examining participation

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1 Examining Participation Victoria Gerrard Opportunity Lab Singapore University of Technology and Design [email protected] Ricardo Sosa Opportunity Lab Singapore University of Technology and Design [email protected] ABSTRACT Participatory Design (PD) seeks to promote and regulate the negotiation of social change. Although many methods claim to be participatory, empirical evidence to support them is lacking. Few comprehensive criteria exist to describe and evaluate participation as experienced by stakeholders. There is a need for rigorous research tools to study, validate and improve PD practice. This paper presents the development and initial testing of PartE (Participation Evaluation), an interdisciplinary and intercommunity approach to studying and supporting participation in PD. Semi-structured interviews based on the framework showed it to be useful in: a) revealing differences in how stakeholders view participation and design, b) developing a personal frame of participation c) exploration of the future of participatory practices; and d) suggesting actions to resolve specific challenges or contradictions in participation at a broader level. Additionally, these early results of PartE support the need to move away from considering PD as a practice claimed by design professionals towards a more open dialogue between all stakeholders to redefine a collective meaning of “Participation and Design” for social change. Author Keywords participation; participatory design; evaluation ACM Classification Keywords H.5.m: Participatory design, participation, evaluation, framework. H.5.2: User-centered design. INTRODUCTION Design can be viewed as a negotiated process of social change between the individual, the social context and the designed artefact (Highmore, 2008; Latour, 2005). Motivated by a general belief that more desirable design outcomes will occur by engaging people in decision making, Participatory Design (PD) attempts to promote and coordinate this negotiation. However, the actual experiences of participation by those taking part in PD remain largely unknown. Despite or beyond the good intentions of designers, there is a lack of evidence from systematic studies to understand what makes a design process participatory the types or levels; the methods and practices that best suit specific communities, projects or stages of a social contract; the actual advantages and limits of its realisation; how it is expressed; and the strategies or heuristics to identify, promote and study PD. This paper presents the development and initial results of PartE (Participation Evaluation), an inter-stakeholder approach to studying and supporting participation in PD. PartE aims to reveal what characterises participation in design and the fundamental principles that can be used to examine and guide participatory design practice by all actors involved in the process. The paper begins by presenting the initial development of the PartE framework, built upon the participatory literature across disciplines and our own field experiences of PD in Mexico, UK, India and Southeast Asia. We then go on to illustrate how this initial framework was used to examine participation across PD experiences. PartE is applied in the form of a visualization map (Participation Orbit Workbook, POW) to guide semi-structured interviews with partners of Opportunity Lab (O-Lab) - an interdisciplinary design lab at Singapore University of Technology and Design (SUTD) which seeks to understand and enhance the design role that people play in social change, of which the authors are both members. The paper concludes with an invitation to the PD community to build on this work by contributing, alongside all PD stakeholders, to the refinement and deployment of PartE as an open platform to support the collective exploration of the relationship between participation and design. BACKGROUND Problems of Claiming Participation Claims to participatory design abound (Cooke et al., 2001; Hickey et al., 2004; Weber, 2010; Brett, 2003; Vines et al., 2013; Halkola et al, 2013). Such claims are often made through the application of specific design processes supporting democratic ideologies (Balka, 2010, Kyng 2010). However, the literature describing these participatory experiences are largely anecdotal in nature and lack systematic approaches and clear evidence as to how, when, who and why certain practices work best. Participation makes PD distinct from general design practice and therefore any claims to PD must be substantiated by a rigorous examination of participation. This is problematic since the meaning of ‘participatory’ in PD varies widely among stakeholders (Vines et al., 2013). This lack of agreed criteria against which participation can be evaluated means that the distinguishing practice of PD that of participation remains largely invalidated. Thus, any claim to impact achieved through PD - as opposed to other practices of design is difficult to justify (Beck, 2002; Michener, 1998; Balka, 2010). Permission to make digital or hard copies of all or part of this work for personal or classroom use is granted without fee provided that copies are not made or distributed for profit or commercial advantage and that copies bear this notice and the full citation on the first page. To copy otherwise, or republish, to post on servers or to redistribute to lists, requires prior specific permission and/or a fee. PDC’14, 06-OCT-2014, Windhoek, Namibia. Copyright 2014 ACM ISBN 978-1-4503-2256-0…$10.00.

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1

Examining Participation Victoria Gerrard

Opportunity Lab

Singapore University of Technology and

Design

[email protected]

Ricardo Sosa

Opportunity Lab

Singapore University of Technology and

Design

[email protected]

ABSTRACT

Participatory Design (PD) seeks to promote and regulate

the negotiation of social change. Although many methods

claim to be participatory, empirical evidence to support

them is lacking. Few comprehensive criteria exist to

describe and evaluate participation as experienced by

stakeholders. There is a need for rigorous research tools

to study, validate and improve PD practice. This paper

presents the development and initial testing of PartE

(Participation Evaluation), an interdisciplinary and

intercommunity approach to studying and supporting

participation in PD. Semi-structured interviews based on

the framework showed it to be useful in: a) revealing

differences in how stakeholders view participation and

design, b) developing a personal frame of participation c)

exploration of the future of participatory practices; and d)

suggesting actions to resolve specific challenges or

contradictions in participation at a broader level.

Additionally, these early results of PartE support the need

to move away from considering PD as a practice claimed

by design professionals towards a more open dialogue

between all stakeholders to redefine a collective meaning

of “Participation and Design” for social change.

Author Keywords

participation; participatory design; evaluation

ACM Classification Keywords

H.5.m: Participatory design, participation, evaluation,

framework. H.5.2: User-centered design.

INTRODUCTION

Design can be viewed as a negotiated process of social

change between the individual, the social context and the

designed artefact (Highmore, 2008; Latour, 2005).

Motivated by a general belief that more desirable design

outcomes will occur by engaging people in decision

making, Participatory Design (PD) attempts to promote

and coordinate this negotiation. However, the actual

experiences of participation by those taking part in PD

remain largely unknown. Despite or beyond the good

intentions of designers, there is a lack of evidence from

systematic studies to understand what makes a design

process participatory – the types or levels; the methods

and practices that best suit specific communities, projects

or stages of a social contract; the actual advantages and

limits of its realisation; how it is expressed; and the

strategies or heuristics to identify, promote and study PD.

This paper presents the development and initial results of

PartE (Participation Evaluation), an inter-stakeholder

approach to studying and supporting participation in PD.

PartE aims to reveal what characterises participation in

design and the fundamental principles that can be used to

examine and guide participatory design practice by all

actors involved in the process.

The paper begins by presenting the initial development of

the PartE framework, built upon the participatory

literature across disciplines and our own field experiences

of PD in Mexico, UK, India and Southeast Asia. We then

go on to illustrate how this initial framework was used to

examine participation across PD experiences. PartE is

applied in the form of a visualization map (Participation

Orbit Workbook, POW) to guide semi-structured

interviews with partners of Opportunity Lab (O-Lab) - an

interdisciplinary design lab at Singapore University of

Technology and Design (SUTD) which seeks to

understand and enhance the design role that people play

in social change, of which the authors are both members.

The paper concludes with an invitation to the PD

community to build on this work by contributing,

alongside all PD stakeholders, to the refinement and

deployment of PartE as an open platform to support the

collective exploration of the relationship between

participation and design.

BACKGROUND

Problems of Claiming Participation

Claims to participatory design abound (Cooke et al.,

2001; Hickey et al., 2004; Weber, 2010; Brett, 2003;

Vines et al., 2013; Halkola et al, 2013). Such claims are

often made through the application of specific design

processes supporting democratic ideologies (Balka, 2010,

Kyng 2010). However, the literature describing these

participatory experiences are largely anecdotal in nature

and lack systematic approaches and clear evidence as to

how, when, who and why certain practices work best.

Participation makes PD distinct from general design

practice and therefore any claims to PD must be

substantiated by a rigorous examination of participation.

This is problematic since the meaning of ‘participatory’

in PD varies widely among stakeholders (Vines et al.,

2013). This lack of agreed criteria against which

participation can be evaluated means that the

distinguishing practice of PD – that of participation –

remains largely invalidated. Thus, any claim to impact

achieved through PD - as opposed to other practices of

design – is difficult to justify (Beck, 2002; Michener,

1998; Balka, 2010).

Permission to make digital or hard copies of all or part of this work for personal or classroom use is granted without fee provided that copies are

not made or distributed for profit or commercial advantage and that

copies bear this notice and the full citation on the first page. To copy otherwise, or republish, to post on servers or to redistribute to lists,

requires prior specific permission and/or a fee. PDC’14, 06-OCT-2014, Windhoek, Namibia. Copyright 2014 ACM ISBN 978-1-4503-2256-0…$10.00.

2

Multiple Claims to Participation

Traditionally, claims to PD are made by the formal agents

-from academia, government, NGOs, industry and

international agencies – who have applied methods they

describe as participatory. There are few agreed criteria to

validate the actual type and level of participation as

experienced by all participating stakeholders over time

and in relation to the outcomes of these projects (Vines et

al., 2013). Bergvall-Kåreborn, (2008) captures this idea

when she says “PD is often treated as a unitary concept

despite the many forms of participation, involvement, and

influence of stakeholders”.

As widely documented, with growing technical literacy,

the way people participate in design has, and continues to,

quickly evolve beyond the traditional scope of PD (Star

and Ruhleder. 1996; Clement et al., 2012; Halkola et al.,

2013; Vines et al., 2013). These new forms of

participation occur within evolving social structures

where individuals operate more as autonomous agents

across many interest groups rather than a single

organisation or community (Dewey, 1927; Hardt et al.,

2004). Interactions are negotiated between agents -

including the mechanisms of participation. Rather than

predefined by a PD practitioner, participation is claimed

by individual agents and groups as they together

determine the rules governing their practices of

participation within their shared interests (Ehn, 2008).

Conflicting Claims to Participation

By definition, PD supports the idea of equal partnerships

in knowledge creation. One approach to look at

partnerships is through social interactions in a design

process. Boltanski and Thevenot (2006) examine the

interactive processes that change social coordination.

They explain that societies are collections of co-existing,

interdependent orders each with a unique value-specific

justification. These interacting orders generate not only

conflicts, critiques and disputes but also guide the

distribution of resources and the coordination of social

actors. According to this pragmatic perspective, design

and especially design done across contexts, involves

justification and critique of its value. PD practice attempts

to intentionally moderate the negotiation of how design is

valued. Vines et al. (2013) present this negotiation as

configuring participation, with the trustees of the process

being PD practitioners (Cowen and Shenton, 1996).

However, with no agreed value of design or participation

the criteria to which these practitioners can be held to

account remain limited.

Development is defined in multiple ways as a function of

the multiplicity of ‘developers’ entrusted with the task of

‘development’ (Cowen and Shenton, 1996). Likewise, a

growing diversity of definitions describing PD brings

greater specialisation of process and a rationality of

design intent – according to Freire (1970) the former

creates an ‘inability to think’ and the later degenerates

into ‘myth making’. The transmission of this design

intent tends to lead to ideological myths. PD practitioners

are therefore accountable to the myth constructed around

their specialisation and expect non-specialists to

participate within the same ideological frame. However,

as Balka (2010) and Kyng (2010) eloquently note, the

‘ideal’ of PD as a democratic approach to design is not, in

itself, enough to ensure impactful engagement in design.

By definition, non-design participants and specialists are

not constrained by the same myths as practitioners. They

either have the ability to choose to participate – exit or

voice – or they are excluded from it (Hirschman, 1970).

By acting as trustees of the process, PD practitioners

attempt to invite other actors to participate in their myths.

As a result, this overlooks the unintentional interactions

that occur between a design, an individual and society

(Cleaver, 2002; Mrazek, 2002; Latour 2005). To

summarise Star and Bowker’s (2002) work on

infrastructur-ing – neutral spaces are needed where the

myths currently supporting PD as a practice can be openly

re-negotiated within changing socio-technical structures.

Evaluation to Overcome Conflict

Participation in design can be understood and experienced

on a wide spectrum from; the use of a product (Redstrom

2008); attending a meeting; making a donation (Kuo

2012); protesting (Hirsch, 2009b; Clement et al., 2012);

contributing online (Hess et al. 2008); making and

customising products (Ehn 2008, Bjorgvinsson et al.

2010); contributing information (Simonsen et al. 1997);

inventing and doing DIY; whistle-blowing etc. What is

lacking is an agreed approach to study, adapt, and

improve such diverse participatory design practices.

Mertens (2007) describes how a transformative paradigm

of evaluation is essential to achieving social justice. The

transition to this transformative paradigm requires

reframing of myth brought about by specialisation and

rationality; including power structures, domains and

locations of knowledge, and processes of change. Tools

to communicate values across paradigms are required

which assist in the building of a shared understanding of

participation in design before evaluation of their

processes can begin. As Kyng (2010) notes, PD is

becoming more professionalised and subsequently its

methods are increasingly standardised. However, this

standardisation has more often than not been rationalised

through professional myth rather than empirical evidence

(Vines et al. 2013). As noted by Ehn (2008), platforms

which support the negotiation between traditional and

emergent claims to participation in design are needed.

Some recent notable attempts have been made to reflect

on the meaning of participation in PD. For example

Bratteteig et al. (2012) studied the power between levels

of decision makers in their participatory urban design

work. Through semi-structured interviews Halkola et al.

(2013) evaluated the extent that ‘genuine’ participation

was achieved in a project seeking to engage children in

the design of information infrastructures. Vines et al

(2013) looked more broadly at the way participation in

design is understood and shared lessons from other

domains of knowledge including participatory arts, social

media and crowd-sourcing. Ehn (2008) goes further by

discussing the future of PD as a practice in a landscape of

increasing public engagement in design.

These studies begin to discuss meanings of participation

from the perspective of specific projects. This valuable

3

reflective practice by individual PD practitioners has not

fostered a collective reflection of the participatory nature

of PD as a practice. In this paper we present PartE, a

framework which aims to contribute to the organisation

of the study of PD across experiences, projects and

settings in order to develop a common reference frame

through which to collectively and openly understand,

evaluate, communicate and improve participation across

disciplines and types of PD participants. As an open

discussion platform for all design stakeholders, PartE

ultimately seeks to provide a space where participation in

design can be collectively renegotiated, reclaimed and

repositioned as a validated design practice which creates

impactful community driven social change.

PART-E FRAMEWORK

The goal of PartE is to offer a comprehensive platform to

share experiences, encourage reflection and enable

learning about participation in design by revealing

commonalities and differences between PD initiatives,

and the reasoning behind them. Ultimately the authors

hope to continuously develop the framework among all

design stakeholders as an evolving and constantly

negotiated project. Here we present a first iteration of the

framework alongside an explanation of its development

and some results from preliminary testing. Through these

initial steps we expect to draw critique, and encourage

contributions, from the PD community to further develop

the framework for collective reflection and development

of participatory practice in PD.

The PartE framework was developed by combining cross-

disciplinary scholarship with our own field experiences in

Mexico, UK, India and Southeast Asia over the last

fifteen years, in an attempt to formulate a comprehensive

and universal framework which captures the most

distinctive aspects of PD practice. We took great care to

develop a framework which avoids intrinsic value

assessment, is succinct, avoids a singular disciplinary

approach and language, and is able to capture past,

present and future views of PD. PartE was initially

developed around five dimensions, with a sixth added

after early testing.

The following dimensions are included in the current

version: Objective, Practice, Interaction, Barriers,

Representation and Impact. Each dimension contains

various possible attributes extracted from the PD

literature and related research on social change,

teamwork, etc. These attributes are not presented as a

linear scale, and they are not intended to be mutually

exclusive but rather to capture the features of each

dimension that can occur in PD practice. The attributes

may be experienced simultaneously by a single individual

or group, by different stakeholders at different times, or

longitudinally in the course of a PD initiative. Each

dimension and their attributes are defined, explained and

illustrated below.

Framework Dimensions

Dimension 1: Objective refers to the ultimate goal or

intention to initiate and maintain PD practice. The

categories in this dimension draw from the notion of

“leverage points” developed by Meadow (1998) to

describe the mechanisms required to change a system.

Initially all twelve “leverage points” were included in the

framework before simplifying to the three main

categories as a result of initial testing: a) Material Things,

b) Organisation, Rules & Information Flows, c) Mind-

sets & Paradigms.

Examples of ‘Material Things’ as an objective of PD

include changes to income, savings or schedules, access

to technology and the implementation or deployment of

designed artefacts such as roads, devices, and vaccines.

Most PD projects have an objective of developing a

‘Material Thing’ whether it be a prototype (Ehn, 1993;

Bodker et al. 1991), a new workplace technology (Bodker

et al., 1991; Bloomberg et al, 1993), a product (Hess et

al., 2008), an urban community space (Bratteteig et al.,

2012; Sanoff 2010) etc. Sometimes the delivery of a

‘Material Thing’ can be the main focus of the initiative

and sometimes, as with many prototyping activities, they

can be used as boundary objects to achieve less tangible

objectives such as changes to ‘Organisation, Rules and

Information Flows’ or ‘Paradigms’ (Weber, 2010).

Examples of changing ‘Organisation, Rules and

Information Flows’ as the objective of PD include the

adoption of preventive health practices, access to

education and training, access to new communication

systems, access to information, and the establishment of

‘key performance indicators’. Again, these are a common

feature in many PD projects which attempt to redefine the

relationship between actors by providing a space for

people traditionally marginalized from the design process

to have a say (Greenbaum and Kyng, 1991). For some

projects, the objective to change the way people interact

and share information might be the main purpose of the

project (DiSalvo et al., 2013) while others might see it as

a way to achieve the development of a ‘Material Thing’

or a step towards changing ‘Mind-sets’.

Finally, examples of changing ‘Mind-sets & Paradigms’

as an objective of PD include novel governance

structures, adoption of new goals (for example moving

from not-for-profit to for-profit, or from systems that

promote inequality to those that support equality) and the

emergence of game-changing indicators and social

perceptions (such as in understandings of disability,

marriage and drugs). Hirsch’s (2009b) work with activists

might provide examples of this attribute of objective

within the PD literature, as might the work of artists such

as Robert Ransick who has attempted to reconceptualise

the idea of citizenship in his work on the US-Mexico

border (Weber, 2010).

Dimension 2: Practice refers to the tools and techniques

used in PD. Approaches to PD are varied and diverse,

originating from specific contexts and for different

purposes (Sanders et al., 2010; Brandt et al, 2013).

Previous work to organise these approaches has been

concerned with developing “toolboxes with the ambition

to show that there is a richness of tools and techniques

available that may be combined, adapted and extended to

form the basis for yet newer PD practices”. An initial set

of five attributes were proposed as – ‘accepted’,

‘adapted’, ‘responsive’, ‘evolving’ and ‘open’ methods.

4

These were later reduced after initial trials for enhanced

clarity and consistency to: a) Well-known Formats, b)

Emergent Practices, and c) Novel/Unpredictable

Approaches.

‘Well Known Formats’ captures the use of standard PD

tools and techniques such as those comprehensively

described by Brandt et al (2013). These include textbook

methods such as storytelling and visualisation games

(Ehn and Sjogren, 1991; Johansson 2005), ethnography

(Kensing and Bloomberg, 1998), prototyping (Ehn, 1993;

Sanoff, 2010; Suchman, 2000), the use of probes (Gaver

et al., 1999) and generative tools (Sanders, 2000),

improvisational theatre (Brandt and Grunnet, 2000) etc.

‘Emergent Practices’ refer to tools and techniques

adapted from the existing library of techniques or from

other fields. Practitioners often ‘localise’ methods in

response to available time and resources, numeracy and

literacy, beliefs or other local conditions. Through various

dissemination channels, these adaptations and other novel

practices ultimately become common practice. Many now

‘Well-Known Formats’ of PD were adopted by

practitioners in this way such as ethnography from

anthropology (Orr, 1986). Recent, less interventionist,

examples of these emergent formats include Kiva, a tool

for online peer-to-peer funding for development, and

adaptive re-uses of online social networks to coordinate

citizen movements (Shirky 2008).

Lastly, PD may also be conducted through ‘Novel and

Unpredictable Approaches’, often disruptive to traditional

practice and co-created by the grassroots. Examples of

this include a recent case, in early 2014, in Mexico City

where spontaneous contemporary dance performances at

major subway hubs were organised to support opposition

against hikes in public transport fares (#PosMeSalto).

Such methods are not part of PD toolkits, but they can be

effective in furthering social causes and may mature into

art movements or genres such as the music trova de

protesta in Latin America in the 1960s (Moore, 2001).

Other examples of these novel approaches to PD are

documented by Cynthia Weber in her work on the role

design plays in redefining the relationship between

migrants, citizens and the US State (Weber, 2012).

Through these three attributes, the Practice dimension

thus explores the extent to which PD is approached from

disciplinary training or cultural tradition, or how

creatively they are adapted, created and disseminated as a

result of participation.

Dimension 3: Interaction targets the modes of action and

types of contributions between PD participants. Initially

labelled as ‘Medium’, it was renamed after initial trials.

Three main attributes reflect the level of collaboration

between participants, drawing from models of cross-

disciplinary teamwork by Fruchter (2001), as a)

Contribution of Resources & Information, b) Exchange

and Awareness of Contributions, c) Collaborative

Contributions.

‘Contribution of Resources & Information’ includes

widespread one-way interactions such as extractive data

gathering, introduction of ‘appropriate technology’,

distribution of monetary resources or emergency supplies,

or cases where standard solutions are imported for

dissemination or deployment, such as vaccines, medical

devices, latrines, irrigation pumps, etc. Arnstein (1969)

captures this attribute in the third rung of her ladder of

participation and describes it as a first step to legitimate

citizen participation. This is certainly the case if the use

of information and resources is dictated by the provider

however, there are examples in PD where tools might be

provided by one stakeholder which facilitate the building

of ‘Exchange and Awareness of Contributions’ of other

stakeholder such as the contribution of the MR-Tent by

Bratteteig and Wagner (2012) to support the collaborative

design of a psychiatry clinic in Paris.

‘Exchange and Awareness of Contributions’ range from

cases where participants contribute their specialised

knowledge or skills to cases where they become aware of

each other’s strengths, goals and limitations. As a result,

team effort creates synergies between participants, who

are empathic of each other. In teamwork models (Fruchter

2001) this is captured by the growth of ‘awareness’ and

‘appreciation’ between collaborators of each other’s

goals, constraints and language and a genuine intention to

complement each other.

Lastly, in ‘Collaborative Contributions’, decision-making

occurs as the result of deep understanding between

participants. They contribute to proactive discussions,

provide input before it is requested, and begin to use,

adapt and shape the vocabulary and methods of other

participants. An equivalent process of “mutual learning”

is identified in PD by Robertson and Simonsen (2012) as

providing all participants with increased knowledge and

understandings. Relevant to this dimension is the

distinction made between public communication, public

consultation, and public participation based on “the

nature and flow of information between participants”

(Rowe and Frewer, 2005). The main issues to be

discussed here are related to the levels of interaction in

PD, and whilst in principle deeper understanding levels

may be preferable, the reality is that the appropriateness

of the medium of interaction and the scaffolding process

to develop it, depend on the needs, conditions and

requirements of each PD experience.

Dimension 4: Barriers refer to the type of limitations and

challenges that are more prevalent and particular to PD.

Based on studies where challenges are typified across

projects (Stringer et al 2007), five attributes are included

in this dimension including, a) Economic, b)

Environmental, c) Political, d) Social and e) Individual.

Economic refers to limited participation due to lack of

financial or material assets. Environmental limits are due

to high vulnerability to natural disasters or geographical

barriers. Political limitations include restrictions of

human rights, lack of freedoms, authoritarian leadership,

power structures, etc. Social limits include exposure to

violence, social exclusion, cultural values, stigmas and

taboos, etc. Lastly, individual limitations are related to

cognitive biases, beliefs and values, lack of skills and

self-reliance. The questions that this dimension supports

relate to the potential predominance of barriers across PD

projects, approaches, or the connection between types of

5

barriers and types of objective, practice or types of

interaction.

Dimension 5: Representation captures involvement in

decision-making. PD is differentiated from general design

practice by the inclusion of people directly in the process

(Sanders and Stappers 2012), but the literature suggests

that people may be represented very differently across PD

experiences (Vines et al., 2013; Bergvall-Kåreborn, 2008;

Beck, 2002). In addition to this, the roles of PD agents are

changing (Kyng, 2010) and there is an increase in

autonomous individuals interacting in complex networks

of shared interests (Star and Bowker, 2012). In an attempt

to capture this changing agency within PD we include

three attributes; a) Appropriated or Self-appointed, b)

Entrusted or Delegated c) Direct Autonomous.

‘Appropriated or Self-appointed’ representation refers to

cases where a stakeholder represents others by appointing

themselves in a position of authority or leadership.

Examples of this include journalists, artists, academics,

entrepreneurs or social, religious and political leaders

appropriating the role of representing or voicing the

concerns of a community. These individuals may seek to

establish governance structures where people ultimately

decide whether their interests are represented or not.

Where participatory structures are established, it would

be hard to define the point at which the change agent or a

small initial minority gains legitimacy as participatory

(Barnaud and Van Paassen 2013).

The opposite extreme is, of course, Direct Autonomous

representation, where individuals represent themselves

directly. Examples of this include online problem solving

platforms such as FoldIt, a puzzle game to solve protein

folding challenges set by scientists, or Change.org where

individuals can start a petition to initiate change. For both

examples people represent themselves rather than affiliate

to a particular group. This attribute would describe the

type of representation experienced in larger infrastructur-

ing PD projects described by Star and Bowker (2002)

where individuals belong to complex networks which

span a number of design initiatives and interact and

inform each other in unpredictable and organic ways.

Finally, ‘Entrusted or Delegated’ representation includes

cases where participants explicitly entrust a representative

to be their trustee and make informed decisions in their

collective best interest, or at least to be the spokesperson

for their views. Historically this has often been the case in

many PD projects where the pioneers of the practice

worked with trade unions representing workers in

negotiating the introduction of technology to the

workplace in Scandinavia (Robertson and Simonson,

2012). As PD has shifted from a focus on the workplace

to the community, designers have continued to work in

partnerships with existing local organisations such as

community groups, micro-finance cooperatives, NGOs or

religious groups (DiSalvo, 2012).

The ‘Entrusted or Delegated’ attribute also captures the

idea of enforced delegation as opposed to voluntary

participation (Byrne and Alexander, 2006) where

stakeholders are requested to participate through

professional duty, imposed donor requirement or by

necessity, in exchange for compensation. Additionally,

PD practitioners themselves are often required to balance

how they represent others in their practice. The politics in

PD and its effects on decision-making are documented by

Robertson and Wagner (2013) in their work on the ethics

of PD and by others who reflect on their own experiences

of representation in specific PD projects (Pederson, 2007;

Bratteteig and Wagner, 2012; Bjerknes and Bratteteig,

1988; Bowers & Pycock, 1994).

Dimension 6: The Impact dimension emerged in early

trials as interviewees reflected on the five dimensions by

evaluating projects in terms of longevity and outcomes.

The need for the framework to guide the evaluation of

impact is echoed by Balka (2010) in her call for reflection

on impact of PD in order to “expand [the community’s]

scope of influence”. In response to this, the three

attributes nominated to help stakeholders reflect on how

the impact of PD can be evaluated include: a) Short-term

or Small-scale Changes, b) Long-term or Large-scale

Changes, c) Unintended or Indirect Changes. Examples of

impact being evaluated in terms of ‘Short-term or Small-

scale Changes’ include projects where organisations with

limited resources and a lack of time are dependent on

external funding and where outcomes are pre-defined by

a donor (Karl, 2000).

‘Long-term or Large-scale Changes’ include initiatives

where impact is evaluated in terms of the potential long

term domino effect of social, environmental and

economic impacts of discrete interventions as they

interact and build on each other such as PIPA

(Participatory Impact Pathway Analysis) (Douthwaite et

al., 2008). With the increased normalisation and

professionalization of PD, larger projects with significant

financial backing are beginning to emerge (Kyng 2010).

Approaches to evaluating the impact of these types of

project are described by this attribute.

‘Unintended or Indirect Changes’ refers to the way that

unknown outcomes of PD are evaluated. McAllister

(1999) offers useful advice to include unintended

consequences in impact evaluation of participatory

research. Examples where this is required in PD might

include the evaluation of the impact of infrastructure-ing

initiatives where interactions between agents and

initiatives are complex and indirect by nature (Balka,

2010). Additionally as PD expands from the workplace

towards working within the more unpredictable context of

communities approaches to impact evaluation which are

able to capture the unintended consequences of PD

initiatives are useful.

Table 1 presents all the PartE dimensions along with their

attributes. There is room to improve, extend or refine the

framework, however our aim here is to present and study

this initial version to see how well it captures different

interpretations and experiences of PD from practitioners

from different disciplines and spheres of action.

6

Table 1 Final Iteration of PartE Framework dimensions and attributes

Dimensions Objective Practice Interaction Barriers Representation Impact

Attributes a) Material

Things

b) Organisation,

Rules,

Information

c) Mind-sets,

Paradigms

a) Well-known

Formats

b) Emergent

Practices

c) Novel,

Unpredictable

Approaches

a) Contribution

of resources &

information

b) Exchange &

Awareness of

Contributions

c) Collaborative

Contributions

a) Economic

b) Environmental

c) Political

d) Social

e) Individual

a) Direct,

Autonomous

b) Indirect,

Delegated

c) Appropriated,

Self-appointed

a) Short-term,

Small scale

b) Long-term,

Large scale

c) Indirect,

Unintended

TESTING THE FRAMEWORK

Method

The PartE framework was used to explore its

appropriateness to support reflection and sharing of PD

experiences by individuals with widely different levels of

experience, backgrounds and disciplines. We invited

seven O-Lab partners to have an open dialogue about PD

practices. Their backgrounds range from architecture to

sociology, urban planning, history, and engineering. Their

experience extends from second-year undergraduate

students with initial exposure to fieldwork, to researchers

and practitioners with over a decade of PD experience.

A visual format of the PartE framework called

Participatory Orbit Workbook (POW) was developed to

guide the semi-structured interviews. POW consisted of:

- a hard copy of a circular layout of the six framework

dimensions with an additional axial dimension to

capture changes over time (past, present, future).

- a set of coloured stickers of various sizes to

represent types of participant and importance of

attribute to that participant.

- an instruction booklet containing a glossary,

definitions of dimensions and their attributes, as

well as diverse examples illustrating the attributes

for guidance as interviewees completed their orbit.

Interviewees were asked to first share their personal

definition of, and what they believe to be important in

relation to, PD practice. Then, using stickers of different

sizes and colours they were asked to visually record the

attributes of PD that best describe their experiences on the

POW as they verbally shared with us their PD stories.

Seven O-Lab partners were interviewed in five sessions

(two in pairs – S2 with S3, and S4 with S5). The sessions

ranged from 45 to 90 minutes and took place in various

locations on the SUTD campus. During the interviews

both authors facilitated the discussion and took notes.

After the interviews, with the support of the completed

POW, the authors first reviewed their notes independently

before comparing and analysing their main observations.

Results

Results are organised in three sections. Firstly, PartE is

analysed as a framework to identify trends and patterns in

the perception of participation across PD experiences of

individuals with different levels of experience,

backgrounds and disciplines. Secondly, PartE is analysed

as a framework to support a deep and meaningful

dialogue about the meaning of participation in PD.

Thirdly, the suitability of POW is reviewed as a format

for dialogue based on the PartE framework.

Identifying trends and patterns in perception

Three main patterns were identified by the authors in the

perception of participation emerging during the

interviews, these are represented in Figure 1a and include:

1. A universal recognition of diversity in objectives

across PD practitioners and projects

2. The generalised expectation that objectives of all

stakeholders are bound to change over time

3. A trend to perceive design objectives as higher-level

than those of communities, project partners and

government officials with the future in this

dimension rendered as an ‘enlightenment’ where all

participants are expected to move to higher-level

objectives following the designers’ lead.

Three main patterns were extracted by the authors in

relation to the perceptions of the practice of participation,

as presented in Figure 1b. These were:

1. Formal training and background directly influences

the choice of methods and approaches.

2. Recognition of future opportunities for the design of

new methods and tools, adapted or re-purposed.

3. A lack of reference to the “open” category of

methods and practices, which may suggest a lack of

observation or acknowledgement of non-traditional

PD methods. This relates to a perception of design

leadership in PD practice.

Perceptions of the way participants interact mirror some

of the patterns observed in the objectives dimension, as

shown in Figure 1c. In summary:

1. Designers tend to build collaboration from the early

stages, while they perceive other participants as

content with contributing and receiving resources

and information.

2. A general view of design as spearheading the

change into a future where participants grow more

aware, appreciative and understanding of each other.

Perceived barriers had a marked convergence in all

interviews, as presented in Figure 1d, namely that:

1. Participation is often limited by the mental model of

participants, the social structures and the political

agendas around these projects.

2. Barriers to participation are unlikely to change over

time.

7

Upon reflection, the usefulness of the Barriers dimension

can be questioned as PD participants generally revealed

more interesting limitations to participation across

dimensions, in relation to specific issues rather than when

confined to discussing limitations in general. This

dimension may be removed if future iterations of PartE.

Two patterns of perception of representation in PD were

identified, as presented in Figure 1e. These were that:

1. Similar to the objectives dimension, representation

varies considerable across PD actors and projects.

2. Participants in PD initiatives often start with

delegated or entrusted types of representation but

perceive that the desired future state should change.

Two seemingly opposite variants in how the future

is envisioned were recorded: some interviewees

expressed their desire to see entire groups or

communities adopt higher levels of autonomy via

personal and direct decision-making, while others

prefer to see some individuals appropriate leadership

roles for instance as entrepreneurial change agents

who would lead the initiatives in their communities.

Figure 1. Trends and patterns of perceptions of

participation identified through each dimension of the PartE

framework (a. Objective, b. Practice, c. Interactions,

d. Barriers, e. Representation)

PartE as a support for dialogue

PartE was evaluated against four functions of supporting

dialogue about participation. The first function refers to

the ability of PartE to reveal an acute awareness that

different stakeholders have different understandings about

the roles, responsibilities and desires of other

stakeholders. PartE supported the surfacing of perceptions

about different stakeholders through the combination of

characteristics in different dimensions. Examples of this

include the following quotes from interviewee S6

regarding the perception of the role of grassroots activists,

the government and civil society:

Grassroots Activists

Objectives: “Activists are interested to change mind-sets

however there is little evidence that this has been successful.”

Representation: “They have always and will continue to

appropriate representation.”

Government Agencies

Objective: “Government sees it as a way to share information”

Representation: “It is now delegated by people”

The People

Objective: “They are interested in the more tangible

infrastructure but also concerned by the way it is provided… often through the participation of the middle classes who

participate to prevent infrastructure development which damage

them in some way”

Representation: “There is movement towards autonomous

decision making”

In addition to this, as mentioned above, the tool enabled

interviewees to articulate assumptions about the role of

designers (Figure 1a) as supported by the following

statements:

Objective of Designer: “Practicing to change mind-sets”

Objective of People: “Mainly expect changes in material things

and they want it done quickly.” -S4.

PD Impact: “PD is useful for designers as it provides

information about people, and it is beneficial for users who

indirectly benefit from the results”-S7.

Although POW asked for personal experiences of PD, all

except one interviewee shared instances of planning and

conducting participatory exercises rather than taking part

in one. This suggests an assumption by practitioners that

PD is by definition a guided, established and intentional

design process rather than a collective effort perceived

differently by those involved. Attached to this idea seems

to be a sense of professional duty to perform PD most

notably captured in the Representation and Practice

dimensions:

Representation: “either delegated by someone else or is an

autonomous act” -S4

Practice: “participants generally use accepted or adapted

processes and to a lesser extent evolving processes” -S4.

Representation: “have always and will continue to be delegated

as a representative” –S6

Practice: “used accepted techniques that were taught in

school”-S6

The second intended function of PartE is to assist

interviewees to explore and develop their personal frame

of participation including what they understood by each

characteristic, the relative importance of them to PD and

the value they assigned to them. By contrasting the

opening statements and concluding reflections shared by

our interviewees, we can conclude that in some cases (S2,

S3, S4), PartE served to reveal a number of issues that

were not articulated in the initial opening remarks. For

the rest, PartE seemed to be more useful to organise the

ideas that they did not allude to in the beginning.

PartE was able to clearly reveal the value that different

interviewees have about certain PD characteristics. An

example of this can be seen in one non-designer

8

interviewee’s evaluation of the Interaction dimension

where the process of design moved from an

understanding of people towards contribution of

resources, and that their role diminished over time as the

project goals became more tangible:

Interaction: “We aim to start with understanding, and then aim

to move to contribution of resources, since PD projects are

always about designing stuff” –S5.

In another example the interviewees expressed insightful

views about the social barriers of participatory processes

re-enforcing social norms rather than challenging them:

Barrier: “We saw an important social barrier because

participants often fell in excessive agreement, which was

useless” –S2 and S3

In contrast, other interviewees saw social and political

factors as the biggest barriers to participation but for

different reasons:

Barrier: “Openness of society to participation has a big

impact” –S4

Barrier: “Political and Social barriers have and will continue

to exist for those with less power in the system” –S6

Barrier: “The main challenge here is attitude, also language

problems between ethnic and age groups” –S1

Other instances of this occur in terms of representation

where two interviewees expressed a need for people to

achieve more autonomy through appropriation, whereas

another considered representation was related to a sense

of apathy or an inability to achieve true collaboration:

Representation: “The community doesn't have their own voice.

First they need to take it for themselves and then be autonomous

to make the changes they want for their community.” –S2 and

S3

Representation: “There is … a certain amount of appropriated

representation where people may not intentionally take the lead

but other people were just not paying attention when decisions

were made… If people were better collaborators things might

improve.”-S7

The third function of the framework facilitated

interviewees to reflect on their personal understanding of

participation through the articulation of ideas previously

not made explicit and supporting exploration of the future

of participation. Three interviewees proposed either a

necessary or imminent shift towards the role of a designer

as the provider of tangible outputs to one of facilitator of

social change, which is in clear contrast to S5 views as

cited above:

Objective: “Our first approach was more superficial, had to do

with visible things, we are now bridging to longer-term change

with higher purposes” –S2 and S3

Objective: “Personally began in trying to affect more material

things… hope to challenge boundaries through participation” –

S4

Others questioned the professional roles of PD

practitioners and suggested that PD as a process had more

to offer than the facilitator themselves:

Practice: “Anybody using the space is already adapting it… PD

is not so much to make people design, as it is to make designers

understand that people already design” -S1

While others suggested that the challenges to achieving

PD might be more related to disciplinary and professional

constraints:

Barrier: Civil service people do what they are meant to do, it's

not their job to question” –S6

Barrier: “We are all constrained by where we come from” -S5

These reflections provide an indication of where the

perceived limits of PD practices exist. This helps to

identify PD practices in contexts that need not be

conventionally seen as related to either participation or

design.

A further function of PartE analysed here is its ability to

begin to diagnose PD across dimensions and suggest

action to resolve specific challenges. Included here is the

identification of commonality in specific dimensions such

as an imagined future governance structure for PD:

Representation: “In the future there should be more autonomy

of representation but there still needs to be a political system

which is delegated or entrusted to do something.” –S4

Representation: “In the future representation will be more

autonomous but government will always be delegated to play a

role” –S6

And any contradictions or challenges related to achieving

these commonly accepted futures can be highlighted such

as a desire for PD to achieve changes in worldviews:

Practice: “Hope to challenge boundaries through

participation…there is a shift occurring from accepted to open

processes.” –S4

Practice: “In the future these methods must become more open

as this will probably lead to more success” –S6

Interaction: “There is still opportunity to make better design

through a paradigm shift through exchange of views i.e. design

creates a convenient artefact for conversation” –S7

Many of these comments highlight the inherent politics

and complexity of a PD process such as the following

statement made early during one interview:

Objective: “PD is often eyewash, claiming to challenge

paradigms but mostly dishonest; a deception driven by non-

designers but also by some designers who embrace it without

realising the true purposes of those who promote it” –S7

These statements can be used as a basis for further

exploration, using the experiences of others to begin

overcoming these challenges. Such as the following

statements about the trends experienced in the practice of

PD:

Practice: “We tend to use all types of methods, but we tend to

start with adapted versions and then as the project unfolds

either let go to more open formats if people take the lead, or go

to accepted methods if required” -S4

Practice: “All practice dimensions exist for everyone but

importance changes within the group. This is related to group

dynamics” –S3

Combining these comments with earlier ones related to

the perception of professional duty we begin to gather

evidence to build a picture of a collective understanding

of PD, the designer’s perceived role and their ability to

shape the process. The desire for change was revealed as

interviewees forecast the future of PD however there was

9

also a general scepticism that appropriate structures were

in place to facilitate this shift.

POW to help visualise PartE

The overall feedback from the interviewees was that

POW is useful for visualising the main issues in this

complex topic, as well as for education purposes to help

young or novice practitioners to identify and select the

most adequate PD approaches to suit the needs and

requirements of a given project. This is done without

making any value judgements but allowing personal

reflection on individual value structures. Based on this

initial feedback, we view POW as useful to thread ideas

across disciplines.

As part of this initial trial, various aspects of POW were

refined after each interview based on shortcomings in

communication or as direct suggestions by the

interviewees. These changes included formatting the

framework in a circular rather than an original matrix to

reduce any perception of importance or hierarchy of

attributes within dimensions. The new layout also gave us

the option of using radial distance to represent past,

present and future (desired) states of participation. The

sixth dimension was added to reflect an interest by

interviewees to review the perceived impact of

participation upon completion of the other five

dimensions. After initially allowing interviewees the

freedom to choose the meaning of colour and size we

began to constrain the meaning to assist reflection with

colour denoting different stakeholders, and size the

relative importance of the choice. An additional ‘wild

card’ sticker was provided for the interviewee to use for

dimensions they felt were missing from the framework.

The range of colours and sizes of the dots provided was

expanded following feedback from the interviewees who

wished to have more ways of capturing types of

participants or desired versus expected future directions,

etc. For each iteration the language was simplified, the

number of attributes reduced or grouped, more examples

were added, and one dimension was relabelled.

As the tool was simplified, reflection and conversation

became easier to facilitate. The format and terminology

used however may still be too complex for wider

dissemination and use and will need significant revision

to make it widely accessible. Simple changes such as

renaming the attributes in the Representation dimension

to ‘Represent Themselves’, ‘Represent Others:

Delegated’, Represent Others: Appropriated’ or removing

some terms for simplicity such as changing ‘Mind-Sets,

Paradigms’ to just ‘Mind-Sets’ could be made quite

simple. However it is the authors’ intention to also make

and test more radical changes to the format of PartE such

as developing a completely graphical, 3D, and interactive

online tool. Further testing will target a wider group of

PD stakeholders adapting the language and examples to

various cultures. This is a recognised limitation of the

current study, where the tool was tested on a small group

of individuals in an academic context. The lessons

learned from this small study are valuable to develop

further iterations of the framework and the tools to apply

it across a more diverse cross-section of PD stakeholders.

DISCUSSION

The work presented in this paper stems from a perceived

need for systematic studies of participation in design.

PartE, the framework proposed here starts from a multi-

disciplinary analysis of the literature and is developed in

relation to our own PD experiences. The criteria used to

develop PartE are framed, and the dimensions developed

to capture the framework are introduced. A semi-

structured interview called Participatory Orbit Workbook

(POW) developed from PartE is used to initially evaluate

the capacity of the framework to help PD stakeholders

reflect upon their experiences and draw a shared frame of

reference to talk about participation. PartE is assessed in

four aspects through interviews with PD students,

practitioners and researchers across disciplines. The

results show that PartE is useful to: a) reveal differences

in how stakeholders view participation and design, and

how they may understand their roles, responsibilities and

those of other stakeholders; b) explore and develop a

personal frame of participation including an individual

interpretation of each characteristic, their relative

importance and the value assigned to them; c) articulate

ideas previously not made explicit and support

exploration of the future of participatory practices; and d)

begin to diagnose participation across experiences and

suggest actions to resolve specific challenges or

contradictions at a broader level.

Additionally, these early results of PartE hint at

underlying challenges for PD in relation to its implicit

intentionality. PD currently asserts rather than proves its

existence. The term is used by our interviewees to refer to

a broad range of activities from gathering feedback in

shopping malls (S6) to community design workshops

(S4) to art installations (S7). Rather than reflecting the

application of an agreed domain of knowledge, the term

PD is often used as an admission by design practitioners

of their intent to involve people in their processes.

Claiming PD is common without any assessment of the

level or type of participation achieved. The implications

of this is that PD is evolving without a common

understanding of effective practice.

Entrusting designers with PD has facilitated the

development of practices which align to their traditional

professional paradigms. As recognised by some of our

interviewees, for many designers participation directly

contradicts their training which generally encourages

making decisions on behalf of others rather than in

collaboration with them (S6, S7). This is not intended as a

criticism but rather as a recognition of the role society has

traditionally assigned to designers. From our interviews

there is evidence that the contradiction between these two

social expectations - of autonomous decision maker and

trustee of PD - have led to conflicts between designers

and design stakeholders.

Our interviewees generally considered that attempts at

participation were hampered by the inadequate response

of the people designers sought to engage. Society’s

readiness for PD was expressed as a barrier by all those

interviewed. Perhaps this lack of readiness reflects

limitations of PD processes to articulate the purpose of

engagement. By professionalizing PD people are either

10

justified for not taking responsibility for decision making,

or excluded from doing so due to misalignment of power,

expectations, values and traditions of engagement

between designers and various non-designers.

At least two interviewees mentioned that they had been

taught about the existence, but not the practice, of PD

during their professional training. Another described their

entry to PD through self-study and personal experience.

These experiences suggest that although design

professionals are expected to take the lead in PD activities

there are few outlets for them to prepare for the role.

To overcome these existing social expectations of design

as a non-participatory mechanism of social change, PD

should no longer be asserted as a validated design

practice under the responsibility of designers. Instead, PD

needs to be renegotiated in a wider interdisciplinary and

intercommunity space; becoming the responsibility of

society rather than ‘experts’.

To assist with this negotiation we propose a departure

from the problematic domain specific term PD towards

the more explorative term ‘Participation and Design’.

We consider this will better facilitate dialogue between

multiple stakeholders by:

- Removing the assertion of participation when

describing any attempt to engage people in a design

process

- Allowing all stakeholders to reflect on experiences of

engaging in design and exploring what participation

in design actually means in terms of creating social

change – both for good and bad

- Allowing for greater exploration of the meaning

behind, and relationship between, Participation and

Design including identifying the opportunities and

limitations in this relationship.

- Allowing designers to explore and reframe their role

in developing participatory approaches in design

practice and providing the freedom to overcome

existing challenges and evolve traditional paradigms.

- Providing opportunities in design training to discuss

ideas of participation in general practice, rather than

relating it to specific and generalized processes.

We hope that PartE can contribute to supporting this

dialogue around Participation and Design by providing

an organised structure to dissect ambiguous concepts -

such as ‘context’ ‘power’, ‘ethics’, ‘creativity’,

‘responsibility’ and ‘development’ - in the way people

engage in design. The motivation is not to develop new

‘Participatory Design’ practices but to develop

community accepted modes of design decision making

which stem from a dialogue about participation, design

and social change.

This paper presents the preliminary development and

testing of PartE – a framework to collectively reflect on,

identify, build and validate a common approach to

understanding participation and design. As mentioned,

there is significant work to be done to further iterate the

framework and develop alternative formats which are

more accessible to the diverse stakeholders involved in

PD. This requires a collaborative effort across contexts,

disciplines and backgrounds which we hope will garner

the support of the PD community among many others

working in the field of participation and design.

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