Category: formats

Publication: Socio-spatial justice through public participation? A mixed-methods analysis of distributive justice in a consultative transport planning process in Germany

Our presentation at the annual congress of the AESOP (Assosiation of European Schools of Planning) in 2022 has now been followed by a publication in the journal Case Studies on Transport Policy. Using qualitative and quantitative data, the contribution to socio-spatial justice was examined for the case study of the consultative planning process on the Elbchaussee in Hamburg.

Summary

The transport system contributes to significant socio-spatial injustices, both through its environmental impact and its structural disadvantages for certain groups. While public authorities increasingly include elements of public participation in planning processes it remains unclear whether this results in greater socio-spatial justice.
To explore this question, the study examines socio-spatial justice as distributive justice and investigates how consultative planning contributes to sustainability and addresses the needs of disadvantaged groups. For this
purpose, the case of the Elbchaussee reconstruction in Hamburg, Germany, is analyzed. Drawing on both qualitative and quantitative data including expert interviews and a public survey, the study finds that the planning process led to modest improvements, such as better conditions for pedestrians and cyclists, which promote ecological sustainability and benefit non-male groups. However, these outcomes fall short of participants’ expectations, and the few positive changes cannot be directly linked to public input. The findings suggest
that current public participation practices do not automatically lead to greater socio-spatial justice. Achieving this requires more inclusive participation formats, greater influence for participants, and a more explicit focus on
socio-spatial justice in planning.

Key Findings

  • The consultative planning process as a whole resulted in measures that contribute slightly to socio-spatial justice, since they support the transition to more sustainable mobility and will benefit some disadvantages groups, though both to a limited degree.
  • We find that the consultation procedure had no significant influence on the policy. In terms of socio-spatial justice, no positive effects can be traced back to the consultation procedure. Notably, those that participated in the consultation did indeed report less satisfaction with the measures.
  • We trace those limited contributions back to some general features of consultation and the current planning system, but also find that in the case study the scope of possible influence was very limited due to external restrictions and power imbalances.

Publication

Mark, L., Holec, K., & Escher, T. (2025). Socio-spatial justice through public participation? A mixed-methods analysis of distributive justice in a consultative transport planning process in Germany. Case Studies on Transport Policy , 20, Article 101467. https://doi.org/10.1016/j.cstp.2025.101467

Results of our research in Hamburg-Altona (Elbchaussee reconstruction): Final presentation

In a joint meeting with a representative of the Landesbetrieb, Straßen, Brücken und Gewässer (State Office for Roads, Bridges and Waters, LSBG) of the Free and Hanseatic City of Hamburg on 15 May 2023, the research group presented the results of the surveys in connection with the participation process for the redevelopment of the Elbchaussee (Elbchaussee Dialogue). The Elbchaussee redevelopment was one of a total of five planning projects that were intensively analysed by the CIMT research group over several years in order to investigate the effects of consultative citizen participation on political attitudes, among other things.

Various participation formats were carried out as part of the planning process, e.g. online dialogues and workshops. Further information on the Elbchaussee dialogue and the participation formats carried out can be found on the website of the LSBG.

This planning and participation process was analysed by the CIMT research group at Heinrich Heine University Düsseldorf independently (i.e. without being commissioned or influenced by the City of Hamburg), primarily with the help of stakeholder interviews and surveys of residents in Altona. For this purpose, a randomly selected part of the population was surveyed in selected neighbourhoods in Altona in 2021. Further information on the research group’s surveys can be found here.

Selected results

  • Participants in the participation process had a high social status (education, income), were significantly older, often male – cyclists and car drivers!
  • Motive for participation in particular: To influence a decision.
  • There is a tendency to perceive a lack of influence of participation on the political decision.
  • This is consistent with the results of the stakeholder interviews and the document analysis. Here, too, the policy impact of the consultation is rather low.
  • Restrictions due to paradigms and requirements from higher political levels were particularly obstructive.
  • Nevertheless, the planning process and its results were assessed quite positively by the public overall, but the participants showed a more negative assessment of the results of the planning process.
  • The process has an influence on satisfaction with local institutions.

It should be noted that the presentation essentially represents the status of the findings in spring 2023. Additional analyses have been carried out since then. The results of this case study are therefore presented in more detail in Laura Mark`s dissertation.

Downlad the presentation (in German)

CIMT_AP_Altona_20250428Herunterladen

Results of our surveys in Marburg (MoVe 35): Final presentation

As part of a joint digital exchange with the city administration of the city of Marburg (including citizen participation and transport planning) on September 25, 2024, the research group presented the results of the surveys in connection with the participation process for the MoVe 35 mobility and transport concept. The MoVe 35 project was one of a total of five planning projects that were intensively investigated by the CIMT research group over several years in order to examine the effects of consultative citizen participation on political attitudes, among other things.

Various participation formats were carried out as part of the planning process, e.g. an online survey, workshops, a project advisory board and an online dialog on public transport. A (council) referendum was also held in connection with the mobility concept. Further information on the MoVe 35 project and the participation formats used can be found on the city of Marburg’s website.

This planning and participation process was examined by the CIMT research group at Heinrich Heine University Düsseldorf independently (i.e. without being commissioned or influenced by the city of Marburg), primarily with the help of surveys of Marburg residents. For this purpose, a randomly selected part of the population in Marburg was surveyed in 2021 and 2024. Further information on the research group’s surveys can be found here.

Selected results

  • As in all of our project areas, transport policy and the transport transition are conflicting issues. In Marburg, however, there is a particularly clear contrast between the educational groups. For example, the majority of people without a high school diploma reject the idea of reducing space for car traffic in the future, while almost half of those with a high school diploma can imagine doing so.
  • Supporters and opponents of the mobility transition were similarly represented in the participation process. It was noticeable that an above-average number of car drivers took part in Marburg.
  • The measures envisaged as part of Move 35 are viewed positively by the majority of people with high education in order to achieve the goals of sustainable mobility – in contrast to people without high education.
  • The very different assessments of the two educational groups are also evident in the (planned) voting behavior for the referendum on halving car traffic: the majority of people with high education are in favor, the majority of people with low education are against, and participants in the consultation process are divided.
  • Although satisfaction with the local institutions (mayor, city administration, council) was slightly better overall than in other project areas, it deteriorated significantly between 2021 and 2024 among people with low education.
  • The information on the participation process reached a large part of the population. Nevertheless, it was mainly highly educated middle-aged men who took part – typical of consultative participation. It had a relatively large impact on citizens’ satisfaction with the mayor, administration and council. As expected, people who welcome the measures of MoVe 35 tend to be more satisfied, while those who reject the measures express greater dissatisfaction.

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A prepared form of the results presentation can be downloaded here:

Results of our surveys in Offenburg (OG 2035): Final presentation

In a joint meeting with representatives from the city of Offenburg’s urban development and transport planning departments on October 11, 2024, the research group presented the results of the surveys conducted in connection with the participation process for the OG 2035 Transport Master Plan. The Transport Master Plan OG 20235 was one of a total of five planning projects that the CIMT research group studied intensively over several years in order to investigate the effects of consultative citizen participation on political attitudes, among other things.

Various formats were carried out as part of the planning process, e.g. online dialogs, workshops, local forums, youth participation and the establishment of pop-up measures. Further information on the OG 2035 project and the participation formats carried out can be found on the City of Offenburg website.

This planning and participation process was examined by the CIMT research group at Heinrich Heine University Düsseldorf independently (i.e. without being commissioned or influenced by the city of Offenburg), primarily with the help of surveys of Offenburg residents. For this purpose, a randomly selected part of the population in Offenburg was surveyed in 2021 and 2023. Further information on the research group’s surveys can be found here.

Selected results

  • Transport policy and the transport transition are conflicting issues in Offenburg – just like in all other project areas examined. All opinions were represented in the participation process, although those in favor of the mobility transition were somewhat stronger and car users were also less common.
  • Satisfaction with the local institutions (mayor, city administration, council) is rather average overall (and slightly worse than in other project areas) and deteriorated significantly from 2021 to 2023 in particular.
  • The transport measures adopted as part of the OG 2035 master plan do not satisfy all interests, but overall only a minority (20-25%) are really against them. People who took part in the participation process rate the results more positively overall.
  • As with most open participation formats, the participants are not representative of the population. They are mainly people with a high school diploma, middle-aged people and men.
  • The participation process had a (comparatively low) and overall negative influence on satisfaction with local politics and administration, whereby the city administration was rated more positively than the mayor and council, especially by the consultation participants. As expected, people who welcome the measures of OG 2035 tend to be more satisfied, while those who reject the measures express greater dissatisfaction.

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CIMT_AP_Offenburg_20250320_öffentlichHerunterladen

Results of our surveys in Marburg (MoVe 35): Final presentation

As part of a joint digital exchange with the city administration of the city of Marburg (including citizen participation and transport planning) on September 25, 2024, the research group presented the results of the surveys in connection with the participation process for the MoVe 35 mobility and transport concept. The MoVe 35 project was one of a total of five planning projects that were intensively investigated by the CIMT research group over several years in order to examine the effects of consultative citizen participation on political attitudes, among other things.

Various participation formats were carried out as part of the planning process, e.g. an online survey, workshops, a project advisory board and an online dialog on public transport. A (council) referendum was also held in connection with the mobility concept. Further information on the MoVe 35 project and the participation formats used can be found on the city of Marburg’s website.

This planning and participation process was examined by the CIMT research group at Heinrich Heine University Düsseldorf independently (i.e. without being commissioned or influenced by the city of Marburg), primarily with the help of surveys of Marburg residents. For this purpose, a randomly selected part of the population in Marburg was surveyed in 2021 and 2024. Further information on the research group’s surveys can be found here.

Selected results

  • As in all of our project areas, transport policy and the transport transition are conflicting issues. In Marburg, however, there is a particularly clear contrast between the educational groups. For example, the majority of people without a high school diploma reject the idea of reducing space for car traffic in the future, while almost half of those with a high school diploma can imagine doing so.
  • Supporters and opponents of the mobility transition were similarly represented in the participation process. It was noticeable that an above-average number of car drivers took part in Marburg.
  • The measures envisaged as part of Move 35 are viewed positively by the majority of people with high education in order to achieve the goals of sustainable mobility – in contrast to people without high education.
  • The very different assessments of the two educational groups are also evident in the (planned) voting behavior for the referendum on halving car traffic: the majority of people with high education are in favor, the majority of people with low education are against, and participants in the consultation process are divided.
  • Although satisfaction with the local institutions (mayor, city administration, council) was slightly better overall than in other project areas, it deteriorated significantly between 2021 and 2024 among people with low education.
  • The information on the participation process reached a large part of the population. Nevertheless, it was mainly highly educated middle-aged men who took part – typical of consultative participation. It had a relatively large impact on citizens’ satisfaction with the mayor, administration and council. As expected, people who welcome the measures of MoVe 35 tend to be more satisfied, while those who reject the measures express greater dissatisfaction.

Download presentation

A prepared form of the results presentation can be downloaded here:

CIMT_AP_Marburg_20250320_öffentlichHerunterladen

Further Development: Recommendations for Action in the Use of Consultation for Mobility Transitions

In a presentation at the Dortmund Conference (dokorp) 2025 “Reasons for planning in time of multiple crisis”, Katharina Holec, Laura Mark and Tobias Escher presented further selected recommendations for dealing with planning conflicts in the context of the transport transition. The presentation arose from the ongoing work on recommendations for action, which was developed by the CIMT research group as a synthesis of the various strands of research and in cooperation with practitioners.

These recommendations are derived from various research findings from the CIMT project. They are based on quantitative data from surveys of more than 2,000 people and qualitative data from more than 20 interviews on various mobility planning processes in three German cities, as well as a quantitative analysis of the participation landscape in Germany based on an extensive database of over 350 transport-related participation processes that we have built up. Following feedback from practitioners, they were revised and put into a coherent form.

Recommendations

For the presentation, the following two recommendations were selected from those developed to date and presented for discussion:

It is not the primary task of consultation processes to reach a consensus on fundamentally controversial issues such as the mobility transition.

Compared to the presentation at the CMUS conference in Aalborg, this recommendation was slightly adapted and reformulated in the process of developing the recommendations for action, so that consensus is still not seen as the primary task of consultation procedures, but can at least be sought as a partial aspect. Furthermore, it is emphasized that the transport transition is fundamentally controversial. The derivation of the recommendations for action can be found in the contribution to the Mobilities Controversies Conference in Aalborg 2024.

The results of the consultation must be supplemented by other perspectives in order to arrive at a balanced decision in the interests of the mobility transition!

Here, too, the wording was slightly adapted after discussion with practitioners. The wording was changed primarily to make it clear once again that decisions should primarily be made in the interests of the mobility transition and that these should also be balanced for different socio-economic groups.

Presentation and publication

We are currently working on a compilation of these and other empirically based recommendations for the use of participation in the mobility transition.

5th workshop for practitioners on recommendations for action generated from the results

On October 31, November 7 and December 11, workshops for practitioners were held at which we presented recommendations for action and discussed them with the participants. The participants were administrative staff responsible for citizen participation in the various municipalities with which we cooperated and who were involved in the planning and implementation of the participation processes that we examined in our research.

In the course of our investigation of various open consultative participation formats on the topic of urban mobility planning, we were able to generate various findings from which theses can be derived. In a further step, we combined these numerous theses into seven recommendations for action, which are intended to support the implementation of consultative participation formats. At the beginning of the workshops, we used an example to outline the path from insight to recommendations for action before the practitioners themselves got involved and were able to leave comments in our mind map. With the help of digital sticky notes, they added their opinions, additions, criticisms and experiences to the individual recommendations for action. This was followed by discussions on individual recommendations for action. Important points were:

  • The usefulness of the recommendations for action in participation practice as tools for classifying one’s own participation
  • The usefulness of the recommendations for action in participation practice as an aid to justifying the importance of participation

Overall, the experts agreed that the results of our research are very helpful in communicating the challenges of citizen participation and the resulting consequences to policymakers. In addition, many of the practitioners noted that they found the link to the results of the research clear and structured. Some had the impression that participation and specific consultations are viewed critically in municipal administrations. They share the view that our results can help to train administrative staff and make them aware of the usefulness of participation procedures.

Major points of discussion in the workshops were

  • the specificity of the recommendations for action and the inclusion of examples in the presentation of results
  • a potentially stronger emphasis on the transparency aspect through the recommendations for action
  • an arrangement of the recommendations for action in the chronological order of a participation process

The planners note that the recommendations for action could be made more specific in order to clarify their practical relevance and make them more likely to be applied. In the form in which they were presented, they were rather general and always in strict relation to the results of the research. It was suggested that the recommendations be underpinned with examples from specific participation formats. For example, our research objects could be mentioned, which form the basis of our findings, the theses and thus also the recommendations for action.

Although reformulations and concretizations have been made, examples cannot be found directly in the recommendations. This would have been complicated, especially with regard to the partly abstract quantitative results. However, some examples from the specific participation processes form the basis for the development of the recommendations for action and are sometimes used to underline their importance.

Another aspect that the experts raised is that different tasks and questions arise at different times in a planning process. Some of the seven recommendations for action relate to the planning, implementation or evaluation of the procedures. It was suggested that specific attention should be paid to the participation process and that the recommendations be arranged according to the different stages. This was implemented in the order of the recommendations.

At the end of the workshops, we asked for suggestions for the publication of the results. It was emphasized how important it is for the planners to be able to find these recommendations easily and it was recommended to use existing networks in order to disseminate the results as widely as possible.

We would like to thank the practitioners for their time and important input – and to a large extent for their years of cooperation. We gained many important insights and suggestions that will help us in our work on a helpful and practical publication of recommendations for action.

Addressing Mobilities Controversies through Public Participation?

In a presentation at the C-MUS Congress 2024 in Aalborg (Denmark), Katharina Holec, Laura Mark and Tobias Escher presented selected recommendations for managing planning conflicts in the context of the transport transition.

These recommendations are derived from various research findings from the CIMT project. They are based on quantitative data from surveys of more than 2,000 people and qualitative data from more than 20 interviews on various mobility planning processes in three German cities, as well as a quantitative analysis of the participation landscape in Germany based on an extensive database of over 350 transport-related participation processes that we have compiled.

Recommendations

For the presentation, the following two recommendations were selected from those developed to date and presented for discussion:

It is not the role of a consultation to reach a consensus!

This is derived from the fundamentally conflictual nature of transport planning, which is also reflected in our data and could not be satisfactorily resolved by the participation formats analysed. For example, in the freiRaum Ottensen project, despite extensive participation, 21% of participants were still dissatisfied with the decision made, and 74% of the population were not even aware of the opportunity to participate. This means that the aim should not be to resolve conflicts, but to create a forum for dialogue and the generation of ideas, and that participation should not be judged by the degree of conflict resolution.

Consultation results must be complemented with other perspectives in order to come to a balanced decision!

Participation results can provide a picture of existing concerns and should be taken seriously, but firstly they do not reflect the general mood of the population due to their lack of representativeness, and secondly it cannot be assumed that all important aspects for the mobility transition are included or that mainly supportive contributions are made. This means that consultations should be supplemented by other forms of participation. Participation results should be supplemented and weighed up with other perspectives from different stakeholder spheres and cannot replace a bold political decision.

Presentation and publication

We are currently working on a compilation of these and other empirically based recommendations for the use of participation in the transport transition. This publication will be linked here once it has been finalised. The presentation can be downloaded here:

CIMT C-MUS 2024Herunterladen

Sustainable mobility and housing for families (in Düsseldorf)

In this presentation for the Düsseldorfer Familientisch, a network of various stakeholders in Düsseldorf, Tobias Escher explained why mobility and housing are closely linked. A transformation of the current car-centred mobility system is doomed to fail without a simultaneous change in housing policy – and not just in cities. He began by explaining that sustainable mobility is more than just making transport more environmentally friendly, but also targets traffic noise and road safety. Using the example of housing for families, he showed how their concerns and needs differ greatly between those who live in urban centres and families who settle in the proverbial ‘little house in the country’. For both groups, he presented a range of measures that can be used to promote more sustainable mobility options. These range from promoting opportunities for working and shopping nearby to more appropriate pricing of public space.

The event took place on 12 June 2024. There is more information available from the official record of the event.

Acceptance for transformation projects through public participation? A plea for more realism

In this article in the eNewsletter Netzwerk Bürgerbeteiligung, Tobias Escher, Katharina Holec and Laura Mark make the argument for a more realistic view of the role of citizen participation in the sustainability transformation. Based on four theses, they explain that conflict resolution – even though this is often associated with participation – does not do justice to the role of public consultations, but that consultations are nevertheless indispensable in the political shaping of transformation.

Summary

The article puts forward a total of four theses, each of which is supported by findings from the research of the CIMT project. These are as follows:

  • Thesis 1: Citizen participation can lead to mutual understanding, but generally not to a consensus on fundamental conflicts of interest.
  • Thesis 2: Citizen participation provides an insight into existing interests and concerns, but not a representative impression of public opinion
  • Thesis 3: The results of participation do not guarantee support for sustainable transformation measures.
  • Thesis 4: Citizen participation is a support, but not a substitute for political decisions.

However, this does not imply that citizen participation can be dispensed with! Instead, good participation can provide support by giving information and thus, for example, overcome resistance that is primarily based on a lack of knowledge. It also uses local knowledge to recognise problems and develop new ideas where necessary. Finally, it provides a forum in which wishes and concerns can be expressed and arguments exchanged. This can lead to less protest. It can help to identify lines of conflict more clearly and to better understand the causes of conflicts. Citizen participation can thus contribute to dealing with the conflicts inherent in the transformation, but it will not usually resolve them. Last but not least, citizen participation remains a democratic imperative, as citizens should be able to shape far-reaching decisions.

Publication

Escher, Tobias; Holec, Katharina; Mark, Laura (2024): Akzeptanz für Transformationsprojekte durch Bürgerbeteiligung? Ein Plädoyer für mehr Realismus. Hg. v. Stiftung Mitarbeit. Bonn (eNewsletter Netzwerk Bürgerbeteiligung, 02/2024). Online verfügbar hier.