Sherry Arnstein’s “Ladder of Citizen Participation”

Sherry Arnstein’s “Ladder of Citizen Participation” is a seminal framework in urban planning and public policy, which she introduced in a 1969 article in the Journal of the American Institute of Planners. The framework categorizes different levels of citizen involvement in decision-making processes, offering a critical perspective on the dynamics between power holders and citizens. Arnstein’s ladder remains influential in discussions of participatory democracy, power distribution, and community engagement.

Overview of the Ladder

The “Ladder of Citizen Participation” is depicted as an eight-rung ladder, with each rung representing a different level of citizen participation. The higher the rung, the greater the degree of citizen power and influence in the decision-making process. Arnstein’s model is divided into three broad categories:

1. Nonparticipation: The lowest rungs, where the primary goal is not genuine participation but rather to manipulate or placate the public.
2. Tokenism: The middle rungs, where citizens are allowed to have a voice but without any real power to influence the outcome.
3. Citizen Power: The highest rungs, where citizens obtain decision-making power and can directly influence policies and programs.

The Eight Rungs of the Ladder

1. Manipulation:
   • Definition: This is the lowest level of participation, where those in power (government officials, developers, etc.) “educate” or “inform” citizens in a way that subtly or overtly manipulates them into supporting predetermined plans.
   • Characteristics: Citizens are used as a public relations tool, with the illusion of participation rather than any real influence. Information is controlled and selectively released to shape opinions without genuinely addressing citizen concerns.
2. Therapy:
   • Definition: This rung is characterized by efforts to “cure” or “educate” citizens about their own problems, under the assumption that their attitudes or behaviors are the root cause of issues, rather than systemic problems.
   • Characteristics: Citizens are involved in activities meant to change their views or attitudes, but not in a way that grants them any control over decisions. The focus is on “adjusting” citizens to fit existing structures, rather than altering those structures.
3. Informing:
   • Definition: The first level of what Arnstein describes as “tokenism,” where citizens are merely informed of their rights, responsibilities, and options.
   • Characteristics: Information flows from the power holders to the citizens with no channel for feedback or dialogue. While informing is a necessary part of participation, at this stage, it is largely one-way communication, with little to no influence on decision-making.
4. Consultation:
   • Definition: This rung involves asking citizens for their opinions through surveys, meetings, or public hearings.
   • Characteristics: Although this represents an improvement over simply informing, consultation often fails to ensure that citizen feedback will be heeded. It gives the appearance of involving citizens, but without any guarantee of influence on the final decision.
5. Placation:
   • Definition: At this stage, citizens are allowed to advise or make recommendations, but the power holders retain the right to decide whether to accept or reject the advice.
   • Characteristics: Mechanisms like citizen advisory boards or committees are established, but these bodies typically lack the authority to make or enforce decisions.
6. Partnership: In this level, power is shared between citizens and authorities. Citizens actively participate in decision-making processes, forming a partnership with officials. Negotiations take place, and there is mutual decision-making power.
7. Delegated Power: Citizens gain more control as decision-making authority is largely handed over to them. They are given delegated responsibilities to govern specific areas, although ultimate control may still lie with higher authorities.
8. Citizen Control: At the highest level of participation, citizens have full authority over decision-making processes. They initiate and lead programs, having complete control over policies and governance without needing external approval.

The participation levels of partnership, delegated power, and citizen control refer to degrees of citizen involvement in decision-making processes, often depicted in Arnstein’s Ladder of Citizen Participation. These levels represent increasing degrees of citizen empowerment.

These levels reflect a progression toward greater citizen autonomy and control over public matters.

References

Arnstein, S. R. (1969). A ladder of citizen participation. Journal of the American Institute of planners, 35(4), 216-224.

Arnstein, S. R. (2019). A ladder of citizen participation. Journal of the American planning association, 85(1), 24-34.

Gaber, J. (2020). Building “a ladder of citizen participation”: Sherry Arnstein, citizen participation, and model cities. In Learning from Arnstein’s Ladder (pp. 13-34). Routledge.

Maier, K. (2001). Citizen participation in planning: Climbing a ladder?. European Planning Studies, 9(6), 707-719.

May, J. (2006). Ladders, stars and triangles: old and new theory for the practice of public participation. International journal of market research, 48(3), 305-319.