Discursive Democracy and New Labour: Five Ways in Which Decision-Makers Manage Citizen Agendas in Public Participation Initiatives

New Labour's conceptualisation of public participation in local government creates a tension in public participation practice. Government legislation and guidance require local authorities to develop and provide citizen-centred services, engage the public in policy-making and respond to the public's views. Seen in this light, New Labour policy draws from radical democratic discourse. However, local authority staff are also expected to act in accordance with the direction set by their line managers, the Council and the government and to inform, engage and persuade the public of the benefit of their authority's policies. In this respect, New Labour policy draws from the discursive model of civil society, conceptualising public participation as a method for engendering civil ownership of the formal structures of representative democracy. Tension is likely to arise when the ideas, opinions and values of the local authority differ from those expressed by the participating public. This paper uses a local 'public participation' initiative to investigate how the tension is managed in practice. The study shows how decision-makers dealt with the tension by using participatory initiatives to supply information, understand the views of the public and encourage public support around pre-existing organisational agendas. Problems occurred when citizens introduced new agendas by breaking or manipulating the rules of participation. Decision-makers responded by using a number of distinctive methods for managing citizens' agendas, some of which were accompanied by strategies for minimising the injury done to citizens' motivations for further participation. The paper concludes that New Labour policy fails to deal with the tensions between the radical and discursive models of participation and in the final analysis draws mainly from the discursive model of participation. Furthermore, whilst New Labour policy promotes dialogue between the public and local authority, it does not empower local authority staff to achieve the goal of citizen-centred policy-making.