The cry for participation in governance is the very essence of democracy and as such it has a very long history. In many developing countries, however, attempts at rapid economic and social development from the 1950s onwards relied instead on a top-down approach but by the 1970s, it was clear that the developmental outcomes were limited. The imposition of unpopular conditionalities by multi-lateral agencies from the 1980s helped to further discredit the top-down approach. But even as participation became the vogue, epitomised by Robert Chamber’s phrase ‘putting the last first’, doubts began to emerge. How do we measure its effectiveness? Are ‘simple’ measures of efficiency applicable, or should we judge particpation instead in terms of efficacy? Should participation be seen as an end in itself, almost regardless of the outcomes?

Participatory development cannot stand alone – it often requires external resources which demands an engagement with the existing power structures. Participation should not be seen as a complement, rather than an alternative to formal government, or even to top-down approaches. And yet it can become an excuse by governments to escape responsibilities.

It is also important to see communities for what they are. Not the natural, consensual, nonconflictual entities of folk-lore, but heterogeneous mini-societies striven by differing interests. And when they do engage with outside agencies, who is really in control?

These issues are illustrated by three ‘community’ initiatives in Jamaica. In every case, the level of community engagement was limited and the outcomes far from what was envisaged at the start.

The University of the West Indies
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