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73
Design
Emotional Maps in the Context of Participatory Planning - Examples
from the Czech Republic, Spaces Semiotic-Ethnographies
Jirka Pánek
Keywords: Participatory Planning, Emotional Maps, Local Agenda 21,
Sustainable Development, Public Participation GIS (PPGIS)
Introduction
In the Czech Republic, the decision-making process at local level has been
historically very often elitist; closed to the public and non-participatory. At the
same time, citizens have often been a neglected part of the planning process
and considered only prior to elections (Galdós, 2010). Distrust of politicians
has increased due to corruption scandals, mainly in the 1990s, and
membership of political parties has never reached the levels of their Western
counterparts (Howard, 2003). The neglect of citizen participation is slowly
changing as local political representatives start to understand that citizens
have a relevant role in the processes of town planning and administration
(Čermák and Vobecká, 2011).
There has been limited research in the region of Central Europe concerning
subjective and emotional maps as part of the processes of local planning, and
almost no practical implementation of such approaches in local government
administrations prior to 2010. Nevertheless, some examples of citizens
acting as an advisory body in an e-planning process were observed in Poland
(Jankowski, Czepkiewicz, Młodkowski, and Zwoliński, 2015), Hungary (Pödör,
2016) or Czech Republic (Pánek, Pászto, and Marek, 2016).
Reflecting on the historical context of the planning process in the Czech
Republic, the author supports the idea that new participatory institutions
could help to regain people’s trust in democratic government. A set of
innovative instruments, such as: participatory budgeting (Bhatnagar, Rathore,
Moreno Torres, and Kanungo, 2003; Cabannes, 2004; Shah, 2007;
Sintomer, Herzberg, and Röcke, 2008), emotional maps (Pánek
et al.,
2016),
74
participatory urban planning (Kahila and Kyttä, 2009; Kahila-Tani, Broberg,
Kyttä, and Tyger, 2015), open data (Jäppinen, Toivonen, and Salonen, 2013)
and other measures to enhance transparency, could all contribute to
democratic renewal across European cities. They could also lead to a fulfilling
of the ideas set out in ‘Local Agenda 21’ (The International Development
Research Centre [IDRC], 1996).
Concurrent with the elaboration of Local Agenda 21, the concept of the
‘Healthy Cities Programme’ was also developed and established by The World
Health Organisation (WHO) in 1988. The programme is a long-term initiative
with its main aims being to place health high on the agenda of decision
makers and to promote comprehensive local strategies for health protection
and sustainable development. It tries to bring the technical language of the
‘Health for All’ strategy into the 21st century and translates the principles of
the Ottawa Charter for Health Promotion (The World Health Organisation
[WHO], 1986) into tangible action. The Network of Healthy Cities of the Czech
Republic (HCCZ) was created in 1994 and its mission, which goes hand in
hand with the aforementioned premise of Local Agenda 21, is to goad Czech
municipalities into stipulating in their statutes that they will consistently work
towards sustainable development, improving health, and improving the quality
of life in cities and regions of the Czech Republic. In 2014, HCCZ started to
test implementing emotional mapping into their methodology for Local
Agenda 21 workshops
11
. The author of the paper works as a subcontractor
for HCCZ and coordinates the emotional mapping workshops. Hence, the
paper combines subjective testimony and experience with descriptive analysis
of the process behind the development and deployment of emotional mapping
in selected municipalities of the Czech Republic.
Emotional maps and Public Participation GIS (PPGIS)
Since behavioural geographers started working with place perception, and
Peter Gould (1974) and Kevin Lynch (1960) used mental maps to explore
city visualisation and spatial preferences, participation has become an
integral part of the geographical research. Later, when Robert Chambers
11
The
Forum of the Healthy City
activity is the first annual meeting between
the local administration and citizens.
75
(1994a, 1994b, 1994c) and others introduced maps into ‘Participatory
Rural Appraisal’, ‘Participatory GIS’ and ‘Public Participation GIS’, maps
became further recognised by quantitative geographers as research
methods and visualisation tools. Nowadays, with smartphones and global
Internet coverage, applications like FixMyStreet, ArcGIS Online, CartoDB and
Maptionnaire allow users to cross the technology gap and become
neocartographers without the need for coding or even GIS knowledge.
GeoParticipation, based on using spatial tools in order to involve citizens in
community participation, can herald the future development of Public
Participation GIS (PPGIS). This is because such a form of GeoParticipation
provides social engagement and an easy-to-use environment, whilst creating
the feeling of belonging to a certain social group or community (Pánek
et al.
,
2014). PPGIS research is considered ‘applied’ research as it is often driven
by the need to identify spatial information that could be used for participatory
planning and decision support (Brown and Kyttä, 2014). As such, it
sometimes lacks the strong conceptual and theoretical background of basic
research that would guide the empirical PPGIS deployments. Prior to the
platforms mentioned above, the measurement and mapping of social and
subjective experiences with place lacked the technology to capture the
subjectivity of spatial information.
PPGIS started to emerge on the late 1990s with the first workshop on Public
Participation in GIS organised in Maine (USA) and with the University
Consortium for Geographic Information Science (UCGIS) meeting in 1998. In
this period, the linking of GIS and Society entered the thus-far top-down and
quantitative world of automated geography (Dobson, 1983) - later called
GIScience (Goodchild, 2014). The scope of socially-related GIS applications
broadened after the publication of thematic books such as:
Community
Participation and Geographical Information Systems
(Craig, Harris, and
Weiner 2002), special issues of academic journals (Cartography and
Geographic Information Systems 1998, Cartographica 2001; Environment
and Planning B, 2001, Journal of the Urban and Regional Information
Systems Association, 2003) and conferences (Urban and Regional
Information Systems Association [URISA] Annual Public Participation GIS
Conference or International Conference on Participatory Spatial Information
Management and Communication).
76
According to Dunn (2007), participatory approaches to GIS were also used
in new areas such as: landscape planning and the revitalisation of public
spaces (Craig and Elwood, 1998; Casey and Pederson, 2002; Elwood,
2002a, 2002b; Ghose, 2002), conflict resolution, land disputes and the
exploitation of natural resources (Weiner
et al.
, 1995; Harris and
Weiner, 1998; 2002; Kyem, 2002; Weiner and Harris, 2003; Kyem, 2004),
entitlement of First Nations to land and access to public services (Bond,
2002; Laituri, 2002), environmental protection (Meredith, Yetman, and Frias,
2002; Sieber, 2002; Tulloch, 2002), and land-use and protection of natural
heritage (Ventura, Niemann, Sutphin, and Chenoweth, 2002;
Walker
et al.,
2002).
Emotional maps can be considered as a subgroup of PPGIS (Brown and Kyttä,
2014) and at the same time, as a tool of GeoParticipation (Pánek
et al.,
2014). Emotional mapping has the tools to support the ideas of Mody, Willis
and Kerstein (2009), who state that emotions, spaces and places are
interconnected, with every location capable of evoking an emotion. Places can
thus be seen as attractive, boring, dangerous or scary, among other
perceptions (Korpela, 2002). One of the first examples of emotional
cartography in urban visualisation comes from the book of essays entitled
Emotional Cartography: Technologies of the self
(Nold, 2009). The book was
described as ‘…
a collection of essays by artists, designers,
psychogeographers, cultural researchers, futurologists and neuroscientists,
brought together by Christian Nold to explore the political, social and cultural
implications of using technology to visualise intimate biometric data and
emotional experiences’
(Nold, 2009: 3)
.
Surprisingly, the publication has no
essays by cartographers or city planners. This is despite the strong influence
emotions have on how the (urban) environment is perceived and their effect
on the spatial layout of the people’s perceptions (Zadra and Clore, 2011).
Emotions are one of the defining characteristics of every human being and
yet their presence in maps and spatial data is uncommon (Griffin and
Mcquoid, 2012). Some may argue that ‘emotional mapping’ is not the correct
term, as it is not exactly
emotions
that are mapped, but merely people’s
perceptions of and experiences in a place. Users are often asked to identify
77
places on the map where they feel afraid (mapping of safety), where they ‘like
it’ (spatial preferences), where they spend their free time (leisure time
activities planning), and where it is ‘dirty’ (environment pollution, etc.). This
variety of spatial perception questions can hardly be considered as a
homogenous emotional response to the place, but the umbrella term could
be an emotional mapping. Some authors use terms such as sentiment
mapping (Caragea, Squicciarini, Stehle, Neppalli, and Tapia, 2014), hedonic
mapping (Ennis and Ennis, 2013), ephemeral mapping (Art and Cartography:
Commission of the International Cartographic Association, 2015), perceptual
mapping (Doran and Burgess, 2011) and many others. The theoretical
discussions and uncertainty about the terminology show that emotional
mapping research and practice is not clearly defined or anchored in its
respective disciplines. Nevertheless, the author has decided to use the term
‘emotional mapping’, based both on the argument of Perkins (2009: 130),
who states that ‘…
emotional maps…chart human feelings onto a
cartographical landscape…and allow users to devise and customise their own
emotional landscape, to choose what kinds of thoughts and experiences,
feelings and passions, to map…
”, and also as a legacy of the
Emotional
Cartography
book by Christian Nold (2009).
Emotional mapping workshops organised by the ‘Network of Healthy Cities of
the Czech Republic’
The idea for the implementation of participatory map based questionnaires
12
came during the meeting of HCCZ network representatives with the author
in 2014. The original idea was to develop a method that would allow
participants of the
Forum of Healthy Cities
activity to spatially express their
needs and ideas about city development. Later on, it turned into an emotional
mapping workshop and web-based application that complemented each other
and allowed the collection, analysis and publication of georeferenced
subjective data as a part of the participatory planning/decision-making
process.
During the process of testing, developing and deploying the emotional
mapping workshops, the author tried various mapping techniques that
12
Later this developed into the emotional mapping workshop.
78
produced a range of results. The very first map was created using six large
crayons and one A1 map of the city (figure 8). The idea of using crayons came
from the influential book by Robert Chambers entitled:
Whose reality counts?
Putting the first last.
(2003). In this publication, the author argues, that
development experts should
hand over the stick
(that which empowers)
to let
people draw their own maps. It was observed that it might be easy for a
facilitator to hand over the stick to the participants, but it is not an easy move
to share the crayon among the participants. There is always somebody who
wants to take control of the tool and respectively, to take control of the map.
The second disadvantage is the
overlay issue
13
.
Figure 8. Example of the analogue emotional map created on the first
emotional mapping workshop in 2014.
The second version of emotional mapping involved coloured pins (figure 9)
that participants inserted into the cork-board with a map. It solved both the
overlay issue
as well as the
hand over the stick
problem. Participants can take
as many pins as they want to, while several pins in the same location reveal
hot-spots that are easily visible and also create a 3D effect on the map. Using
different coloured pins, each colour represents a different emotion that when
digitised into the georeferenced format, each coloured pin is represented as
13
If three or more colours are overlaid, it is merely impossible to identify the
original colours.
79
a single point. This contrasts to the previous example, where combination of
points, lines and polygons had to be used. The deflection from multi-format
representation
14
towards a points-only approach was based on difficulties with
combining multi-feature datasets in GIS. It was also based on the experience
of other authors’ research where up until now, the predominant methods for
spatially-explicit preference mapping have been marking points for locations
or sketching polygons annotated with expressions of preference (Jankowski
et al.,
2015). Brown and Pullar (2012) provided one exception to this in their
suggestion that points instead of polygons be used in future PPGIS
applications, although their study was focused on mapping large-scale
landscape values. Furthermore, there was a possibility to use fuzzy multi-point
features (Huck, Whyatt, and Coulton, 2014) to collect the information, but
the author decided to use single points only as he experienced that points are
often more specific and place related than polygons or multipoint features.
The author also anticipated that it would be technically very complicated to do
fuzzy-multi points with pins in the analogue version.
Figure 9. Example of using colourful pins for creating the emotional map in
2016.
14
Combination of points, lines and polygons.
80
The latest improvement in the emotional mapping workshops organised by
the HCCZ is linking each pin with its author via numbers on pins (figure 10)
and comments, written with same number code on the side. Thanks to this
improvement, the data gathered via the online tool and data from
participatory mapping meetings are almost fully comparable; hence they can
be integrated into one large dataset.
Figure 10. Colourful pins with numbers used to identify the authors and link
them with respective complains.
Besides the participatory emotional mapping workshops, the author created
15
a single-page web application (figure 11) using two main open-source
JavaScript libraries;
jQuery
for basic user interactions as well as app control,
and
Leaflet
as a library for map interactions. For production, the modules are
concatenated with other libraries by Grunt Task Runner. The application can
be configured with a JSON file containing basic map views, app steps and
popup form content. The configuration file can be hard-coded or generated
from a database at backend. The results from the frontend are sent
asynchronously to the backend where it uses the authors´ own simple Model-
View-Controller (MVC) framework written in hypertext pre-processor (PHP)
script language. The MySQL database is used for storing metadata from
users and geodata are stored in the GeoJSON format. The administration is
15
Together with programmer Ondřej Růžička.
81
created with the help of the Cascading Style Sheets (CSS) framework
Bootstrap and administrators are allowed to download the full metadata from
MySQL, concatenated with GeoJSONs.
Figure 11. The environment of the web application created for the
neighbourhood revitalisation plan participatory consultation in Příbram, the
Czech Republic in 2015.
Results utilisation by city administrations
The author asked municipalities that recognised the emotional mapping
workshop in previous years to fill in the evaluation form in order to gather
their knowledge and experience with the process. The response rate was
50%
16
and the responses covered the period of 2010-2016
17
. In total about
2,500 participants
18
took part in the workshops and based on the answers of
administration representatives, the main motivations for cities to organise
the workshops were for example:
16
14 responses from 28 addressed municipalities.
17
One map is from 2010 (this map was not organised by the HCCZ), one map
is from 2014, 6 maps from 2015 and 7 maps from 2016 (one city organised
the activity in both 2015 as well as 2016).
18
Some cities estimated the number of participants.
82
To find out how citizens perceive various places in the city, to
determine which sites should be equipped with elements of leisure and
where we need to focus on cleanliness and safety of the citizens.
To ensure public participation.
To use a new tool for finding the opinion of the population.
To specify the places that citizens concern about.
To reach out to the citizens in an innovative manner and to get one of
the inputs for the implementation of the development strategy of the
city from 2015 to 2020.
To communicate with the public.
The emotional mapping workshops fulfilled the expectations
19
of the
municipality representatives who perceived the tool as suitable
20
for
participatory planning and decision making. Most
21
of the municipality
representatives agreed that the emotional mapping workshop should be
repeated every two years
22
. So far, the results or planned results from the
emotional mapping workshop are/will be included in
Conception of urban
transport
,
Strategic plan of the city development
,
Local Agenda 21 plan
, or
Action plan of Strategic development
.
The broad deployment of participatory geospatial tools in the Czech Republic
is still an open question, although there is a legal and political framework for
such actions. The first support for public participation came through
European Union initiatives which promoted public involvement in local
governance, including the 1998 Aarhus Convention (1998) and
subsequently, the 2007 Leipzig Charter on Sustainable European Cities
(European Commision, 2007). In the Czech Republic, participation is granted
19
43% strongly agreed and 57% agreed with the statement “the emotional
mapping fulfilled our expectations”.
20
64% strongly agreed and 36% agreed with the statement “the emotional
mapping is a suitable tool for participatory planning and decision making on a
local level administration“.
21
10 out of 14.
22
Answers varied from every year to five-year period, but on average the
answer was every two years.
83
by the Constitution of the Czech Republic as well as the Act of Parliament
128/2000 - Act concerning Municipalities (Czech Republic, 2000).
Furthermore, some EU granting mechanisms even demand active
participation during community planning process (such as Environmental
Impact Assessment (EIA)). Nevertheless, based on the author´s experience
with organising emotional mapping workshops, the deployment of
geoparticipatory tools often depends on the personal activity and involvement
of municipality representatives and/or Local Agenda 21 coordinators.
Conclusions
In 2016, fifty members of the ‘Network of Healthy Cities of the Czech Republic’
organised the
Healthy Cities Forum
activity and 14 of them (28%),
implemented the emotional mapping workshop within the event. This
represents an enormous increase in interest in the mapping activity among
the municipalities. HCCZ has 130 members, with regional influence
23
on the
2105 towns and cities where 5,454 million inhabitants of the Czech Republic
live (52% of the total population). The potential of the emotional mapping
workshop as a participatory planning support activity is therefore vast.
Although the methodology may need improvement in academic grounding, it
proved to be a playful and yet effective way to increase citizens´ participation
in the consultancy and/or decision-making process.
The methodological shift from crayons to pins in the analogue version of
mapping was followed by technological improvements in the web-app. The
crowdsourcing platform was continuously tested, de-bugged and re-
programmed. During several case studies, the authors found bugs in: (1) the
saving mechanism, which was not built for sending larger amounts of data
(solved by improved caching settings), (2) drawing algorithms, which caused
the unavailability of the
move
function once the
draw free hand polygon
function was used, and (3) the visualisation algorithm was not built strong
enough to handle datasets comprising of thousands of points.
23
Besides cities, also regions, micro-regions and local action groups are
members of HCCZ.
84
The initial idea of using the heat maps for visualisations also proved to be
inadequate, as these maps often covered vast areas of cities and did not
provide specific information. The most important findings were sometimes
merged and in some cases, created continuous areas that did not reflect the
specific and unique findings. Therefore, another method was adopted
concerning the visualisation of findings, and the hexagonal grid with
spatial
join
function is currently used as main visualisation approach. This improved
visualisation so far offered an increasingly clearer representation of the
perception results. Furthermore, implementation of advanced geostatistical
tools, such as non-parametric Kendall’s rank correlation (Abdallah,
Chorowicz, Kheir, and Khawlie, 2005), global Moran’s I spatial autocorrelation
(Moran, 1950) or local indicators of spatial association (LISA) methods
(Anselin, 1995), may bring further insight into the data and provide even more
specific answers on citizen perceptions of the city. The author believes that
the demographics behind the data can reveal further information which would
be relevant for e-planning research. The whole project of emotional mapping
workshops works with open-source software
24
and open-data
25
only.
The roadmap and examples presented in this paper reveal both the
development of the new methodology of participatory planning via map-based
questionnaires, as well as opportunities and challenges that still lay ahead of
its author(s). Besides the case-studies presented above and usage for
participatory community planning, the tool has been deployed for: the
mapping of bikers’ satisfaction with transport infrastructure in Reykjavík,
Iceland; mapping of safety perceptions in Olomouc, Czech Republic; and
examination of geographical knowledge about the Middle East among
university students. The author is confident that there are numerous
utilisations and improvements for the tool, and invites various stake-holders
to take advantage of the tool for their own research as well as participatory
planning activities.
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