CEU eTD Collection A SSESSING In partial P ARTIC Supervisor: P fulfillment forthed M IPATORY UNICIPALI D OE Central E Department S A P rofessor TIES P AR PROACHES Budapest, Hungary Mirna Skrbi TIC Submitted to IN egree o uropean B IPA V 20 ofPublic OS By alentina

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6. Findingsand 5. Methodolog 4. Anal 3. Participa 2. ALiteratur 1. Introduction: List Table Abstract T Annex: References 7. Conclusion a

6.3. Participa 6.2. Meaningfulness 6.1. Municipal 5.2. Sampl 5.1. Research 3.2. Participa 3.1. The 2.2. DoesParticipat 2.1. Defining ble of ofAbbreviations

6.3.3. Institutiona 6.3.2. Impl 6.3.1. Intensit 6.2.7. Earl 6.2.6. Transparenc 6.2.5. Independence 6.2.4. Representation 6.2.3. Structured 6.2.2. Resource 6.2.1. Task 6.1.3 6.1.2 Maglaj 6.1.1 Petrovo ofContents yt ListofInterviewees ...... ic Legal al

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out thatinternational monitoring (cc D re sed municipal ng evelopment a. sources tosupport s) (REC2009). suchasOSCE’s“ 51%ofBiHmunicipalit reflectsomeoftheobstacles tostrategyimplementation. plan. 2007, atleastnominally str m developed ofproject unicipal andevaluation ategies completely Moreover, 15).This m Planning” asse unicipal level USAID’s“GovernanceAccountabil ities s ssment progra aboutahalfofthem.N ajority, upport, m s (UN on only m Local trategy implementation anage ity’s nal developed (IL ay changewith capital oflocal 81%, DP RMA 11%ofm andnational on however, FirstInitiative” DP) project ment skills ies relevant thecreation hadastr investmentplanning oflocal development m hasintroduced with P 2007a); totheir is unicipal andc g oftenlimited org ( ategy ofsomesorta theparticipati development reater emphasison Dimova ofLocalEnvironmental ( anizatio evertheless, Budisa 2009) work, apacities ities the (UN strate declaredtheyhad Re 2009). DP RMA rights-ba andonly ns gional tothedevelopment gies ( (Miovcic in ity str GAP 2009). on only Project”(GAP) thefield innew ofcitizens, ategies andUN Environmental

t thattime). sed 23%of P 2005, 49%of Themost 2009;

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CEU eTD Collection process endsbecausethecivil process is by assistance necess participati final Citize process, approaches methodologies A projects, Heinz considering of humanandfinancial strategies m what its W strategies (2007, with implementation role

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maybeonthe trategies, despite provider development m resourcesforimplementation donotdefine m financial mo unicipal ng com thoseofvulnerable process,sothattheadvisory unicipal m ies st vulnerable societyminimally butthe missioned ay betaking instead. havesm plan isneglected ities m finaloutcomesoftheprocess,given ad planning anage theend. approachwasconducted in alsoshowsthatinvolvement (ibid, their significance ministrations their P all byUN articipation g development ment skills keyneedsandgoalstorealize placethrough 35).While significant roups in inBiH. (ibid, Obst groups,donot is DP BiH, involved ofparticipation 37). oftencannotprovide acles orderto ofthecivil –havetobe According (Misic2009) mo contribution

andtechnical budgets(Heinzl toimplementation Miovcic givesareviewofkey international st methodologies inthe eng haveam sectorin ’s tothe age themin ane implementation, st t andcapacities iss ofs aken tothecreation udy ofstrategy a ffective aid projects, takeholders report,while ssistance is ajor thatdevelopment into 2009). theseneeds. a todecline theplanning dequate technical encourage –sucha ef theplanning accountwhen m fect on a

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CEU eTD Collection authors constructanddivide question fra and whatprocessescontribute important effective. For thefirstquestion, relating BiH, participati As outlined 4 of questionsthatcorrespond invo effectiveness process In and whether respectively . Ana line mework, lvement in criteria with thethreeselected todevelopment. (ibid). According l

, on tounderstandwhatres ytical F of the influe which amodifiedRowe inthe relatetothepotential itscreation took include Dr nce, procedurewhile place introduction, as awing and toRoweandFrewer,answerwhatconstituteseffectiveness, sesses e r

resource “ amew

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fro c ases, andwhether m other

ffectiveness uptheir toeachcriterion ac andF towardthese”(RoweandFrewer2000, or cessibility aningful thisstudya acceptancecriteria ults k acceptanceoftheparticipatory (SeeRowe

rewer evaluation rese criteria ofa t , aken mannerin task d ofparticipation, arch participati ttempts toanswertheque toimply into ithadanimpacton wereeffective(ibid, onevaluation etal.2004, efinit (ibid,

io a development cce n, 99-101) include fra on

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CEU eTD Collection stakeholders, Under participants’ of decision- resources, time,andinformation. participants’ task, aimsandscopeoftheprocess; Thus, forthepurpose participated internatio the 11 10 decision- public the focuses onparticipants’ engage a not compl e as ane Int the proc proc effe contextofthis process. Questions ccordan xcluded i ervie ity ctiveness a ment, esses cceptance on valu making partoftheprocess. nal ess.. w ce withthec inre n theinterviewg y withthecont in making anddiscussion guide theprocess. ation w co skill Transparency andthemunicipality’s agencyrepresentatives, balance

w ere rewordeda thecreation mmon understanding lation toother as exclud tooltob andunderstandingaccesstoade available criteria, re search betweenindiv ircumstances ofm ed, be control e filledinby concernsrespectoflegislatio ext. This Early invol uide astheyw uponrequest.

nd adjustedtotheintervie representativeness ofdevelopment 10 pot y study,under cause itwouldhav , andincorporated ential particip is overtheprocess, ofthep Under inl procedures,their vement co xternal ev iduals m Thecriterion ine withthere

oftheprocessandcompetencewasa resource ould hav mmitment in unicipal articipatory process

structured de concerns concerns anddelegatesofcert atory process strate a e beend aluators e meritedresearchbe cc m representativesor essibility into criteria, w format, ethods, cognition thattheimportanc externalfacilitation gies. of theentry-point ( ifficult theselection, gettingthemenga cisio Rowe eta in-depth consistencyandflexibi influe n

quate financial, isas andtoho on n- (ibid,92).Forex

todoa astheorigin tas making a nce sessed throughtheprismof k definiti l. 2004,96).Som ccess toinformation , although interviews yond thescopeofthis cost ain w muchparticip , theorganization, identification m groups,participants’ ofparticipants a on al frameworkwasconstructed embers ofthepublic nd benefitan concernsthe , human,physical andexternal ged. ample, thecriterionofcost- a 1 1 e of ddressed in with

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CEU eTD Collection Intensity ability outcomes becau and to meaningfulness oftheprocessitself practices (strategies), development The question posed original 13 12 participants adoption. the the the style, i This in c frame s finalproposal s The municip ertain projectsfrom corporated trategy proposal, trategies, i.e., bytheresearch. toimplement beableto qu ofimpacton fr work .e. wh 1 2 In amework underacceptancecriteria, estion Here,the on

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on abouttheextent of participants’ aredivided ment. l. 2004,1 work wasrewordedtoaddress ling certainissues. policy- instituti s which projects cy-making proc re ” again,

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hasbeenimplemented instituti ortheir inhandling beenaddres ms ofinstitutiona

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22

CEU eTD Collection and control To ensureforsomevariation 5 reports, local stakeholders, was conducted.Primaryre municipalit The thesis 5 5 14 .2. Sample .2. .1. . Methodol S • • • • Res ee Ann citizens s than The municipality the the Strategies where Strategies The strategyhadtobederived Institutio urveys, earch ha ex 1for latesttobeable processands ies forbias,thefollow 80,000 involved sucha s aqu in m

andav BiHthatcreateddevelopment unicipal Design n thefulllistofinterview hadtobeadoptedin hadtobesponsored o 2009), alitative g inhabitants s representatives y inthe ailable ities couldnot ufficient ass search entails and Techniques and rese toseetheextentofitsimplementation. would s both mall docu trategy creation (Working ing arch timetodeterminethe andac criteria inapproaches beacutelyundeveloped, beselectedaccording mentation de ofinternational ees. Interviews throughparticipatio byaninternational 2006 sign, 20 utely G

were applied s andcomprisesacompar roup 2009; theearliest emi-str process.Secondary undeveloped ofthe strate

toparticipation a vail uctured interviews planning organizations, gies. able uponrequest. F when toensureparticipants’ outco topredominant ederal Development P development n. municipalit s rimary andsecondaryresearch maller s processes. me ofthe electing , re planning municipal than5,000, search focuseson ative 14 three ies with a process,and2007 cases gency donorsin m m ay lack c key ethodology, officials ases: Planning ordonor, me or tudy ofthree

larger mory of financial thefield.

and

23

CEU eTD Collection 15 FBiH (UN municipalit variation, strategies wereidentified and analyzing found to By conducting

outcom signific simultaneously onthecr BiH. For Anoth • • • Due totimeandbudgetconstraints,proximity fra the At Election where municipalit continuity the As municipal succes strategic location and humanresource haveso er antly, wer a e. leastoneofthecaseshadtobefroma meworks. e domin DP). differentlevels period s explained ies asier ac the wereselected: m ses in rese Com ayor andcouncil’s ant me sortofdevelopment e eliminat s since2006 theycover(Dom cess ies trategies, three arch, a ter

ctor identifiedw strategiesm toinformation, with mission laterin ms ofoutcomesde eation ofseparatestrategies,or primarily –OSCE, anda ed duetopotentialdifficulti off as s to P werechosen, 2004a, thethesis.Afterapplying ame partym etrovo unctional ccess togreaterfinancial implementstrate ay beabandoned predominantdonors viathe as U majority IchosetheMDP.Municipaliti ancic a 2004b, ND in USAID/PADCOprojectthat app RS(MD andfiscaldecentralizatio P, Internet, 2009) strategya spite ayor beforeandafter2008, given andM partycorresponded, 2004c, thestrategya , only es P), Maglaj, thatlocal w gies, different DP. ine 99outof142 ifthereis dopted. 2008). here a m valuatin while

to 15 thatsponsoreddevelopment andhu there unicipal Their ctivities andmethodologi thecapital . elections

entity, F By consulting largermunicipalit g theplanningproc a es doption BiH maining changein w m man resources,ma ities werechosen(BiH here differentsponsor BiH n ethodolog (OSCE),andVisoko, RSorFBiH, andslightly ears thathave w wereheld . m andatleastoneterm criteria, tonolong as alastcriterion. unicipal governmentduring relevant ies ess hadpolitical es ies, three showsome in different beca andits ov er ities op 2008. dueto y bear reports erlapped Central s erate in were

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CEU eTD Collection the July on primarily called potential of three planni participati me ( process foreachmunicipality While 17 16 participati national municipality specific mbers ofpartnerships w Thetotalnumberofintervie S c 2009. ith ee list ase ofVisoko, fromthelist selecting ng t wo persons tofourparticipants development processwereidentified valuable becauseofdifficult ofintervi Fortheca on on planning recordsin in , private, interviewees, theplanni simultaneously. ewe so thatwerewilling five. processesin urces ofinformation se ofPetrovo, es NG a inAnn indiv gencies/organizatio 16 orplanni Five ng O, sponsor ws theyrecom processesingeneral. theaimwastointerview a ex 1for idual , refle who ccess toparticipants. m andinterviewed m ore interviews municipalit cts ng fourwereconducted,forthecaseofMa wereprefer d unicipal totalkwerethen thenumberofinterview etails. com etc.)tohaveawide mend asactivein on mittees wasbasedonavailable ns ities theprocess.Thefirsttwoor conveying ies. ably wereconductedwith wereconducted Municipal .

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totalof15 atleastthreestakeholders interviewed. their ees. In theplanni r ange ofviews. representativesinvol experiences somec inJuneandbeginni s emi-str ofdifferentsectors Thism ng keyinternational ases, processanda documentation theint uctured interviews Theselection threeparticipants re ethod glaj, garding contact erview w six, in wa ved the andfor s applied

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CEU eTD Collection municipality Petrovo’s forthcoming). prior Decisio through RS Petrovo 6.1.1 6.1. 6. me formed, ma NG was for developed economic prepared assistance in ( mbers (Pejic Findi O representative. itizati Munici Petrovo

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development thepublichearing 2007-2012 byOSCEandUN ovo ng ofprojects/problems de upofrepresentatives toas Municipal thecreation Petrovoimplemented al pal dopted s and 2007, m Profiles unicipal maller purposeofstr mework, Strategic Awider 39-40). bytheMunicipal Ana ity strate extent(MD ofthestr 2006, proce ity with

, and Petrovohas,with

DP. Amultidiscipl l gy, P D ysi dure 5; artnership r evelopment apopulation 59). ather ategy creation, , s Decisio ategy (PetrovoMunicipal Decisio oftheprivate, OSCE’s“Ugovor”project P 2008, Inaddition thanam Asse n n on Group( on Planwasfinancedby 4). NGOprojectsselection mbly opinio ofcc theassistanceofCCI E inary ulti-sectoral ma (MA)in DA provided toparticipatory NG PG) form n de upoffourmunicipal a. polls Municipal 9,290, O andpublic ( surveys) 2006 ity development islocated unicipal 2006, expertandadvisory (OSCE“Ugovor”2008a). D ( inLCs procedureandcriteria Pejic mechanism theM evelopment sectors,with 3).Theplan andM development 2007, in

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trategy encompas OSCE’s“ G sports,health 2007, isdescribedasconsultative

Zenica-Doboj 1 roup 8 intheMDP wa ofprojectsfromthe ce (M M ation. Asituation ic activities wi 13). s established 17-18). andthe ( groups, unicipa DP 2006a). LAG), basedon th thebest Ugovor” in Within

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CEU eTD Collection “Ugovor” 2008c). participatory populatio Visoko 6.1.3 V methods ofstrate (Municipal situation committee wasdivided Group ofupto5 as economics, the participatory 19 representatives planni 2006a, are perceived internatio priorit with The ToR (OS TheMa m multi-sectoralRights-Ba theassistanceofU ayor, the ng ies 4)

isoko is anindustrial analysis(ibid, process(ibid). anddevelopment Thereisane n nal yo Council isestimatedata CE “U r andnational m m andthe asneedsofcitizens c presidentofthe servea echanisms prescribed anner (OSCE ulture, govor” m gy creation,

Maglaj, embers w presidentofthe sports,engineering municipality s facilitators, mphasis 98). n.d.) upinto RMAP’smethodology ND legalfra interventi Thes 2007) round P’s RMAP.Therights-based(RB)approachimplies sed Development “ includi as createdtoman Ugovor”.n.d.). onparticipatio 6sectoralWorking MC into trategy wa Me 40,000 m mework; andtogether locatedin 1 9 unicipal council ng bylaw,Visoko , and14 mbership, ons claimsforrealization individual (UN areplanned etc(MD moreover,the s adopted otherme Itwasaco F DP RMA n, dictatesaprocesswhereRMAP Strategy2006-2015 re age thework BiH, andinclusio withthe steps,weredefinedby sponsib are G PC ha nearthecapital forthemunicipality on8February2007 roups (WGs)andoneWGforSWOT mandator 2007, mbers thatwereexpertsin s taken P 2006a, widercom mmittee madeupof16me il R ities, oftheirrights B approach 98). ofthecom n ofvulnerable y partin“Ugovor”(OSCE members,accordin proceduresandt 5; Within forVisoko 13). ofSarajevo. munity Inaddition istotransformwhat mittee. the OSCE’sToR. bytheMC inline (U (representatives M groupsin ND w DPC, aCore The

that g as created withthe Its asks and P RMAP are t o theMDPC to

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28

CEU eTD Collection interviewees’ mechanism in For thepurposesofevaluation Meaningf 6.2. The strategyw strategy s thematic WGs;atm me process, The planni situation of NG 20 the Respondents 6. asse choosing mechanisms, thePG Judging by 6. organized 2.2. 2.1. Task mbers respectively representatives TheMDT level ssment bytherespondents. Os, LCs,municipal Resou anM ofparticipants’ in the uch asvision, according re ng themunicipality, wasconstitu

re responsesanddocu in Defin spondents’ processtook DT P rce Accessi as adoptedby spective allthree oftheNGO etrovo ulnes 2 0 andaP it eetings to andtheMD (Visoko ion andVisoko, development approach ted process own answers, c s of Participation of ases weregenerally officers),conduct by andbusinesssector placebetween G weres ofP bil beforethestartofplanning theMCin thema skills and m ity ofpartici

Gs unicipal mentation, option PC, the a andunderst andWGs,theywould yo andthe cce go et upasplanning context,scope r, appearedtobeclearly ptance andwas D als, pation’s ity andits J ecember 2006 orconcrete criteria. 2006). anuary andSeptember M (Omerbe whereavailable. aninitial s DPC in madeupofmunicipalrepres atisfied anding, a meaningfulness,the dequacy g Me

govic, andai a withthe bodies, mbers ofthePG M financial projects(UN sses (OSCE“Ugovor”2008c, (UN aglaj discus 2009) ms oftherespective sment on enerally defined. Thefollow werea madeupof11and32 DP RMAP2006b, av m s anddecide ailabi 2006. eans fortheplanning also ssessed through thehu Therationale DP RMAP2006a, P lity weredivided G a entatives, Throughthis receivedapositive ing ofresource s aparticipatory sections man rights onpartsofthe participatory and 5). 5). for afew a into

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CEU eTD Collection they organized, decision- that decisions Respondents 6. by the can note limited been Nevertheless, process, were partly representatives the their representative participants approaches respondents’ well In 6.2.4. 2.3. term s M OSCE,according trategic planni asthecom sh proposals beneficial DPC wereprofessionals Struc Re humanresource ared acom s ofrepresentation, f acolloquial making anddiscussion acilit presentat participants alsoin appearedtotar ofthe referredtoparticipants’ tured overall tworespondentsin hadbeen explained, ies, onMD oftheMCwereincluded in mitment equipment,expert theprocess. mon ng politics M Dec see language,andalooser consultantsandexpertsma DPC hadapredominantly ion toexpertise(Bradaric2009). competent underst PC m s duetothe bym med content isio political ( ade byconsensus.Theyagreedonthe m re get representatives Nalic, embership; n- spondents unicipal InPetrovo, intheir anding Making procedures;mo partiesandNG M.2009). Maglajexpressedopini tocontribute m knowledge with expertise ities on respective unicipal as proposed in theissue ininvit thewaythatdiscus respondentsgenerally sessed theselection thecommittee,andthat some otherme s InVisoko tructure tothecontent. ofgroups,ratherthanindiv ity’s a politica anda todebateanddecision- st thought s the y have sectors,gre ing Os werec sm m An s athand. relevant embers werethenchosen, keyselection all ccess toadeq MCrepresentative andP beenbeneficial. l size. background. ons theprocesshadbeenwell- alled

thatmoreexpertisewould ReadingMaglaj’sstrategy,one etrovo, ater facilitatio participants. sions proceduresasade flexibil on noted criterion. wereheld uate information. bythemayortogive theprocessappearedto Although Asa theproblem ity m explained aking, In andconsistency iduals. municipal n oftheprocess Moreover, all andstre me togetherwith threecase andthat In quate, as mbers of Ma thatfour mbers of

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30

CEU eTD Collection “Ugovor” 2005, citizens expert-oriented, representative rather than Representation of different participants; additional omitted drafted alistofparticipants participants be of the indiv emphasis on groups in Coehlo Another appears tohave opento idual vulnerable andCornwall andinterestgroupstohaveaninput f problem rom therosterofparticipants. participatory meetings…organized st anyonewho a a together akeholders inthatsenseWGsr theenga mechanismofparticipatory ctors, democracy. seem beenuptoMD ratherthan 17).While partsofthepopulation concerns depending withthe s to (2007), gement ofvulnerable processes.Only joined w beproblematic as interested. Although additional theinclusion in participation- thereisaneedforstrongfacilitation m onthesector. theWGsorwereconsultedin Petrovo, PC unicipal an in m a locations thecom sortofpublic stakeholders embers whomtoconsult. In U P InMaglaj, ity, foranu ofvulnerable …toavoid democracy,appearstobeanextendedarmof G m ND oriented, Visoko, groups,forexamplethrough according

into mittee mo P’s RBapproachto embers couldinvite mber ofreasons.First,MD thestrategicplanning st convenie fewre UN declaratively, wereconsultedthrough hearing,where m elite, torespondents. ay havehadthe groups.Asaddre DP representativesdraftedthelist spondents ormajority nt theprocessby forensuringfull

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CEU eTD Collection and PG be that focusoncertain (Heinz “a trueco out in 2004, approaches may beenoughtoovercome of the One mayalsowonderwhether processes, even process” (UN 22 21 precedence. development can tie include what the implemented,asin in V This pilot InVisoko,howe 42).However, aninterview, hu thisback isoko l ed byRMAPlat themin c 2009). me m annot bedet man rights’ mmunity strategy ain forlacking mbers,

projects, He objective DP RMA in m toWill ver, focus s Visoko, echanisms andcreatedifferentforawheretheycanparticipate thatthepeople ermined through thegoalofRMAPwasnottocreatea“vulnerable tressed thatunlike asfor er situ groups,in (He theca where elementsofed iams (2004) ofthe P 2006b, ation inzl 2009). groupswithvulnerabl it mer Chief ” thattargetsvulnerable isnotcertain se ofRMAP,one local e andconsultation project mpowerment through f a acilitat multi-sectoralprocessthathadto 6). thisresearch,andrequiresamore in-depthstudyoftheloc powerrelations. hadknowledge. andheremphasison 21 Technical Although processesthathavemorenarrowly ucation w ion as: Whether oftheplanning whetherfacilitatio e groups forthemostvulnerable neededtomakes withvulnerable Advisor UN Heinz VeneKlasen groupsandbringstheminto w DP serveda it participation ere notconduct w ofRMAPChristian them as toempowerthesegroupsor l alsostressedthatalldepended process, n amplified ultiple g etal.critici ure, s afacilitator roups through m anextensiveasse ed; this re while ay notnecessarily objectives (VeneKlasen sult groupss leastvocal w foc instrategythatc selecting as ze Henzl a used area theRB in pproach was trategy“ but foc of the (ibid). theprocess pointed

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CEU eTD Collection CCI Budisa, Na Bradari Innes, Blomgren Bingham,Lisa,O’Leary,Rosem ______. Cooke, Cleaver, Central CCI. . 2007. 2009. Judith Bill andEa c, Uma Kothari,36-55. Approaches [acce es-for http://www.ceecn. Citize making processesin participati the 547- Work Governance: http://www.i [acce 2002/Rezultat http://www.i Books. Participation: Frances.2001. F

21stCentury.” tasa. 2009. erhat. 2009. andU Uces Izvjestaj ostanjuucesc 558 ssed April ssed June1, E.andD ofGovernment. ns' -civic- stern ce gradj participatio ma Kothari. on theN initiati toDevelopment.” E P in zbor zbor Interview ana u i200 uropean avid ractices andProcesse Interview 4,2009] “Institutions, decision- 2009] ew Tyranny i.ba/Mandati2 i.ba/Documents/Rezultati%20i ves-1&catid=37 Planning 4/Kratki/Opci donosenju E.Booher. net/index 2008). n London: in 2001. ” Citizens a gradjanjaudonosenju bya 2008. thebudgetingprocessatlocal Public Administrat byauthor. m Theory Center aking ? ed odlukaza2008. “TheCaseforP uthor. .php?o AgencyandtheLimitations

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CEU eTD Collection Gaventa, John. GAP. 2009. Dom Dimova, Marina. Delic, Cosovic Cornwall Hailey, Gavranovic ______ancic, Sulejman. John. 2009] http://www2. Democracy’ _. Learning _. Zed Books. to possibi 3, http://www.b capital development Participation Participation Zed Books. Participation: , Mugidim.2009. , P 2009] 2006. 2004b. AndreaandVeraSchattan Marinela. articipation , Nihad.2009,

Planiranje 2001. projects) lit 2004a.

2007. Triumph, theLe ies”. 2009. “Strengthening Debate in “ theN inNewD projects). Beyond 2009. in NewDemocraticArenas i In ids.ac.uk/logo ihgap.ba/bs/gap_komp/p “Toward

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