Abstract
Purpose. This study explores the impacts of using a governance structure to increase public participation in the local policy development process in a large urban metropolitan area. Specifically, this research examines how the neighborhood council (NBC) system, a formally mandated system of governance, has influenced public participation levels in Los Angeles, California. Theoretical framework. This research relies on theories of public participation (Rowe & Fewer, 2000; International Association for Public Participation, 2007); social capital (Putnam, 2000); and governance networks (Koliba, Meek, & Zia, 2011; Sørensen & Torfing, 2005), to assess participation levels of city residents in a local governance structure. Methodology. The research design used was a multiple-case study (Yin, 2014) of four public policy proposals presented for local government consideration. Secondary data were gathered from online sources and census data to evaluate the significant issues of each proposal, participation levels and demographic data for the NBCs involved with each proposal, and the presence of additional networks and alliances embedded within the NBC system that impact participation levels. Findings. Research findings indicate public participation is more strongly associated with resident demographics when compared with the saliency of the policy proposal or the individual and collective capacity of NBCs. Findings also suggest the presence of networks enhanced internal capacity within individual NBCs and external capacity across the system. The presence of external networks and alliances was found to enhance organizational capacity and mobilization for more established NBCs and offset capacity deficiencies for organizationally challenged ones, thereby improving participation across the entire system (Musso, Weare, Oztas, & Loges, 2006). Cross-system capacity was found to be vital for organizationally challenged NBCs, except when there is a lack of consensus on the desired policy outcome. Recommendations and Conclusions. Public initiatives implemented with the goal of increasing public participation in local governance processes must consider both the positive gains and the potential negative impacts of institutionalizing a governance structure. While participation overall may increase, the increase may be the result of increased engagement by individuals and communities that have historically always participated, thereby increasing biased representation in the governance process (J. Koppenjan, personal communication, March 30, 2015). Governance strategies should be developed and implemented to mitigate this risk.