An Analysis of Public Participation in the Water Industry
Total Page：16
File Type：pdf, Size：1020Kb
UNLV Theses, Dissertations, Professional Papers, and Capstones 12-1997 Public Participation Program Development: An analysis of public participation in the water industry Marcia Lynne Holmberg Univeristy of Nevada Las Vegas Follow this and additional works at: https://digitalscholarship.unlv.edu/thesesdissertations Part of the Civic and Community Engagement Commons, Communication Commons, and the Water Resource Management Commons Repository Citation Holmberg, Marcia Lynne, "Public Participation Program Development: An analysis of public participation in the water industry" (1997). UNLV Theses, Dissertations, Professional Papers, and Capstones. 279. http://dx.doi.org/10.34917/1480617 This Thesis is protected by copyright and/or related rights. It has been brought to you by Digital Scholarship@UNLV with permission from the rights-holder(s). You are free to use this Thesis in any way that is permitted by the copyright and related rights legislation that applies to your use. For other uses you need to obtain permission from the rights-holder(s) directly, unless additional rights are indicated by a Creative Commons license in the record and/ or on the work itself. This Thesis has been accepted for inclusion in UNLV Theses, Dissertations, Professional Papers, and Capstones by an authorized administrator of Digital Scholarship@UNLV. For more information, please contact [email protected]. PUBLIC PARTICIPATION PROGRAM DEVELOPMENT: AN ANALYSIS OF PUBLIC PARTICIPATION IN THE WATER INDUSTRY Marcia Lynne Hoimbeig Bachelor of Arts University of San Die»o I9S8 A thesis submitted in partial fulfillment of the requirements for the degree of Master of Arts in Communication Greenspun School of Communication University of Nevada. Las Ve«as December 199" PUBLIC PARTICIPATION PROGRAM DEVELOPMENT: AN ANALYSIS OF PUBLIC PARTICIPATION IN THE WATER INDUSTRY by Marcia Lynne Holmberg Bachelor of Arts University of San Diego 1988 A thesis submitted in partial fulfillment of the requirements for the degree of Master of Arts in Communication Greenspun School of Communication University of Nevada, Las Vegas December 1997 1998 Marcia L. Holmberg All Rights Reserved Thesis Approval The Graduate College University of Nevada, Las Vegas November 21 /19 97 The Thesis prepared by Marcia Lynne Holmberg Entitled Public Participation Program Development: An Analysis of Public Participation in the Water Industry is approved in partial fulfillment of the requirements for the degree of nf Arf-.q in Cnrrnnnm rat i on Examination Committee Cliiitr Dean of Ihc Graduate College Exttininntion. • Committee. Member rihhitite College Fticultt/ Representative ABSTRACT Public Participation Program Development An Analysis of Public Participation in the Water Industry by Marcia Lynne Holmberg Dr. Gage Chapel, Examination Committee Chair Professor of Communication University of Nevada, Las Vegas The field of public participation is a distinct, but yet unpolished facet within the public relations industry. While the purpose of and need for public participation are becoming increasingly clear, many remain unaware or unconvinced of its advantages. Likewise, even among those who endorse the necessity of public participation, its methods and strategies continue to be a mystery to most. One industry, in particular, that has recognized and embraced the benefits of conducting public participation is the water utility industry. The purpose of this thesis is to 1) crystallize the understanding of why public participation is a necessary and advantageous tool 2) to exemplify how to conduct public participation by providing both general guiding principles and a specific conceptual framework for program implementation. 111 TABLE OF CONTENTS ABSTRACT iii ACKNOWLEDGMENTS vii CHAPTER 1 INTRODUCTION 1 Thesis Justification 2 Research Methodology 4 Literature Review 5 Personal Experience 5 Public Participation Overview: Industry Context 6 Public Relations 6 Media Relations 6 Community Relations 6 Public Participation 7 Public Participation in the Water Industry 9 CHAPTER 2 REVIEW OF THE LITERATURE 10 Historical Overview 11 Water-Related Issues 14 Water Resources 15 Water Rates and Financing 15 Water Quality 16 Developing Countries 16 Construction 17 Operations and Maintenance 18 Risk Communication 18 Emergency Planning 19 Education 19 Integrated Resource Planning 20 Privatization 21 Wastewater Recycling/Reuse 21 Ground Water 22 Conservation 22 Public Participation Programs 23 IV CHAPTERS MOTIVATING FACTORS 25 Why Public Participation: Motivating Factors 25 Regulatory Factors 26 Financial Factors 28 Political Factors 30 Facilities Siting and Construction Factors 31 Operations and Maintenance Factors 33 Supply and Demand Management Factors 34 CHAPTER4 CONCEPTUAL FRAMEWORK 36 How to do Public Participation: Conceptual Framework Introduction 36 I.E.I.E.: Conceptual Framework Overview 37 Investigation 41 Definition and Description 41 Audience Identification 42 Direct and Indirect Impact 42 Special Interest Groups 43 Project Opponents 43 Audience Diversity 44 Issue Identification 45 Stakeholder Analysis 45 Public Opinion Survey 46 Focus Groups 52 Education and Incorporation 53 Definition and Description 54 Meeting Forums 56 Public Hearings 57 Public Meetings 57 Community Presentations 59 Public Information Fair 60 Small-Group Meetings 61 Citizen Advisory Committee Meetings 62 Evaluation 64 Definition and Description 64 When to Evaluate 64 Post-event 64 Project Milestone 65 Project Completion 65 What to Evaluate 66 Procedural Satisfaction 66 Communicative Effectiveness 67 Project Success 68 How to Evaluate 68 Check Lists 69 Observation 69 Survey 70 CHAPTER 5 CASE STUDY 72 Investigation 73 Identify and Understand the Audience 74 Example 1: Assumed Environmental Audience 74 Identify Key Issues 75 Example 2: Calico Ridge Homeowners Association 75 Education and Incorporation 76 Informing and Involving the Public 76 Example 3: NIMBY or IMBY Please 77 Early and On-going Communication 77 Example 4: Public Scoping Meetings 77 Evaluation 78 Participant Observation 78 Example 5: Project Team at Public Information Fair 78 Evaluation: Validation or Variation of Audience 79 Example 6: Audience Realignment 79 Example 7: Process Adjustment, Postcard Notice 79 CHAPTER 6 CONCLUSION 82 CHAPTER 7 SUGGESTIONS FOR FUTURE RESEARCH 86 Target Audiences 86 Diffusion Theory Analysis of Public Participation 87 Public Participation in Various Industries 88 Public Participation Program College Curriculum 88 Risk Communication 89 Solicit, Consider, Ignore, Decide (S.C.I.D.) 90 Final Thoughts 91 REFERENCES 92 VITA 109 VI CHAPTER 1 INTRODUCTION After spending the past six years as a public information officer in the water utility industry, I have gained a solid understanding of the purposes and processes for designing and implementing public participation programs in this field. Public participation occurs when a water utility (utility) expands its community relations outreach efforts beyond just informing the public, and creates vehicles for involving them as well. Public participation programs help establish an on-going dialogue between the utility and the community which fosters shared ownership and community support for a utility's project. However, in the water utility industry today many utilities have not faced the reality that the public wants to be involved and that in order to gain public support for their projects the utility must find a substantive means of involving the public as they embark upon decision-making processes. There are also many water utilities who have realized that they need to do public participation, but are apprehensive because they are unsure of how to go about initiating a public participation program, or are reluctant to take the chance. Whether it is ignorance or avoidance that is keeping water utilities from utilizing public participation programs, this thesis strives to provide an explanation of "why" public participation is necessary, supply tools on "how" to conduct a public participation program, and demonstrate through a case study that conducting a public participation program can have a very positive outcome. The purpose of this thesis is to answer the following two questions: 1) Why is it necessary and/or advantageous to conduct public participation programs within the water utility industry?; and 2) How can a water utility develop and implement a public participation program? Thesis Justification There are four primary reasons why I have chosen to focus on the "whys" and "hows" of public participation. The first reason is public participation is an assumed norm: There is an assumption that public participation is an accepted norm within the water industry when in actuality many agencies have not "bought into" the concept of why it is important to do public participation. Because many of the larger government agencies are fully committed to public participation, there is an assumption that it is the standard and norm throughout the industry. And, while there are a growing number of water utilities that have embraced public participation there are an even greater number of utilities that have not engaged in true public participation, or that have only half-heartily embarked upon the process. The second reason is the need for new conceptual frameworks. There is currently a shortage of comprehensive guidelines or frameworks to help provide direction for how one would go about initiating and maintaining a successful public participation program. Because of this, I have elaborated a