From Empowerment to Community Power in Participatory Budgeting

This paper examines the issue of empowerment in participatory budgeting (PB). We position empowerment as part of the generally agreed theory of change in PB yet acknowledge the limits of an individual construction of empowerment that neglect sufficient attention to dynamic relations of power in participatory spaces and surrounding social contexts. Using the three forms of power theorized by Lukes (1974) and Gaventa (1980), we examine the ways in which these forms of power constrain individual and collective agency and transformative outcomes in participatory projects. We shift the gaze from empowerment to the concept of community power to suggest that getting beyond small adjustments to local services and resource allocations to substantive changes in relations of power may depend on ordinary citizens coming together in sites of radical possibility to define themselves, deliberate, and then act.