p a r t i c i p a t i o n e f f o r t i n t h e Yadkin-Pee Dee L e v e l B Study a s i t e v o l v e d , i n c l u d i n g t h e n a t u r e of t h e v a r i o u s a c t i v i t i e s i n c l u d e d and t h e r a t i o n a l e f o r t h e i r i n c l u s i o n , t o t h e e x t e n t t h a t t h i s could be a s c e r t a i n e d ;

t o f i n d o u t a t s e v e r a l p o i n t s d u r i n g t h e l i f e of t h e p l a n n i n g s t u d y whether North C a r o l i n a p a r t i c i p a n t s were aware of l e a r n i n g a t t r i b u t a b l e t o t h e L e v e l B Study, and i f so, what t h e s e l e a r n -

i n g s were;

t o e x p l i c a t e i s s u e s r e l a t i v e t o p u b l i c p a r t i c i p a t i o n e n c o u n t e r e d d u r i n g t h e Yadkin-Pee Dee S t u d y and c o n c l u s i o n s r e g a r d i n g t h e s e i s s u e s ; and

t o make recommendations based on t h i s Study f o r p u b l i c p a r t i c i - p a t i o n i n o t h e r i n s t a n c e s of w a t e r r e s o u r c e s p l a n n i n g .

Throughout t h e c o u r s e of t h i s e v a l u a t i o n t h e r e s e a r c h team was allowed t o o b s e r v e a l l p u b l i c e v e n t s . They were a b l e t o u s e p a r t i c i p a n t o b s e r v a t i o n t e c h n i q u e s f o r more t h a n a y e a r . During t h a t time members o f t h e team provided a d v i s o r y and s t a f f a s s i s t a n c e t o t h e p u b l i c p a r t i c i p a - t i o n c o o r d i n a t o r , a r r a n g i n g f o r m e e t i n g s , t e l e p h o n i n g commit t e e members, p r e p a r i n g m a t e r i a l s , and s u g g e s t i n g p o s s i b l e meeting f o r m a t s . T h i s per- m i t t e d a c c e s s t o some of t h e d e l i b e r a t ion r e g a r d i n g p u b l i c p a r t i c i p a t i o n

i n t h e Study, a s w e l l a s t o t h e w a t e r r e s o u r c e s i s s u e s i n v o l v e d .

A t t h r e e p o i n t s d u r i n g t h e Yadkin-Pee Dee Study, survey r e s e a r c h t e c h n i q u e s were used t o g a t h e r d a t a from s e l e c t e d groups of i n f o r m a n t s . The p a r t i c u l a r t e c h n i q u e s employed w i l l be d e s c r i b e d i n t h e s e c t i o n s t h a t r e p o r t t h e r e s u l t s of t h e s e s u r v e y s .

Documents a v a i l a b l e f o r a n a l y s i s i n c l u d e d Study n e w s l e t t e r s

,

r e p o r t s , i s s u e p a p e r s , m a i l i n g l i s t s , newspaper c l i p p i n g s , and i n t e r n a l communications r e g a r d i n g p u b l i c p a r t i c i p a t i o n .

(23)

of e a c h component of t h a t e f f o r t . A r e p o r t on each of t h e t h r e e d a t a

(24)

11.

PUBLIC

PABTICIPAT%OIB

IN

THE

YADKIW-PEE DEE

LEVEL B

STUDY

Background I n f o r m a t i o n

I n May o f 1978 t h e North C a r o l i n a Department o f N a t u r a l R e s o u r c e s and Community Development (NRCD)

,

t h e s t a t e of South C a r o l i n a , and t h e

U.

S. Water Resources Council e n t e r e d i n t o an agreement t o conduct a L e v e l B Study i n t h e Yadkin-Pee Dee R i v e r B a s i n . (A map of t h e r i v e r b a s i n i s shown i n E x h i b i t

1.)

With a budget of $1 m i l l i o n , 70 p e r c e n t from t h e f e d e r a l government and 30 p e r c e n t c o n t r i b u t e d i n c a s h and i n kind from t h e two s t a t e s , t h e Study was i n t e n d e d t o e x e m p l i f y a g r e a t e r r o l e of s t a t e and l o c a l government i n comprehensive water r e s o u r c e s p l a n n i n g . The g e n e r a l g o a l s f o r w a t e r r e s o u r c e s development and use i n t h e Yadkin-Pee Dee B a s i n were e s t a b l i s h e d a s :

1.

t o m a i n t a i n and improve t h e e n v i r o n m e n t a l r e s o u r c e s of t h e B a s i n ; and

2. t o enhance economic development o p p o r t u n i t i e s and l i v i n g c o n d i t i o n s f o r t h e r e s i d e n i s of t h e B a s i n and t h e c a r o l i n a s

( P l a n o f Study, p , 1 3 ) .

The Study was o r g a n i z e d under a t r i - p a r t i t e C o n t r o l Board and a S t u d y Management Committee i n which t h e two s t a t e s and e i g h t f e d e r a l and r e g i o n a l a g e n c i e s i n v o l v e d were r e p r e s e n t e d ( E x h i b i t 2 ) . Each of t h e

f i v e f o c u s a r e a s of t h e S t u d y was a s s i g n e d t o a t a s k group, w i t h members of t h e group s e l e c t e d from l e a d s t a t e a g e n c i e s and a p p r o p r i a t e

f e d e r a l / r e g i o n a l a g e n c i e s . Other t a s k groups were r e s p o n s i b l e f o r

s u p p o r t f u n c t i o n s , i n c l u d i n g one t o d e s i g n and conduct t h e c i t i z e n p a r t i - c i p a t i o n component ( ~ x h i b i t 3 ) .

The p l a n n i n g e f f o r t was d i v i d e d i n t o p h a s e s , t h e f i r s t of which was

-

t h e i d e n t i f i c a t i o n of s t u d y f o c u s e s and p r e p a r a t i o n of a P l a n o f Study. Following a p p r o v a l of t h e P l a n o f Study, t h e E x i s t i n g P l a n phase was begun. Phase III was t h e development of A l t e r n a t i v e P l a n s , and Phase I V t h e s e l e c t i o n of a Recommended P l a n . This f i n a l phase i n c l u d e d t h e prep- a r a t i o n of a P r e l i m i n a r y D r a f t Recommended Planand a D r a f t Recommended P l a n a s p r i o r s t e p s .

The Development o f North C a r o l i n a ' s P u b l i c P a r t i c i p a t i o n E f f o r t

The d e s i g n of p u b l i c p a r t i c i p a t i o n i n t h e Yadkin-Pee Dee Study was based i n p a r t on t h e " P r i n c i p l e s and S t a n d a r d s f o r Planning" i s s u e d

by

t h e Water Resources Council (1973). T h i s document i d e n t i f i e s g e n e r a l g u i d e l i n e s i n r e g a r d t o o b t a i n i n g d i r e c t i n p u t s from t h e p u b l i c , b u t does n o t s p e c i f y how t h e g u i d e l i n e s a r e t o be a p p l i e d o r i n t e r p r e t e d i n a p a r t i c u l a r c o n t e x t . That i s t h e t a s k of t h e p l a n n i n g s t a f f .

(25)
(26)

Exhibit

2. Organization

of

the Yadkin-Pee Dee

River

Basin Study

WRC

NC

SC

STUDY

MANAGER

AGRICULTURE

NC

I

NTER

I

OR

SC

ENERGY

ARMY

EPA

FEW

APPALACHIAN REGIONAL

WMc

COASTAL

PLArNS

REGIONAL

CCW

AUTHORITYIRESPONS

I B I L I T Y

L I N K

(27)

Exhibit 3 .

Task Groups

in

the

Yadkin-Pee

Dee

Study

W a t e r R e s o u r c e s T a s k G r o u p s S u p p o r t T a s k G r o u p s

- - - -

I

T a s k G r o u p #3

WATER BUDQT

1

LEGAL & INSTITUTIONAL ASPECTS

T a s k G r o u p #5

I

WATER SUPPLY

I

I

T a s k G r o u p

86

WATER QUALITY

i

I

T a s k G r o u p

417

nOOD PLAIN MANAGEMENT

T a s k G r o u p

#1

DATA/PROJECTIONS

CITIZEN PARTICIPATION

T a s k G r o u p f 9

I

PLAN FORMULATION

(28)

p o r t i o n of t h e Yadkin-Pee Dee R i v e r B a s i n a s an a d j u n c t t o t h e N. C . Water Resources Framework Study. It met t h r e e times--once each i n 1975,

' 7 6 , and '77. I t s t h i r d meeting i n F e b r u a r y 1977 i n c l u d e d a p r i o r i t i e s workshop s e e n by NRCD s t a f f as a f i r s t s t e p of a p u b l i c p a r t i c i p a t i o n program f o r t h e then-proposed L e v e l B Study.

One r e s u l t of t h e F e b r u a r y 1977 m e e t i n g was a r e q u e s t t o t h e O f f i c e of t h e S e c r e t a r y of NRCD f o r c l a r i f i c a t i o n of t h e r o l e and f u n c t i o n of t h e CAC. A t t h a t time t h e p u b l i c p a r t i c i p a t i o n c o o r d i n a t o r e x p e c t e d t o s p l i t t h e N . C. Yadkin B a s i n i n t o N o r t h e r n and S o u t h e r n s u b - b a s i n s , w i t h t h e e x i s t i n g C i t i z e n s Advisory Committee s p l i t i n t o two l a r g e r and more w i d e l y r e p r e s e n t a t i v e sub-basin C A C ' s . A t h i r d CAC was proposed f o r t h e Lumber-Waccamaw sub-basin i n t h e s o u t h e a s t e r n p a r t of t h e s t a t e . Each was t o have about 25 members.

Tent a t i v e p l a n s f o r pub1 i c p a r t i c ip a t i o n b e f o r e t h e Yadkin-Pee Dee Level B Study was approved i n c l u d e d t h r e e a c t i v i t i e s i n a d d i t i o n t o t h e C A C ' S :

1.

Use of s u r v e y r e s e a r c h t e c h n i q u e s t o g e t i n p u t s ( e . g . percep- t i o n s of w a t e r r e s o u r c e s problems) from r e c o g n i z e d i n t e r e s t g r o u p s , l o c a l government, and a sample of t h e g e n e r a l p u b l i c . These i n p u t s could t h e n be compared w i t h t h o s e of t h e C A C ' s ;

2.

Encouragement of p u b l i c a t t e n d a n c e a t CAC m e e t i n g s ; and

3. A p u b l i c i n f o r m a t i o n e f f o r t i n v o l v i n g news r e l e a s e s , a news- l e t t e r , a n d / o r a newspaper supplement t o i n v i t e p u b l i c r e s p o n s e

ne em

of March, 1977).

Documents a v a i l a b l e from t h i s pre-Level B p e r i o d emphasized two f u n c t i o n s of a p u b l i c p a r t i c i p a t i o n program. One was p u b l i c i n f o r m a t i o n --to c r e a t e p u b l i c awareness of w a t e r r e s o u r c e s i s s u e s and of t h e S t u d y , i n c l u d i n g what a L e v e l B Study cannot do a s w e l l a s what it c a n d o , and how t h e p u b l i c might become involved i n t h e e f f o r t . No s t a t e m e n t s were found t h a t o f f e r e d a r a t i o n a l e f o r t h e importance of i n c r e a s i n g p u b l i c awareness.* The i m p l i c i t assumption seemed t o be t h a t t h e p u b l i c should b e educated r e g a r d i n g w a t e r r e s o u r c e s i s s u e s so t h a t i n d i v i d u a l s would be w i l l i n g and c a p a b l e of p r o v i d i n g i n p u t s t o t h e Study. Of i n t e r e s t i s t h e e x p l i c i t a t t e n t i o n g i v e n t o i n c l u d i n g i n t h e c o n t e n t of t h e p u b l i c i n f o r - mation e f f o r t t h e l i m i t a t i o n s of a L e v e l B Study. C r e a t i n g u n r e a l i s t i c e x p e c t a t i o n s was c l e a r l y t o be avoided.

The o t h e r f u n c t i o n was e l i c i t i n g p u b l i c i n p u t . Although t h e forma- t i o n of t h e CAC's r e p r e s e n t e d a s u b s t a n t i a l investment i n s e c u r i n g an i n t e r e s t e d s o u r c e of d a t a , t h e i r i n p u t s were t o be c o n t i n u o u s l y v a l i d a t e d and supplemented by s u r v e y s of samples from i n t e r e s t e d and g e n e r a l pub- l i c s . A n t i c i p a t e d

'

i n p u t s ' were not s p e c i f i e d ; presumably t h e s e would

*The r e p o r t of a 1974 summer i n t e r n s h i p e x p e r i e n c e ( P e n d e r g r a f t and ~ u m m i n g s ) i s e v i d e n c e t h a t t h e Department had c o n s i d e r e d t h e r a t i o n a l e s

f o r v a r i o u s and complimentary components of a p u b l i c p a r t i c i p a t i o n

Figure

Table 111-3. Distribution of planners' responses as to *ether justify costs of public participation in water resource
Table 111-6,
Table 111-7.
Table 111-8.
+7

References

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