Technology and public participation Brian Martin, editor



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Technology and

public participation
Brian Martin, editor

Science and Technology Studies

University of Wollongong

1999


First published

1999


by

Science and Technology Studies

University of Wollongong

NSW 2522, Australia


ISBN 0 86418 559 6

Permission is granted for unlimited reproduction of portions or all of this text provided

• full acknowledgment is given of the source;

• no changes are made except with the author’s permission;

• no restraint is imposed on further reproduction of the text.
This text is available on the web at http://www.uow.edu.au/arts/sts/TPP/.
The editor can be contacted at the above address or at brian_martin@uow.edu.au.

Printed at University of Wollongong Printery Services



Technology and Public Participation
Today’s complex society is increasingly intermeshed with technology, from factories to consumer products and from genetically engineered products to telecommunications. This raises all sorts of questions for a democratic society. Should members of the public be involved in decisions about develop­ment and use of technologies? If so, how? Are technologies enhancing or diminishing public participation? What is happening and what should be happening? What forms of participation have been tried? What could be tried? These issues need continual attention.

Technology and Public Participation provides a set of case studies and perspectives on the general theme of technology and participation. They cover a variety of topics, including project planning, space exploration, the competence of juries to deal with complex scientific issues and the role of the telephone in local government. They also cover a variety of perspectives and themes, from the issue of policy for innovation to concerns about psychiatry, human rights and development. They span decision-making arenas both internal to civil society and external to it in local and national governments, and beyond to global governing bodies such as the World Bank and international agreements such as the Outer Space Treaty. They extend across the spectrum from children to farmers, juries and policy makers through to international non-governmental organisations and beyond to space explorers.

ISBN 0 86418 559 6

Contents
1 Introduction

by Brian Martin
I. Technologies shaping participation
15 Toys, play and participation

by Wendy Varney

commentaries by Lynne Bartholomew and Sudarshan Khanna


37 The telephone as a participatory mechanism at a local government level

by Lyn Carson

commentaries by Ann Moyal, Wendy Sarkissian and Monica Wolf


61 Lap-tops against communicative democracy: international non-governmental organisations and the World Bank

by Miriam Solomon
II. Public participation processes
85 The politics of jury competence

by Gary Edmond and David Mercer

commentaries by David Bernstein and Ian Freckelton

response by Gary Edmond and David Mercer
113 “Community participation” in urban project assessment (an ecofeminist analysis)

by Janis Birkeland

commentaries by Bronwyn Hayward and Paul Selman

response by Janis Birkeland
143 Coercive psychiatry, human rights and public participation

by Richard Gosden

commentaries by Chris Bowker, Peter Macdonald and Denise Russell

response by Richard Gosden
169 Public participation or public relations?

by Sharon Beder

commentaries by Gavan McDonell and Ben Selinger


III. Technology policy
195 Policy formation and public participation in the management of technological change

by Rhonda Roberts
209 Participation in food industry technologies in the age of sustainability

by Andy Monk,

commentaries by Richard Hindmarsh and Gyorgy Scrinis


231 Gaining a share of the final frontier

by Alan Marshall

commentary by Robert Zubrin

response by Alan Marshall
249 Conclusion

by Brian Martin
I

Technologies shaping participation


Introduction
Brian Martin*1
A few hundred years ago, to talk of technology and public participation would have been meaningless to most people. Dramatic changes have occurred in both these areas.

The word “technology” today often brings to mind sophisticated things like computers, missiles and genetic engineering. But it also includes everyday items such as chairs, clothes, paper and toothbrushes. For someone who lives in a city in an industri­alised country, one’s entire life seems to take place within a technological framework: driving a car or taking a train to work in an office building, communicating by telephone and electronic mail, purchasing goods manufactured in factories, eating food processed in other factories, using energy produced in distant plants, perhaps consulting a doctor who uses diagnostic equip­ment, going home to a house or apartment built from materials mined and processed, and sleeping on a manufactured bed.

Humans have developed and used technologies for hundreds of thousands of years, to be sure, from simple wooden implements to baskets and wheels. But since the development of agriculture some thousands of years ago and especially since the industrial revolution a few hundred years ago, technologies have become ever more powerful and pervasive, leading some to say that we live in a “technological society.”2

The word “technology” often is interpreted to mean machines or artefacts, those familiar things that we can see and touch. More broadly, though, technology also includes the social processes through which artefacts are created and maintained, such as the division of labour in a factory. Specifically, “technology” can include systems of knowledge that are associated with artefacts, such as scientific knowledge about a manufactured drug like aspirin. In this book we take a broad view of technology, considering it to include what is commonly called science.

Just as technology has become more pervasive in society, so has the importance of public participation, though not in any simple fashion. In many non-industrial societies, including ones that exist today, small groups of people live and work together and nearly everyone is involved in decisions affecting the group, though inequalities in power based on age and gender are common.3 With the rise of larger groups based on agriculture and industry, domination by rulers, such as emperors or landowners, became the usual pattern. The ancient Athenians used a variety of methods for citizen participation in decision making. Even though women and slaves were left out because they were not considered citizens, the ancient Athenians were exceptional in the amount and quality of participation that occurred, especially compared to the autocracy and oppression in much of world in the centuries since.

The push for participation has become ever more important in the past few hundred years. At the formal political level, feudal regimes have been replaced by systems of representative govern­ment, with elected representatives. At first, voting was restricted to a propertied elite, but successive struggles have broadened the franchise to include nearly all the adult population.

Participation in decision making can mean many things. Voting for representatives is indirect participation, since the representa­tives rather than the voters make the substantive decisions. Referendums are a form of direct democracy, since they allow all voters to express a preference. Then there is the market: when consumers purchase an item or a service, they express a prefer­ence from among the available alternatives. One brand of detergent is chosen over another, or a choice is made between solar, gas and electric heaters.

These forms of participation are all very well, but many people want something more. When a freeway is planned that will cut through a neighbourhood, many residents demand a voice. Voting for representatives isn’t enough, since a vote is for a person or a party, not a policy on a specific issue. Nor is being a consumer much help in this situation, since the only consumer choice seems to be to put up with the freeway or move away. Sometimes residents are “consulted” through opinion polls or by tabling of plans for comment. This isn’t enough either, since the agenda doesn’t include basic questions of whether the freeway is needed in the first place or whether other transport modes could be developed.

Most people have relatively little say in decisions about technology. They are not involved in choices about research and development and they are not involved in investment decisions. Then, when they are presented with a new development as a foregone conclusion, they are expected to welcome it as “progress.” It is no wonder that the major form of citizen action is protest against new technologies, such as against nuclear power or logging of rainforests. It is only at the stage of implementation that many people become aware of what is happening and its implications.

Technological developments are not always beneficial—that has been obvious at least since nuclear weapons were developed. Citizen participation is essential to stop harmful technologies. It can be argued, for example, that popular protest has been a crucial factor in preventing nuclear war and in ending the cold war.4 Technologies are not inevitable.5 For example, it was originally envisaged that there would be 500 supersonic transport aircraft, but popular resistance restricted this to a few Concordes.

Protest movements are the most visible force in disputes over technologies, but actually they usually have the least influence. Governments use their enormous resources to research, implement and maintain technological systems, including weapons, transport and communication systems. Corporations routinely develop new products, build factories and sell goods, from perfume to pesticides. Experts, especially scientists and engineers, are also central to technological innovation. Govern­ment and corporate managers, plus a few top-level scientists and engineers, have a great deal of influence over what technologies are investigated and promoted. By contrast, workers and consumers have little say.

Just as important as the practical tasks of research, develop­ment, production and sales are the ideological tasks of convincing the public that new technologies are a good thing. Advertising is important but so is the promotion of a general belief in the wonders of advanced science and technology. When social movements organise against a new chemical or genetically engineered organism, they are painted as opponents of “progress.” Social movements, such as the environmental and peace movements, are usually seen as being against something or other. Actually, some of the most powerful social movements are those pushing for new technologies such as computers.6 These movements are not so visible; by operating behind the scenes they are far more effective.

Although governments, corporations and expert professionals have by far the greatest influence over decisions about technology, there is some potential for changing this. People today are far more educated and aware of technology and its impact than in previous eras. The rise of printing, mass literacy and the mass media has given many more people the capacity to understand and speak out about what is happening in society. It would hardly be possible to bring about a technological society without also creating the capacity of ever more people to comprehend and criticise it.

Furthermore, new technologies have created new opportunities for obtaining information and acting on it. Radio and television allow promotion of products but also report on challenges and catastrophes. The telephone and electronic mail allow people to share information, form networks and build powerful movements.

Technologies such as the mass media can be used both to hoodwink people and to provide insight, but that does not mean they are neutral tools. It is trite but true to note that any specific technology is easier to use for some purposes than others. A tank is easier to use for killing whereas a violin is easier to use for producing music, even though each can in principle be used for either purpose. Careful investigation is needed to determine the purposes for which technologies can and are likely to be used. It is unwise to leave this to groups with vested interests, such as government, corporate or professional sponsors, since they are unlikely to come up with a balanced view. This is why participa­tion from a wide cross section of the public is vital.

Out of the massive amount of writing about democracy and participation, only a small fraction deals with science and technology.7 This writing covers many topics including obstacles to participation and proposals for decision making involving citizens.

There are several obstacles to widespread public participation in decisions about technology. One is that most people lack expertise. The argument is that since they don’t really under­stand the technology or its implications, they are not qualified to judge it. This sounds plausible but, on closer inspection, breaks down. The technical details may be complicated, but they are seldom the crucial issue. There are always social factors involved. Consider transport policy. You don’t need to understand how a jet engine operates, or how to fly a plane, in order to be involved in decisions about flight patterns or siting of an airport. You don’t need to be an expert on brain functioning or x-ray machines in order to be involved in decisions about investment in medical technologies. Experts know a lot about their area of specialisa­tion, but often they are poorly placed to comment on policy issues. Jet pilots are not necessarily the best people to comment on whether transport investment should be directed to plane, train, car or bicycle. Brain surgeons are not necessarily the best people to comment on whether greater priority in health policy should go to brain scanners or prevention of disease through nutrition.

Another obstacle to widespread public participation is lack of time. A person may be able to become informed about transport or health policy, but what about energy, defence and industry? These and many other areas contain a multitude of specific issues, each with its own complexities. It is impossible for everyone to be involved in every issue. That is precisely the argument in favour of representative democracy.

The standard model of decision making is for politicians and government bureaucrats to make decisions on the basis of advice from experts. This seldom involves much public input. Some­times, on contentious issues, there is a public inquiry, in which interested parties are invited to make submissions to a judge or panel. This allows many more people to be involved, but in an unsystematic manner. Furthermore, there is no guarantee that governments will follow the recommendations coming from such inquiries.

There have been proposals to deal with controversial technical issues through a “science court,” in which a panel of experts hears evidence and makes judgements about the facts. One trouble with this idea is that facts cannot be easily separated from values. Another proposal is for a “citizens hearing panel” which, like the science court, hears evidence. The panellists in this case are citizens chosen because they represent interested parties, such as consumer bodies or trade unions. This idea overcomes some of the dependence on experts but is open to manipulation by whoever selects the panellists. Neither idea has been taken up by governments.

Putting an issue to a referendum certainly involves the public, but also has limitations. Usually only a few choices are available—and few people have input into what the choices are. Few voters have the time to investigate deeply. Interest groups can spend large amounts of money in media campaigns to sway the vote. In spite of this, referendums give citizens much more of a say than the usual procedures. When an issue is put to a referendum, it typically generates widespread discussion. The experience of hundreds of referendums over putting fluoride in local public water supplies in the US shows that citizens often do not vote the way experts think they ought to.8

Another proposal is to set up “policy juries.” These are groups of citizens, randomly selected from volunteers, who hear evidence and arguments from experts and advocates and make recommendations. Researchers in Germany and the US have tried out this approach and found that participants take the process quite seriously, become enthusiastic about participation and reach sensible conclusions. Random selection reduces the influence of vested interests while turning each specific issue over to a policy jury overcomes the problem of everyone having to learn about every issue. However, this method undermines the role of politicians and bureaucrats and so has not been taken up.9


Background to this book

In Science and Technology Studies at the University of Wollongong, there has long been an interest in the social impacts of contemporary science and technology.10 Many staff and research students have investigated controversial scientific and technologi­cal projects, such as debates over the greenhouse effect and over vitamin C and cancer.11 Some staff and students have been participants in social movements or campaigns, such as over nuclear power. At one of our research meetings, we realised that public participation was a common issue in many of our studies and experiences. We decided to produce a book covering a range of case studies and perspectives. We invited a few colleagues known to us.

In keeping with the theme of participation, we decided to make the process of producing the book reasonably participatory. Electronic mail was extremely helpful in our communications. We agreed on deadlines, word limits (a painful challenge for some contributors!) and a procedure for ensuring the quality of each chapter. Each contributor was expected to seek comments from at least two readers on a first draft and then give the revised version to me as editor. I offered further comments and each contributor prepared a further revised version. We decided to invite outsiders to comment on each chapter. Each contributor nominated a series of people as possible commentators. They had word limits too. Contributors then had the option of writing brief responses to any commentaries on their chapters.

The commentaries provide alternative perspectives to those of the chapter authors. This helps to avoid the impression that there is a definitive view on any issue. Just as technology is and should be controversial, so the issue of participation deserves dialogue and debate.

We agreed to aim our writing at a general educated audience. This is not so easy, since in academia the usual orientation is to specialise in one’s own field. Furthermore, each contributor has carried out in-depth research into the topic covered, often for many years. To step back from specialist language and perspec­tives and communicate for a wider readership can be challenging. We have gone some way in this direction, though undoubtedly some chapters will challenge some readers.

Each contributor has approached his or her topic in a distinc­tive fashion. We haven’t tried to impose a single perspective or theoretical framework. Everyone, though, subscribes to a few important assumptions. One is that it is not possible to separate technical issues from social issues. Values are always involved in technology, from its conception to its practical uses. Secondly, we all agree that people who are affected by technology should have an opportunity to participate in decisions about it, though we would differ on the extent and form of that participation. Indeed, we do not automatically assume that participation is always a good thing. Finally, we all believe that the issue of technology and participation is a vital one that deserves more attention and discussion. That is the rationale behind the book.


The chapters

The chapters are divided into three sections dealing with, respectively, the influence of technologies on participation, the role of technology in public participation processes, and public decision-making about technology. These categories are arbitrary but capture some key elements in the issues.

That technology can affect participation in decision making is apparent from any number of examples. The mass media provide information about current events, sometimes stimulating citizen action and sometimes inhibiting or undermining it. Pressure groups use word processors, printing, direct mailing, public address systems, mobile phones and other technological aids to organise support and coordinate action. Just about any technol­ogy can have an impact on participation, from robots to recording equipment. Three chapters deal with this process. Their topics include a seldom considered dimension for participation—toys—and fresh looks at the familiar telephone and computer.

Toys are an everyday technology with which children play and to which few adults give much attention. Wendy Varney takes a closer look. She argues that play is an important training ground for future citizen participation but that modern toys are constraining and privatising play, reducing its value in education for participation. At first sight toys may seem a trivial sort of technology, but analysis quickly leads to issues of mass market­ing and corporate agendas.

The telephone has long been familiar in the industrialised world. Lyn Carson looks at a specific application of the tele­phone: as a tool for participation in local government. As an elected member of a local council, she tried various techniques for consulting and involving citizens in decision making. The telephone turned out to be one of the most practical tools and one that allowed her to adopt a “heart politics” approach in which human connection takes priority over confrontation.

Non-governmental organisations, such as environmental and human rights groups, have a special interest in public participa­tion since they depend on public support for their campaigns. On the international scene, many groups have challenged the undemocratic practices of the World Bank. Miriam Solomon puts these groups under scrutiny, examining the role of the lap-top computer in their own practices, participatory or otherwise. She proposes a model of communicative democracy and raises some of the dilemmas posed by the concept of a global civil society.

The second group of chapters deals with processes of public participation in four arenas where the uses of science and technology are centrally involved: courts, urban planning, psychiatry and siting of hazardous facilities. In each of these areas the public has been involved in decision making but some groups would like to limit the scope of participation.

In the court room, a place where many crucial decisions are made, the jury remains an important source of citizen participa­tion, both in practice and symbolically. Recently, the jury has come under attack by critics who claim that ordinary citizens are not competent to judge complex technical issues. Gary Edmond and David Mercer delve into the assumptions, about both science and the public, behind these arguments.

Planning a new project—such as a building or transport link—is a classic case where citizen participation can be considered. Traditional models for making decisions have a number of problems, such as treating community and experts as separate and treating participation as a step in a sequential process. Janis Birkeland exposes these problems and presents an alternative model based on feminist principles.

Psychiatry is about the proper operation of the mind. This has always involved theories and talk about the mind and brain, but technologies are increasingly important. Today mind-altering drugs are regularly used as part of psychiatric practice. Richard Gosden tackles the controversial issue of “coercive psychiatry,” namely therapy imposed on people without their consent. Questions of human rights and participation are fundamental in this area.

Because participation is generally seen as a good thing, vested interests often attempt to give the illusion of participation without the substance. Sharon Beder examines the role of public relations in a decision about a proposed toxic waste incinerator. She shows that the rhetoric of participation may hide the true agenda, one that is better described as manipulation.

The third and final group of chapters deals with government decision making about technology, commonly called technology policy. In liberal democracies, there is a continual struggle over whether citizen participation begins or ends with voting. Governments use various ways to restrict participation while trying to retain their legitimacy as representatives of the people’s will. In a technological society, technology policy is a central arena for power struggles.

Because technological innovation is a key driving force in industrialised economies, governments don’t like to leave it to chance. Many attempts have been made to emulate the success of technology parks such as Silicon Valley near San Francisco. Rhonda Roberts analyses the assumptions underlying attempts to foster the innovation process and shows the limited role allotted for citizens.

In recent decades, agriculture has been transformed by technology virtually into an industrial process. Corporations and governments have pushed this change, with little input from citizens. Andy Monk looks at modern agriculture and especially at the role of farmers in the innovation process. The organic agriculture movement provides an example where greater participation is linked to a different style of farming.

Space exploration has seemed to many to be the ultimate technological challenge. Yet, it can be asked, who speaks for the extraterrestrial environment? Alan Marshall argues that space exploration has proceeded similarly to the imperialistic conquests of the past, completely contrary to the humanitarian ideals normally used to justify it.

The concluding chapter picks out themes and theoretical issues introduced in the earlier chapters, attempting to expand on common threads.

* * *

We do not expect that everyone will agree with every author. Certainly, some of the commentators do not! Rather, our aim is to stimulate thinking and discussion and to provoke debate. Apathy and the acceptance of technology as inevitable are the enemies of participation. We hope that others will challenge us and each other with new ideas and with new forms and arenas of participation.


Acknowledgments

I thank Sharon Beder, Lyn Carson and Wendy Varney for comments on a draft of this chapter and everyone in the project for advice, support and tolerance.





Toys, play and participation
Wendy Varney*12
Imagine children at play and the image that springs to mind might well embrace several aspects of participation: children involved in joint activities, learning together, allocating roles, trying out ideas, agreeing, disagreeing, sometimes fighting, sometimes resolving differences.

Yet the toys that are popularly marketed to children, “the tools of play,” are strangely devoid of features which encourage these aspects of play—with the exception of war-toys which encourage “participation” in fighting. If participatory play still exists to some extent, it is despite, not due to, the toys which beckon from the loaded shelves of toy stores.

Examples of dolls and doll play in different periods make the point that today’s heavily marketed toys are less conducive to participatory play. Up until the industrial revolution, most toys were home-made so that dolls would frequently be crudely fashioned lumps of clay or some other material which children felt could stand in for a doll. This left most definition at the imaginative level so that the doll could take on virtually any role decided by the child. After the industrial revolution specially crafted or factory-made dolls became increasingly available and from around 1820 the baby doll was introduced13 at a time when the role of mothering was gathering great ideological momentum. By this time dolls were perceived to be exclusively for girls whereas in eras past they had been for children of both sexes. Both the pressures on young girls to practise nurturing from an early age and the designing of dolls to depict those in need of mothering influenced doll play along lines of socialisation for motherhood.

Nonetheless, girls continued to play other things with dolls as well as acting out the mother-child relationship. The dolls were still largely perceived to be little people whose age categories could be determined in accordance with the desires of those playing with them. My own experience growing up in the 1950s was that dolls were essentially a ticket to play with other girls in the neighbourhood. No one was excluded as long as she had a doll tucked under her arm.14 At times the after-school doll play was less important than the negotiation, script-writing—and outright arguing—that was the prelude to doll play. Were we to be mothers at a gathering with our babies? Were we taking our children shopping? Were we attending a wedding? If so, serious discussions would determine whose doll was to be the bride. Or would we have a tea-party where both the dolls and ourselves would be equal guests? Our ideas were limited not so much by the dolls themselves but by the roles we perceived as being open to women. Doll play still maintained much of its flexibility and opportunities for participation.

The launching of Barbie, a doll whose role was strictly confined to that of teenager, and a genre of dolls that relied heavily on accessories to set the scene for play, appears to have narrowed the opportunities for play and, with it, the opportunities for negotiating play. In this way, mass-marketed contemporary toys inhibit rather than facilitate participation, for reasons which I will explore, after firstly teasing out the various influences that toy technology has had on children’s introduction to participatory processes.

Participation in itself is insufficient for meeting far-reaching democratic goals. If not tied to broader struggles for social justice and for equality of resources and opportunities, participation can be lame and unfulfilling. For instance, participatory play in itself cannot counter sexism, racism and violence if the culture that sustains the play holds these to be valid.

A further problem is that “participation” has become a catchphrase, used by the market for its own purposes. The result has been a pseudo-participation which has been designed by those who seek to accrue individual benefits by having the image of participation pervade their practices. Toys, and ultimately play (since toys support certain types of play activity), have been affected by the pseudo-participation of the marketplace. The opportunity to purchase and possess so many toys, to make (albeit limited) decisions about which to forego and which to pursue and to link up across so many points of culture in playing with these toys is sometimes interpreted as a form of participa­tion. I will argue that contemporary toys have contributed to moving children’s play away from participation and replacing it with a crass “marketplace participation” where dollars are the means by which children participate. It will be seen that the marketplace promotes a very narrow and warped version of participation and one which is almost directly opposed to the notion of participation that comes from involvement in the nature of play.

But first the different aspects of the relationship between toys and participation need to be spelt out. There are four major points at which toy technology and participation intersect:

• at the practical level where play is enacted around or alongside the toy;

• at an ideological level where the toy and the play transmit sets of values and help to interpret the world for the child;

• at the level of producer-consumer relations between toy promoter and potential toy purchaser where claims might be made as to the participatory characteristics of any particular toy and a model of participation is held forth within that claim;

• between those who design toys and those who may be interested in having input into toy design for reasons other than market reasons.

Many players—fast-food chains, movie production teams, merchandisers, licensing agents and more—influence the direc­tion of toys but they do so from the same limited motivational base. This is not participation in the same sense that it might be if parents, educationalists and others who were not in the employ of the toy and entertainment industry were involved from the early stages.

Each of these four potential connecting points between toys and participation could be explored at length and there is a great deal of overlap among them. I will focus largely on the first two aspects, arguing that the nature of play has changed remarkably in response to the increasing prominence of the marketplace and its enveloping of all aspects of life, not least of all children’s play. I will then address some of the ideological implications of this and what it might mean for the notion of participation that children form around their own experiences and which they carry into adulthood.


Shifting patterns of play

The practical level at which toys provide scope for participation stems largely from a toy’s ability to influence play, yet that influence is variable and itself subject to other social forces. Toys have traditionally been more peripheral to play than they presently are. That is, in most cultures and most eras the toys fitted into the play rather than play being determined by the plaything. Since many of the toys that children have played with have traditionally been made by the children themselves, they have been able to make them to specifically meet their own ideas of play. Toy historians Eugene and Asterie Provenzo claim that self-made toys “required the imagination and inventiveness of the child” and “provided the opportunity to penetrate and understand the physical environment in which they live.”15

Another crucial aspect of traditional play is that it has generally been strongly participatory, as is evident from anthro­pologies of play such as Helen Schwartzman’s Transformations.16 Traditionally most play has happened among a number of people, often children in combination with adults.17 A study by UNESCO suggested that in many non-Western countries children and adults played the same games, just as they performed many of the same tasks towards making a living.18 Neither work nor play was strongly age-differentiated. It is a rather Western and only quite recent trend which sees the life of children as being so separate from the lives of adults. This separation makes the extent to which children participate and learn about the possibil­ities for participation particularly important since they have less scope for learning it through joint activities with adults. Some play which is of the “traditional” kind still exists, of course, and some play may mix traditional and other values, but the tendency has been, at least in the latter half of the 1900s, to encourage play which is commodity-oriented and to have toys owned by individual children rather than groups of children. This in turn has led to more individual play.

As an activity which children do together, play provides numerous opportunities for participating. Indeed to some considerable degree it is participation which makes play what it has traditionally been. There are rituals and rules laid down that, from time to time, have to be negotiated. The game has to be carried out in the way the group of players collectively interprets it as needing to be played.

Dorothy Singer points out that games with rules might involve competition, but more likely co-operation. Such games usually involve codes that are institutionalised but rules that may have to be renegotiated, re-interpreted or improvised.19 Players often have to work through or come to some agreement, though this does not necessarily mean that power will be evenly distributed or equally exercised. According to Singer, games with rules are “critical for the mastery of orderly thought, moral judgement, and other phases of operational or logical mature thought.”20 These all bear benefits as useful ingredients for participation. Singer further claims that children learn to share, take turns and co-operate through make-believe play and that such play helps them to develop scripts and order or sequence events.21 I will argue that most of the modern toys do not encourage children to develop scripts and so cannot fulfil this role.

There are benefits in group play in that children are learning to interact with each other, often in positive ways. While certainly play can be carried out unequally and with some players dominating others, it is one area where children can learn to overcome such dominance and to voice their own concerns. Calls for fairness and for different players to take turns at different roles are common in play, suggesting that there is a strong connection between play and participation, although no guarantee that the former will involve the latter. Other forms of social codes and interaction, including those reliant on race, gender and class, will obviously also bring other factors to bear on play.

Having established that the relationship between traditional play and participation is a strong one, we need to understand how toys fit into this relationship and how they influence it. They exert two basic types of influences, one in relation to toys’ location in play and the other relating to the nature of the toys themselves.

In traditional play toys were props but not much more in terms of their influence over play. That has changed dramatically with the emergence of the commodity-toy—or what Beryl Langer has called the “commoditoy”.22 The appeal of these toys far surpasses their functionality, making them strong examples of a phenomenon that Wolfgang Haug has described as “the technocracy of sensuality.”23 Not only are great efforts invested in enhancing every visual aspect of these toys but they are designed so as to confront and tantalise every sense. Many dolls smell of flowers, fruits and other flavours, while lighting and sound ef­fects are maximised across the full spectrum of toys. Some balls even have a gimmick of making noises when thrown, while high-tech versions of the humble skipping rope light up and emit bub­bles. However, it is not only at the operating level of the toy that this sensuality takes place. Toys are designed to build up appeal via the relationships they have with each other and with a great many other commodities and events to which they are tied.

Commodities have come to provide many of the symbols and goals around which our society now revolves and, in accordance with this elevation, toys have come to play a decidedly more central role in play, to the extent that toys determine what form play will take rather than play determining what toys should be used and if toys should be used.

This renders the toy a much more influential force in play and allows the nature of the toy to shape the direction of play. I am referring here not simply to the toy and its set of meanings, but to the entire support network built around the toy and from which the toy takes its often highly specific meaning. Toys are nowadays sold via a dazzling array of marketing mechanisms and the rather limited sort of play that goes with the toy is sold as part of that toy. The toy industry is an arm of a broader entertainment and commodity industry which organises its promotions to children so as to reinforce the wares on offer through cross-promotion and multi-layered promotion.24 The support network includes a range of promotions via advertise­ments, competitions, mall entertainment, catalogues and magazines for children, but extends also to other commodities. A typical well-promoted toy may have a movie made around it, a television series, a fast-food tie-in, a breakfast cereal linked to it and a plethora of merchandise such as sneakers, lunch boxes and bed sheets featuring the toy on their design.

Due to the involvement of movie and television program producers, and to heavy television and other advertising, the upshot is that a child will be familiar with not just the toy but the storyline which goes with it. Since many popular toys come within series, each character will have an elaborately detailed role which has been played out in fine detail through the promotions surrounding it. This nudges play in the direction of imitation rather than imagination, since the story has been painstakingly thought through and repeatedly played out for the child in the promotions.

As a result, most modern toys involve deliberately closed systems of play. They are not open-ended in the way that traditional toys often were. Play has always unfolded within the limits set by social systems, world views, views of gender and so forth, but now it is the toy itself, in its broader marketing package, which primarily sets the limits, working in with and borrowing from broader social systems, but especially the economic system. Sally Vincent argues that modern playthings are made up of “pre-packaged fantasies…brand name objects, functionless belongings, group identity kits, images from a promotion scheme that leads to the ultimate in passive acceptance of their totalitarian symbolism.”25 I will return to the totalitarian aspect of the toys shortly. Here the relevance of Vincent’s claim is that the more limited the opportunities are for play and the more over-determined and highly structured toys are, the fewer opportunities there are for negotiation and for other aspects of participation that have been noted to be gener­ally beneficial in children’s play.

Critics of modern toys are especially concerned about the decreased opportunities for imagination which they provide.26 For instance, “…over structured toys, where the designer has already done the thinking, imagining and creating, reduce the possibilities for imaginative ideas and creative acts on the part of the child.”27 Decreased opportunities for participation often go hand in hand with this tendency. Education researcher Lynne Bartholomew, in working with children, found that creative play around flexible props “encouraged children to negotiate the play script with each other, so that each child felt a sense of belonging and ownership in the play.”28 There was, it seemed, a sense of participation which ran deeper and was more meaningful than the rather more superficial involvement encouraged by overdetermined toys. Bartholomew noted that overstructured toys involved the risk of using less ingenuity and resourcefulness, both of which are useful in co-operation and participatory play.

Do modern toys have to be so highly determined? Do they have to have their stories spelt out in such detail that they leave little to children’s imagination and detract from the scope for richer participatory play? According to mechanisms of the market, which ensure that popular toys receive the most massive exposure and carry within themselves the seeds for their own quick redundancy, a high level of sensuality and a closed system of play are essential to the process. The elaborate sensualisation requires over-determination in appearance, so that each toy is highly specific and functional in a precise but extremely narrow way.29 The Care Bears exemplify the segmentation of tasks and play themes. Instead of a humble teddy bear, this series of bears had their tasks divided up in the same way that the work force had had its tasks heavily segmented and specialised under Taylorism. Whereas one Care Bear was depicted as loving, another had the role of being cheerful, one was fun to be with, etc. The promise made by the typical modern toy is that it will perform a very particular function or strike a very particular image, the reverse side being that it can do very little else. Such toys do not encourage children to seek other functions within the same toy. The type of toy being sold and the marketing hype around it suggest that other toys, with their own highly specific functions, are needed for other play and for other scenarios. Overdetermination in character is therefore essential to the image identity being sought for the toy.

Overdetermination in the storyline is equally a part of the marketing process, for any toy that is brought to either the movie or television screen requires its stories to be pre-determined.30 The toy industry chooses movie and television tie-ins for the exposure they give to toys and for the level of hype they can create. It follows that toys that are either designed or translated for the screen must have their stories pre-written. The toy industry does not lament this. On the contrary, it makes the most of it, as pre-ordained storylines allow manufacturers to work into the stories not only the key characters but many of the accessories and assorted characters that make up the elongated toy lines that exist today. In 1985 the then president of toy company Mattel explained that previously “When consumers bought one [toy], they didn’t need another, so from a purely financial point of view, most toys failed” in terms of reaching their full market potential.31 The large toy manufacturing corporations have turned that around so toys now rely heavily on other toys and accessories in the same line. For boys, these lines include mostly male companions, enemies, vehicles and weaponry, while girls’ toys have friends, abodes, shops, horses and lots of fashionwear. As toys’ functions become more specific, children need more of them to compensate for their limitations. Whereas open-ended toys can be brought into play across a wide spectrum of settings and imagined circumstances, function-specific toys can not.

Privatising play

Another important factor in these toys is their very private and individual nature. This has been achieved not just at the behest of the toy industry, though that industry has certainly taken advantage of this trend. We live in an increasingly privatised world which has put much more emphasis on commodities than relationships and sometimes, due largely to sophisticated forms of advertising, confusion between the two. If it was once thought that a child needed companions in order to be able to play meaningfully, it is now thought that a child needs toys. Moreover, toys often carry names which suggest they stand in for friends or are advertised to suggest this. Some of these include Tyco’s series of soft toy dogs in the My Puppy Loves Me line, Friend Bear in the series of Care Bears, the Natasche doll which was advertised as being “ready to be someone’s best friend,”32 and Talking Baby Alive, of whom it was claimed “She will become a special talking friend.”33 Mattel ran an advertisement for Barbie in 1983 under a heading “Will you be Barbie’s friend?” After listing some of Barbie’s considerable accessories—and therefore serving as a reminder that these were available, should a child not have the full range—the advertisement continued: “Pink and Pretty Barbie has everything but the one thing she wants most. A true friend. Will you be Barbie’s friend?”34

So, while such toys as skipping ropes, which can accommodate a great many players, still exist, much of the emphasis in today’s toy market is on toys which children are expected to own individually, which they can play with alone and which often make claim to being able to substitute for friends and compan­ions. Toys largely subsume play and restructure it so that participation becomes a much lesser part of play. Children might still play with their toys with friends but they are encouraged by neither the toy’s prescribed range of play nor the broader social message contained within the toy itself, in which companions are somewhat superfluous. Increasingly gender-specific toys further exacerbate this trend, discouraging children of different sexes from playing together, since these toys construct vast differences in the types of play in which boys and girls are supposed to take part. Obviously, such constraints to participatory play can only detract from children’s development along participatory lines.

Adults, too, have become more removed from children’s play. Brian Sutton-Smith notes the paradox that “the toy is given so that the child can occupy itself without making any great demands on the parent’s time” and that this is as true of toys which are Christmas presents as any other given toys, even though Christmas is supposed to be a celebration of together­ness.35 An article in Advertising Age also noted that parents were buying toys as a means of assuaging their guilt about spending less time with their children.36

Other social forces have contributed to children being increas­ingly likely to play alone with their toys. The entrenchment of the small, self-contained family over the extended family and the breaking down of communities have no doubt played their part. To an increasing degree, urban and suburban children at least are expected to play, if not indoors, then in their own yards or in other stringently designated areas. This is partly a response to “stranger danger” to which television has contributed a growing awareness and exaggerated perception. There are increased pressures on parents to more closely oversee all activities of their children. Children are often chauffeured to organised activities where they may once have walked within the neighbourhood to less formal activities. Perhaps some of the dangers have height­ened, such as the increase in cars and the encroachment of highways and major roads so that neighbourhood streets generally have more traffic and carry greater risk. That the trends extend beyond those that are directly to do with the marketplace in no way diminishes the corporate grab for children. Children are now targeted directly,37 which has meant that toys are advertised in different places and ways and that the toys themselves are now designed to have quite different appeals.

With the shift towards more singular play and more individual toys and the social circumstances that encourage this, the well understood benefit to the toy industry is that a lot more toys can be sold to children who largely play by themselves or who, even when playing together, need their very own toys and all the accessories that go with them. All this reduces the quantity and quality of participatory play.

Moreover, the problem is not only that children are more likely to play alone, but the wider context where their social lives are dissipating in several areas. Dorothy Singer has noted that “When grandparents, parents and children live together, they form networks of educational, social, economic and cultural ties and interdependence.”38 She points to studies suggesting that “children who have active contact with their grandparents have a stronger sense of family, values, traditions and self-esteem.”39 Children’s social networks are increasingly influenced by the marketplace. With the breakdown of many traditional codes, relationships previously built largely by family and community now have an increasing input from the market.

To some extent, then, toys now stand in for family or friends both in play and in teaching social roles. The ideological content of popular contemporary toys suggests that commodities are essential and are appropriate solutions to all problems. The toys which claim to be friends, already referred to, are an example of this phenomenon. In such ways, commodities promote them­selves in an ongoing spiral, both presenting and claiming to solve problems. Commodities now stand in for communities in many instances and deliver a world view which is largely centred around goods rather than relationships.

This brings us to the second aspect of the relationship between toys and participation, the ideological socialisation of children by toys and how that pertains to their understanding of and expectations of participation.
Playing “out” participation

Toys are clearly mechanisms of socialisation. Birgitta Almqvist, for instance, states that gender socialisation through play “is assumed to influence children’s anticipation of their future adult roles.”40 Just as play delineates roles and accept­able spheres and aims for each gender, we can envisage, too, that play, by either including or restricting socialisation into participatory processes, will give rise to either narrow or broad perceptions of participation and contribute to different sorts of expectations for what is a “normal” or desirable level of partici­pation in adult life.

I have argued that different toys involve different levels, and sometimes different types, of participation. Traditional play tended towards participation with others and involved applica­tion and changing of rules, often by popular agreement, as well as showing a strong emphasis on co-operation. This is much less apparent in play involving modern popular toys, either because the children play alone with their toys or they play with others but the toys are too overdetermined to encourage the full range of participatory possibilities.

There is another strong force which may also be working against participation: the ideological content of the toys themselves, much of which derives from the supremacy of the market. Richard Sclove asserts that conventional markets “nurture egoism, not moral development or citizenship.”41 This is characteristic also of the toys of the marketplace, which heavily emphasise individualism, narcissism and instant gratification and make an extravagantly wasteful and consumerist society seem natural. This is evident in the number of toys which themselves promote commodification and notions that shopping is bliss. There are numerous shops among Barbie’s accessories, the talking version of that doll asks “Let’s go shopping?” and even non-Barbie fans may find games such as Mall Madness in their toy boxes. This promotion of gratification and the other recurring themes is an inherent part of the strategy by which appeal is fostered for just such toys. These commodities therefore contribute to a popular culture which justifies and promotes precisely those attributes which result in their being strong sellers.

The promotional aspect does not end there, for, as previously mentioned, there is a great deal of cross-promotion involved in the marketing of toys, so that toys advertise a great many other commodities and entertainments which, in turn, promote the toys. This has so heavily influenced the direction of toys that “advertising toys,” as so many of these toys can be called, are empty of almost every quality save for purely commercial “qualities.” These promotional objects often have instant appeal which is linked to the advertised company or good.42 There are a great many toys which advertise McDonald’s, Pizza Hut, retailing chains, toy stores, and even other toys put out by the same company. For example, Polly Pocket Barbie promoted a quite separate line of dolls, Polly Pocket, put out by Mattel, the same company which manufactures Barbie. Fisher-Price, now a subsidiary of Mattel, in turn promotes Barbie and Hot Wheels on several pre-schoolers’ toys. This verifies Andrew Wernick’s claim that

…for things implicated in a competitive market to be given a self-promotional form is not merely a decorative—and dissimulating—addition. It changes their very being. An object which happens to circulate is converted into one which is designed to do so, and is so materially stamped with that character.43

The ideology of these toys, then, is the ideology of the market­place and of promotion. The closest they come to encouraging participation or being part of a community is to urge potential consumers to be part of a “community” that eats at McDonald’s, shops at Toys R Us and wears Reebok shoes. (Barbie, for instance, wears Reebok shoes and promotes these companies, among many more.) At a cultural level, realignments are made around products and brand-names. According to Tom Panelas, “Much of what passes as symbolic communality among large and geographically dispersed subcultures is based primarily on consumption patterns.”44

Democracy, as it is defined and practised in its more conserva­tive and limited applications, can be an obstacle to more meaningful participation at a political level, with claims that such participation is impractical, unnecessary or even an interference in the democratic process. Similarly, the marketplace can impede a flowering of participation behind its construction of pseudo-participation.

In this way we see the validity of Vincent’s claim that toys are operating in a system of totalitarianism, although this is clearly not the model of totalitarianism commonly portrayed, where there are not enough goods in the marketplace or where the state determines what goods in what numbers are put on the market. This totalitarianism is about the pervasiveness of the toy and its often seedy message which preaches the primacy of commodities, the very system from which the commercial toy itself sprang. “Vaguely familiar playthings now come with their own book of rules, as though some invincible mastermind has already played with them and determined the parameters of their place in a child’s life,” says Vincent.45 She uses the example of the toys linked to the wider marketing concept of Judge Dredd to demonstrate that the storylines themselves fit into the totalitar­ian pattern. “Dehumanized and licensed to kill he [Judge Dredd] has no emotional being, no personality, no social dimension, no conscience.”46 Dredd lives in Mega-City One, a city he describes as having “800 million people and every one of them a potential criminal. The most violent, evil city on Earth…but, God help me, I love it.” He “may enter a citizen’s home to carry out routine intensive investigation. The citizen has no rights in this matter.”47

Judge Dredd is not alone in providing a much more detailed blueprint for violence than for citizenship and community rights and responsibilities. Many of the toys designed for boys have a militaristic basis and the military, of course, is one arena where participation in decision-making is off the agenda. If girls escape the militarism, they are more likely to be caught up in the appeals to narcissism, with groups of toys promoting vanity, fashion and, once again, shopping. Those toys depicting malls which include fashion and beauty shops can indulge all these narcissistic ideals at once. The idea of community or of groups of people working through problems or situations in co-operative, innovative and sensitive ways is missing completely. Video games are largely given over to killing or assisting a helpless female escape. Those video games which are designed for girls focus on matters such as designing new outfits for Barbie. The rules in these video-games are fixed and allow little chance of working through alternative solutions or different ways of coping with problems. In particular, they discourage collaborative attempts to encompass varying viewpoints towards resolutions. “Interactive” video games are far from participatory.

Marsha Kinder argues that children’s and teenagers’ enter­tainment, consisting of Saturday morning television, home video games, movies and all the commodities that tie in with these, do prepare young players for participation but it is “participation in this new age of interactive multimedia—specifically, by linking interactivity with consumerism.”48 This is the pseudo-participa­tion I referred to initially and it demonstrates how the concept of participation has been appropriated and used in the interests of marketing. If participation means only taking part, then yes, there is participation at every glance, with people taking part in the celebration of commodities, the razzamatazz of the market and the rituals of mass consumption. But if participation means taking part in decisions about what technologies and goods should be designed and produced and for whose benefit, then participation is still very rare.

Participation has proved a slippery concept indeed and one which has been too easily adapted to the dominant philosophy. Carole Pateman has noted that under fascism there was a tendency for participation to be linked with totalitarianism rather than democracy.49 Constituents under fascism were swept into a show of solidarity with the regime which had constructed a short, simplistic, superficially exhilarating agenda while trammelling any mechanisms for a more meaningful participa­tion. Now the market is the new totalitarian force, with consumers, including children, being urged to participate. However, the domination of the market is invisible because it comes with a democratic image which belies the grip which it has on people and the paucity of choice that really exists in an arena which is supposed to be all about choice. The totalitarian features are most clearly seen in the ongoing attempts to have everything come under the umbrella of the market so that the needs of the market determine the nature of education, allow­able levels of environmental pollution and a great deal more. Each time a crisis arises, the market is looked to provide a solution, even though it is often the root of the problem.


Conclusion

Toys are a technological arena where the possibilities for participation in and beyond play are diminishing. This is largely due to the changing nature of toys and their dominating role in play. For those designing and manufacturing toys, questions of play are subservient to questions of marketability. Toys are helping reshape play towards less imaginative, more solitary, more commodity-based and more pre-determined activity.

Play and toys feature strongly in the socialisation process. Therefore the nature and extent of participation allowed or involved in toy play contribute to a child’s expectation of partici­pation in future life. Can we seriously expect toys which virtually exclude participation or leave it off the agenda to give rise to citizens who make great claims for participation? If modern toys are contributing to children’s expectations and understanding of participation, then those children are being guided towards a participation which relates only to the marketplace and relation­ships which are between people and commodities rather than between people and people.

To use a market phrase, surely it’s time to “shop around” for a stronger brand of participation and a type of play which will give rise to citizens who might more strongly demand it.

Commentary by Lynne Bartholomew*50

In considering Wendy Varney’s chapter, I am faced with a dilemma. As an educationalist I agree with many of the points she makes regarding societal changes, market forces and the pressures these impose on parents and children. As a parent however, I have to confess to having succumbed to that pressure!

Action Man was the toy of the moment at the time and became the focus for much sustained play. I remember being charmed to find him tucked up for the night under a rhubarb leaf in the garden, serving as a legitimate doll for my son. It is sad that after a certain age it is considered sissy for boys to play with dolls. In that sense I feel that such toys have a role in the development of children’s imaginative play. Bruce refers to the importance of the transitional object, seeing this as one of the earliest sources of representation:

It offers a massive opportunity to any interested adult to understand, enter into and help the child develop his/her representational ability in the play setting. Winnicott (1971) says: ‘The transitional object represents the infant’s transition from a state of being merged with the mother to a state of being in relation to the mother as something outside and separate.’51

Action Man can be seen as an extension of earlier play with, for example, a teddy.

It would seem well nigh impossible to counter the pressure of market forces but I believe there are ways that parents and edu­cators can foster children’s imagination. I remember a colleague using a My Little Pony and a Barbie Doll as story props for the legend of Pegasus to an entranced class of 3 and 4 year olds who had English as a second language. In this way, she not only took the children into history and mythology, but also illustrated how such toys can be used in rich and different ways.

Providing children with natural materials so that conventional toys can be used alongside them helps children to become creative thinkers. Mud used as icing on a leaf makes a fine tea for Barbie!

The work of Athey, Bruce and Nutbrown on schemas or patterns in learning and development gives much insight into why children opt for certain toys at particular stages.52 Identify­ing these schemas and using the knowledge helps informed adults to make provision that will enhance and enrich children’s learning.

It seems that the prospect could be a gloomy one when looking at play, toys and participation. To take a constructivist stance, as with the examples cited, it is to be hoped that there are enough interested and committed adults to at least counter the onslaught of unsuitable toys that are currently being marketed. The greatest hope lies in the children themselves having the resourcefulness to use toys and other materials with flair and imagination.

Commentary by Sudarshan Khanna*53

Talking of toys, our mind seems to rush to the neatly packaged things in toy shops and stores. Yet in countries like India, the majority of children still don’t have access to these mass marketed “good looking toys.” The culture of toys made by children and artisans is now struggling to survive.

I have often noticed that it is the self-made or even artisan-made toys that bring a sparkle to the eyes of children, rich or poor. I remember that, as children, we used to spend happy hours in playing with toys like a leaf flute. We just rolled the right type of leaf in the right manner and blew it in a particular way to create sounds and music. The fun part was also to compare the sounds, and to help teach younger ones. Even today, in every part of the world, you will find children making and playing with paper aeroplanes, watching each one for its gliding performance. We can make a long list of the value and worth of these priceless toys.

Earlier children had access to another alternative source for toys. Just twenty years ago, many fairs all over India used to be like roadside toy expositions. The fairs had many indigenous toy makers, as well as stalls selling mass-produced cheap plastic toys. Today the toy makers are being replaced by stalls selling the same stuff. There is also the organised toy industry, growing every year. This sector operates much like “commodity toy” manufacturers elsewhere.

I liked reading Wendy Varney’s chapter. Many of us have been voicing our concern over the erosion of our heritage of indigenous playthings. I am not against the modern, mass produced, mass marketed toys but deeply concerned over the decline of self-made and artisan-made toys. I am convinced that mono-cultured, market-driven toys are not only expensive but have a limited role to play, and these cannot replace the timeless, popular creative playthings made through the genius of generations of people.

Varney’s well researched chapter has clearly brought out the less known “other side” of the “good looking toys”: that most of the fancy, highly promoted commodity toys are devoid of real play participation and that an elaborate, highly advertised, pseudo-participation is being sold for genuine participation. The motives and methods adopted by the present-day entertainment and commodity promotion industry have been revealed in a forthright manner. They include the promotion of privatisation of play, the subtle advancement of the individual ego and greed, and the social and ideological context of the belief that mere products can replace friends and peers.

Varney has been systematic and forthright in bringing out the inadequate, the negative and even the harmful aspects of the glossy “advertised-commodity” toys. But these are products of the present time and present-day minds. While I agree with the broad perspective, I think the main problem is that today we are totally replacing diverse indigenous cultures. “This or that,” “get the best” seems to be the approach. The “best” often gets mixed up with “latest, the most faddish and the conveniently available.” Otherwise, how do we explain giving inferior or even questionable play material to our children? This is so in spite of the fact that today more parents are “educated” and there are more people professing an interest in “child development” research. How do we go ahead? In general it is necessary to promote diversity and indigenous development. It is important to realise that modern mass-marketed mono-cultural toys cannot replace the indigenous ones but that they will and can co-exist.



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