Participation and/or/versus sustainability? Tensions between procedural and substantive goals in Two Local Agenda 21 processes in Sweden and Austria

Local Agenda 21 (LA21) is committed to two types of goal: procedural goals substantiated primarily in the requirement to encourage greater participation in local decision making and substantive goals predominantly attached to the call for a sustainable development. In this article, we report on the LA21 processes of two communities, Helsingborg, Sweden, and Vienna, Austria. We analyse what kind of normative tension the two communities have experienced by concurrently striving for democracy and sustainability. We also discuss what impact the two LA21 processes have on local governance structures and what potentials for more fundamental system changes they hold. Our analysis shows that the challenge of actually reconciling possibly conflicting goals is far from easy. In Helsingborg, the apparent harmony of goals has been achieved partly by falling back on political rhetoric, partly by interpreting the two goals in a narrow way, i.e. sustainability policy has been reduced to environmental issues and citizen participation has been equated with ‘paternalistic’ consultation. The Viennese LA21 process has managed to implement the two goals in a more comprehensive way, but this has come at the cost of being marginalized by the central political actors. Copyright © 2005 John Wiley & Sons, Ltd and ERP Environment.