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Received 9 July 2020 ABSTRACT
Accepted 29 August 2020 Participation in decision-making processes foreshadows enabling citizens,
Available online 18 September
2020
communities, non-governmental organizations and other interested parties to
influence the formulation of policies and laws affecting them. The purpose of
Keywords: this study is not only to review Lithuanian legal documents but also to analyse
Community; recent processes in Kaunas city planning. Kaunas city is undergoing various
Urban planning; urban processes, which do not always meet the needs of the community. This
Spatial planning; study presents an analysis of the forms of community involvement in the urban
Decision-making processes. planning processes and survey data on the effectiveness of community
involvement. The methodology requires using a sociological survey with
representatives of the city community and a comparative analysis between
legal obligations and actual urbanization process.
1 . Introduction
Public participation has become an important Control (Arnstein, 1969). Today, planning
topic of governance in the 20ttcenturyArnstein theorists and practitioners actively advocate
in 1969 described public participation as public participation in spatial planning.
follows: “The idea of citizen participation is a Accordingly, Marcus Lane observed that
little like eating spinach: no one is against it in government has been replaced by
principle because it is good for you”. In her governance (Marcus, 2005). Activity, due to
article, the author describes the influence of public participation, is driven by theoretical
society in government decision-making as a
*Corresponding Author:
ladder, where at the bottom of the ladder are
Kaunas University of technology, Civil engineering and
Manipulation (first step) and Therapy (second architecture faculty, Kaunas, Lithuania
step), at the topmost - (seventh step) are Email address: laura.jankauskaite-jureviciene@ktu.lt
Delegated Power and (eighth step) Citizen
How to cite this article:
Jankauskaitė-Jurevičienė, L., & Mlinkauskienė, A. (2021). Community Participation in Decision Making Processes in Urban Planning: The Case of
Kaunas. Journal of Contemporary Urban Affairs, 5(2), 197-208. https://doi.org/10.25034/ijcua.2021.v5n2-3
JOURNAL OF CONTEMPORARY URBAN AFFAIRS, 5(2), 197-208/ 2021
and practical reasons. In practice, public presented in chapter 4 and the conclusions
participation is the key of the democratic and suggestions in chapter 5.
process. This makes government institutions Historical analysis of public participation in
accountable to the society, enables it to spatial planning was performed to find out the
incorporate non-professional knowledge into development of involvement in decision-
decision-making, improves public policy making, historical stages, implemented reforms
support and improves planning outcomes. and their impact. The analysis of the most
Participation in itself is valuable as a political important documents describing the public
goal, as it increases social capital and gives participation in the territorial planning
citizens more opportunities when they want a processes was performed to find out the ways,
stronger voice in decision-making. means and emerging problems of public
Lithuanian researchers examine the issue of involvement in the territorial planning
public participation both on a theoretical processes in Lithuania.
(legal basis) and on an empirical basis Non-random convenient selection, voluntary
(Bardauskienė, 2007; Jakaitis, 2005; Cirtautas, sampling was used for the sociological survey.
2011). However, the activity of society in Data were collected using social networks vis-
political life and decision-making is more often a-vis: i). Facebook, by submitting a survey on
examined (Merkys, 2020). In the field of urban multiple community accounts and sharing the
planning, the attitude of the population in the profile through personal accounts. This method
formation of urban architecture, the activity of of data collection was used purposefully to find
the society in the consideration of urban plans, out who and the extent of those active in social
and the causality of the passivity of the society networks and how much they are interested in
are most often examined. Examining the territorial planning problems. Before the survey,
articles of foreign authors on sociological it was hypothesized that Kaunas city residents
research related to public participation, it is were very little interested in participating in the
noticeable that the connections with certain spatial planning processes.
social aspects are usually examined. Most The following sociodemographic variables
authors have studied community participation were examined in the study: Gender, Age,
through social and demographic factors and Education, Occupation, Community activities
less analysis of the impact of social and and Place of residence. Analysis in this study is
physical variables on a given problem (Bottini, quantitative and Quantitative analysis and IBM
2018). SPSS was used for the analysis. The level of
This article discusses short historical statistical significance was defined as p <0.05.
development and the main spatial planning
documents related to public participation in 3. Historical and document analysis of public
spatial planning processes in Lithuania, and the participation in spatial planning
opportunities for residents to express their views 3.1. Historical analysis of public participation
and make suggestions on the projects. A pilot in spatial planning in Lithuania
sociological survey was conducted using Changes in the territory of Lithuania are closely
community social networks to find out how related to the political, economical, social and
active and involved the population is in Kaunas other factors. These factors have a direct
city spatial planning processes. The survey aim impact on the spatial structure of the
was also to understand the activity of the social landscape. Lithuania has undergone many
network, its main audience and the rational for land reforms over the centuries, but land
this type of audience. reforms in the last few centuries are of
particular importance. According to the
2. Materials and Methods Wallachian reform (16th century), the land of
A pilot study was conducted to analyze public all manors was declared as the complete
participation in spatial planning by literature property of the Grand Duke and was
analysis and spatial planning documents, combined into one area measured into the
raising a hypothesis, conducting the research Wallachians (about 21.38 ha). The villages were
and drawing conclusions. An analysis of the organized and distributed, a three-field system
literature and documents is provided in was established. As part of the land reform,
chapters 3.1 and 3.2. The results of the study are towns and church villages were established,
manor houses, street-planned and scrappy
villages, residential areas were also connected use of the territory and land plots and the
with the road network (Jankauskaitė- development of activities in Lithuania territory
Jurevičienė, 2016). (Law on Spatial Planning of the Republic of
From the middle of the 19th century until the Lithuania, 1995, 2019). Thus, spatial planning is
middle of the 20th Lithuania territory was a complex process that combines the interests
managed and used as an individual farming of the groups interested in spatial
system. At the time of these reforms, public development, the needs of society and the
participation in land management was not protection of the environment.
possible, because land management was Major changes in the regulation of spatial
sorely within the jurisdiction of the nobility. planning took place in 2014 and are valid until
The annexation of Lithuania in the 1940s by the now. The new regulation aims at simplifying,
Soviet Union began the destruction of accelerating and improving the spatial
traditional, cultural and spiritual values and the planning process. With the creation of the new
creation of new political-social structures - spatial planning system, new levels of this
collective farms. During the Soviet land reform, planning were established, the principle of
private land was nationalized, after which parcel planning was abandoned and the
manors and small individual farms disappeared projects of land holdings were removed from
(Jankauskaitė-Jurevičienė, 2016). Thus, the the system of spatial planning documents.
period from the 1940s until 1991 is the collective Therefore, it is very important to identify the
farm period (Jankauskaitė-Jurevičienė, 2016). existing problems in the context of spatial
Spatial planning activities between 1950-1965 planning, to solve them and not to repeat
in Lithuania involved the planning of individual them in the future (Valstybinio Audito
objects in a territory and later the planning of Ataskaita, 2019). In 2020, by the principles of
administrative district schemes and settlements spatial planning currently in force, a new state
and industrial objects which were regulated by master plan should be drawn up, which should
centralized state administration bodies. It was determine the directions and priorities of
only after the 1970s when the complexional spatial development. Following this strategic
natural protection scheme and other spatial document, efforts will be made to coordinate
planning documents were prepared that the various activities in the country: agriculture,
management of the territory of Lithuania can tourism, business, cultural heritage protection
be called complex and linked to the and infrastructure. To prevent this document
management of the whole country (Gurskienė, from becoming formal, it is necessary to ensure
2008). However, public participation was not its proper implementation, especially in the
possible in territory planning because of the field of public participation.
policies of the Soviet Union.
After the Restoration of the Republic of 3.2 Documents defining public rights
Lithuania which was March, the rights and The Constitution of the Republic of Lithuania
obligations of the state and municipal enshrines the aspiration of the nation to create
institutions were established on December 12, an open, just and harmonious civil society.
1995, by the Law of Territory planning. This law Since the right of any society is to have their
also established the rights and obligations of convictions and to freely express them as
natural and legal persons in the planning guaranteed by the Constitution, this same is
processes. The objectives defined in the Law enshrined in the Constitution of the Republic of
on Spatial Planning of the Republic of Lithuania Lithuania in 1992. It is also noticeable that the
are: i) to balance the development of the Lithuania municipal institutions are remote from
territory; ii) to create a healthy environment the majority of the society and often the
and equal living conditions; iii) to formulate decisions they make do not meet the needs
territorial development policy; iv) to preserve, and interests of the society even if their
rationalize the use and restore natural participation were involved in the preparation
resources, natural and cultural heritage values, of territorial planning documents as defined by
and maintain or restore ecological balance; v) the different laws: Law of the Republic of
encourage investment for socio-economic Lithuania on Territorial Planning (Seimas, 2004),
development; vi) harmonize the interests of the Regulations on public information, consultation
public, non-governmental and governmental and participation in spatial planning decisions
organizations regarding the conditions for the (Regulations on public information,1996).
Convention on Access to Information, Public Territorial planning audit control report (2019),
Participation in Decision-making and Access to which aim to assess whether the system is in
Justice in Environmental Matters adopted on place to ensure an effective spatial planning
Aarhus Convention (Ekonomikos komisijos process, provides facts about public
Konvencija, 2001). Certain planning participation in spatial planning. According to
documents for urban problems and their the data from the restoration of Independence
management of urban, social and economic of the Republic of Lithuania in 2019, 73400
development are widespread in European territorial planning documents were registered
countries (area-based initiatives, in the spatial planning documents
neighbourhood strategies, urban (approximately 2400 documents are registered
development programmes). These documents annually) (Figure 1). This report showed that
are usually advanced examples of harmonious 12% of spatial planning documents, prepared
cooperation between local or in Territorial planning documents preparation
national/regional authorities and local people and territorial planning process state
(Cirtautas, 2011). supervision information system (TPDRIS) of the
To ensure public participation in the Republic of Lithuania, did not properly pass the
implementation processes of spatial planning final stage publicity procedures (State
in Lithuania, there is a legal obligation to make Territorial Planning and Construction
public all spatial planning documents under Inspectorate,2020). It is also noted that over
preparation. The public shall be given access 50% of project publicity procedures took place
to get acquainted with the document under after the approval of the spatial planning
preparation stage, submit proposals and documents (Valstybinio Audito Ataskaita,
comments. 2019).
Several amendments were made regarding planning and construction of territories, open
the Law of the Republic of Lithuania on the way for investments and to reduce the
Territorial Planning, which came into force in procedural burden on business. The new
2014 before it was adopted. The amendments version of the law was drafted under intense
were based on the necessity to speed up the business pressure from public authorities. This
social group welcomed the changed detailed plan decisions shall be informed by
regulation in a very positive way. The question, registered mail. To sum up, the concept of a
therefore, arises whether the introduction of "marginal norm" under which the public can
such business-friendly legal regulation has left expect to defend an extremely narrow range
the safeguards in place to ensure that the of interests, defined by specific provisions, and
interests of other segments of society are not thus unregulated by law, even though existing
prejudiced during spatial planning and the interests of the principle of sustainable
(Lastauskienė & Bakšienė , 2015). development remain outside the remit of legal
Following the adoption of the new version of protection (Lastauskienė & Bakšienė, 2015).
the Law of the Republic of Lithuania on Significant restrictions on public participation in
Territorial Planning, many changes have been the area are also reinforced by another
made to the public's ability to participate in innovation – distinction between projects of
spatial planning. The analysis of Articles 33, 34, national importance. Although the public is
35 of this law and the subordinate legal acts involved in these planning processes in some
show that in the sphere of public information form, the status of such object is granted by
and participation in spatial planning, the terms government resolution without informing the
of public information and submission of public or their representatives. The new legal
proposals were halved (presumably to speed regulation created a situation in which the
processes), and only the master drawing, the municipalities were left responsible for the
ad serving in local newspapers was abolished implementation of an independent function -
and the information moved to the webspace spatial planning, limiting the possibility for them
(i.e. made available only for targeted search). not to approve spatial planning solutions,
Besides, only registered landowners and land which creates preconditions for questioning
users whose access rights are restricted by the the constitutionality of such regulation (Figure
special land use conditions set out in the 2).
Figure 2. The main institutions involved in the formulation and implementation of spatial planning policy.
several answer variations, but the vast majority these problems with decision-making bodies,
(86%) noted that social networks (eg. but with friends and acquaintances (89%).
Facebook) are the most popular source of From the graph below (Figure 4), it can be
information. Respondents also answered that seen that respondents use social networks
they search for information on spatial more often in communicating with municipal
planning objects on the municipal website representatives on spatial planning
(32%) and ask active community members documents than participating in project
(50%). Only 5% of the respondents ask the presentation or interviewing authorities.
municipality about the issues of spatial Furthermore, considering that 46%
planning they are concerned with and none respondents stated that they did not speak
of the respondents replied that they received with municipal representatives or submit
information about it from the eldership. It was requests/complaints to the municipality
noticed from the survey that Kaunas city regarding territory planning documents, it can
residents are equally concerned with personal be argued that most respondents only express
residential and urban spatial planning their views in an informal environment that
problems, but most often, they do not discuss does not influence spatial planning decisions.
Petitions
%
Complaints and requests to the municipal…
0 10 20 30 40 50 60 70 80 90
Figure 4. Communication techniques with the municipality used over the last 12 months.
The majority of respondents believe that their knowledge - 54% and 66% respondents
Kaunas residents are active in seeking to think that most citizens lack information on
express their opinion or submit proposals for spatial planning processes. Some respondents
spatial planning documents to municipal also chose answers that indicate a lack of
representatives (52%), however, it is not personal interest – 36% have no time for that,
possible to say that the majority of Kaunas city or 18% considers that it is uninteresting to the
residents think so, as the majority of population. Only 5% of respondents believe
respondents are residents in one eldership. that citizens do not participate in public
Probing into respondents' opinion on the decision-making because they trust the
reason’s citizens do not participate in public decisions of council members. Figure 5 below
decision-making, it was noticed that sshow respondents' views on the involvement
disillusionment with self-government is of citizens in decisions on spatial planning
prevalent, as participation is not expected to documents.
change anything (75%), they also do not trust
Figure 5. Respondents 'opinion about the citizens' participation in territorial planning document solutions (Survey data).
The statements were formulated according to give advice and take greater account of
two research constructs: trust in the public needs and wishes before making
municipality and law and the respondents' decisions.
confidence in their knowledge. Respondents The majority of the respondents believe that
consider that the municipality is not interested there is an intense need (84%) or need (9%) for
in cooperation with the population and the cooperation between the municipality and
information provided by the municipality is not citizens in making decisions on spatial planning
clear and easy to understand. Nevertheless, documents.
even if the municipality does not respond to After conducting a statistical survey on
the opinion of the citizens, according to the whether there are relationships between the
respondents, citizens have sufficient respondents of different education and the
information on the opportunities to evaluation of the actions of the municipality it
participate in decision-making and they trust was observed that education is not significantly
in municipality decisions. From the responses related to respondent's attitude to work in the
regarding self-confidence, it is observed that municipality at 95% significant level.
respondents, though in doubt, agree that they To examine the relationship between gender
have sufficient competence and skills to and attitudes towards the average evaluation
participate in decision-making. Indeed, more of municipal actions and the average
than half of the respondents believe that evaluation of citizens' abilities, a T-test was also
municipality should not only educate the performed. The group statistics show that there
public about ways and opportunities to is a very small difference between the average
participate in public decision-making, but also of the groups in the evaluation of municipal
actions and the average value of citizens' average assessment of their activity (0.04
abilities evaluated. The average assessment of points). After performing a statistical study and
the municipality is 2.03 for male gender and 1.9 testing the formulated hypotheses at 95%
for the female gender and the average significant level, it can be stated that the
assessment of citizens' abilities is almost equal attitudes of respondents with different
to 2.5 (ale) and 2.54 (female) respectively. education to municipality commitments is
statically not significant. Nonetheless,
5. Discussion and conclusions conducted data showed that more educated
The influence of society on government and personally experienced individuals
decision-making has been discussed since the participated in the online survey. From the
20th century. Today, various forms of survey, it was also noticed that the
governance are united by the need to directly respondents are equally concerned with the
and centrally involve citizens, non- urban and personal spatial planning problems
governmental organizations and social of the residential area, but most often they
movements in policy-making and discuss these problems with their friends and
implementation. Lithuanian researchers often acquaintances and use the social networks
simply examine the activity of society in for spatial planning documents than
political life and decision-making. In the field of participation in project presentations or
urban planning, the attitude of the population interviews with authorities. The analysis on the
in the formation of urban architecture, the relationship between gender and attitudes to
activity of the society in the consideration of the averages of the evaluation of municipal
urban plans and the causality of the passivity actions and the evaluation of citizens 'abilities
of the society are most often examined. The revealed that there is a very small difference
main spatial planning documents of Lithuania between the average of groups (men,
were adopted after the restoration of women) in the evaluation. Overall, response
independence and especially from 1992. to the hypothesis that that Kaunas city
Spatial planning documents have changed resident is not very interested in territorial
several times in Lithuania for 30 years. Major planning processes becomes imperative. To
changes in spatial planning took place in 2014 this, this study posits that owing to the non-
and are still valid. This update was intended to random convenient selection, voluntary
simplify, speed up and improve the spatial sampling and conclusions on the general
planning process, the new levels of spatial public cannot be drawn. To obtain more
planning and to show that the principle of accurate unambiguous data, the sample of
individual site planning has been abandoned. the survey should be expanded and other
To ensure public participation in the processes methods of sample selection should be used.
of implementation of spatial planning in Because of the changes in the legal regulation
Lithuania, institutions of various levels are (such that the construction is in most cases
legally obliged to make public all spatial possible without a detailed plan, establishing
planning documents being prepared. The an exhaustive list of cases in which the public
main players in this process are the Ministry of interest is protected, limiting the creativity of
Environment of the Republic of Lithuania and spatial planning by linking it exclusively to
the municipalities of cities and districts, which public administration procedures, and
have to ensure public access to the spatial reduced public access to procedures amongst
planning documents in the initial stage and to others), the needs of society in the processes of
make suggestions and comments in the later spatial planning may not be heard at all. Such
planning stages. trends, according to the respondents in the
The sample selected for the analysis was 44 survey are not in line with the modern concept
respondents. Respondents in the survey are of human rights and Lithuania's international
made up of the female gender and middle- obligations under the Aarhus Convention. This
aged respondents with university or college study, therefore, asserts that this situation is
education, and by occupation are a specialist unfavourable to the protection of the interests
or public servants. To elucidate the relationship of society as a whole and will undoubtedly
between gender and activity in the create new challenges for the courts which
community, it is observed that there is a very should play a more active and creative role in
small difference between the groups in the assessing whether spatial planning solutions
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