Journal of Geographical Studies of Mountainous Areas

Journal of Geographical Studies of Mountainous Areas

Explaining the Role of the Participatory Governance Model in Realizing the Principles of an Inclusive City (Case Study: Zanjan City)

Document Type : Original Article

Authors
Hossein Tahmasbi Moghadam
Zahra Rasulzadeh
Ali Moradi
Department of Geography and Urban Planning, Faculty of Humanities, University of Zanjan, Zanjan, Iran.
10.22034/gsma.2025.2073615.1128
Abstract
1. Introduction
Have posed significant challenges in achieving spatial justice, equal access to resources and services, and inclusive urban development. Despite the growing emphasis on the concept of the "inclusive city" in global urban development agendas such as the United Nations Sustainable Development Goals many cities continue to struggle with deep-rooted structural inequalities, especially affecting vulnerable groups such as persons with disabilities, the elderly, women, children, immigrants, and ethnic minorities. These groups often remain excluded from urban decision-making processes due to the lack of effective mechanisms for participation.
In this context, the paradigm of participatory governance has emerged as a transformative framework for urban management, emphasizing citizen involvement, transparency, accountability, and social equity. Unlike traditional top-down models of urban governance that often rely on centralized decision-making within governmental institutions, participatory governance encourages collaborative interaction among public authorities, civil society, and the private sector. This model fosters the creation of urban spaces aligned with the diverse needs of residents and reinforces public trust and a sense of ownership.
In Iranian cities such as Zanjan, characterized by rapid population growth, physical expansion, and uneven spatial development, the absence of inclusive governance mechanisms has exacerbated urban disparities. Therefore, identifying the role and impact of participatory governance in realizing inclusive urban principles is a critical research priority. This study aims to address the following questions: What role does participatory governance play in realizing inclusive cities? And which components of participatory governance have the most significant influence on urban inclusivity?

2. Methodology
This study employed a mixed-methods approach, combining qualitative and quantitative techniques. In the qualitative phase, a comprehensive literature review was conducted to extract key components of participatory governance and inclusive urban development. Subsequently, these components were refined and evaluated using the fuzzy Delphi method, with input from 35 experts in urban studies, selected through purposive sampling based on their academic experience and expertise.
In the quantitative phase, structural equation modeling (SEM) using Smart PLS software was applied to analyze the causal relationships between components. The questionnaire was validated through both face validity and construct validity using confirmatory factor analysis. The reliability of the tool was confirmed by Cronbach's alpha coefficients above 0.7 for all main constructs. For convergent validity, Composite Reliability (CR) and Average Variance Extracted (AVE) were calculated, where AVE values greater than 0.5 indicated acceptable convergent validity. The research focused on five main components of participatory governance-transparency and accountability, participation and dialogue, rule of law, justice, and efficiency and effectiveness-and three main components of inclusive cities-social, economic, and spatial inclusion.
3. Results
The fuzzy Delphi analysis revealed that out of 87 initially identified components, 42 components achieved fuzzy scores above 0.7 and were thus confirmed by the panel of experts as key variables in achieving inclusive urban development in Zanjan. These included:
Transparency and Accountability: components such as public access to decision-making processes, existence of transparent procedures, and mechanisms for feedback and evaluation were highly rated.
Participation and Dialogue: meaningful participation of vulnerable groups, structured platforms for participation, and the use of digital participatory tools were among the most influential subcomponents.
Rule of Law: legal mandates for public participation and institutionalization of citizen involvement in neighborhood councils showed strong influence.
Justice: equitable access to decision-making, support for grassroots initiatives, and empowerment of marginalized voices were identified as critical.
Efficiency and Effectiveness: ongoing citizen engagement, prioritization of real citizen needs, and cooperation among municipal authorities, civil society, and the private sector were highlighted.
4. Discussion
The findings of this research confirm that participatory governance is not merely a procedural or symbolic approach, but a substantive framework capable of addressing urban inequalities and fostering inclusive development. In the case of Zanjan, the establishment of participatory platforms, legal frameworks that support inclusive decision-making, and transparent urban governance practices can significantly contribute to the realization of inclusive city principles.
This study highlights the necessity of shifting from centralized, top-down planning toward inclusive governance structures that recognize the diverse voices and needs of all urban residents. The integration of participatory governance into urban policy and planning enhances public trust, promotes social cohesion, and ultimately leads to more equitable, sustainable, and resilient cities.
Therefore, participatory governance should be viewed as an instrumental mechanism to achieve inclusive urban development, where inclusive cities serve as the ultimate goal and participatory governance provides the strategic pathway.
5. Conclusion
Structural equation modeling confirmed the significance of these components in influencing inclusive city principles. The analysis indicated that participatory governance improves social inclusion by amplifying citizen voice and enhancing access to urban resources; enhances spatial inclusion by supporting fair distribution of services and facilities; and contributes to economic inclusion by strengthening institutional support and reducing barriers to participation.
Moreover, the results underscore the importance of system-level thinking in urban governance, where social capital, local empowerment, and institutional trust serve as mediators for achieving urban resilience and inclusive development. The positive path coefficients in the SEM model further demonstrated that as levels of transparency, participation, and justice increase, the likelihood of achieving inclusive urban outcomes also rises.

Acknowledgments
We are grateful to all the scientific consultants of this paper.
Keywords
Urban Planning
Participatory Governance
Inclusive City
Zanjan City
Abtahi, S. H., & Shiani, M. (2020). Identifying barriers to citizen participation in urban management of Tehran: A qualitative content analysis. Local Development (Rural-Urban), 12(2), 643–655. https://doi.org/10.22059/jrd.2021.319833.668632 [In Persian]
Ahadnejad Reveshty, M., Teymouri A, Vaez livari, M., & Tahmasebi Moghaddam, H. (2021). An analysis of spatial inequalities in housing quality in the middle texture neighborhoods of Zanjan city. Applied Researches in Geographical Sciences, 21(63), 39–58. https://doi.org/10.61186/jgs.24.74.6 [In Persian]
Ahdenjad Reveshty, M., Teymouri, A., Vaez Livari, M., & Tahmasebi Moghaddam, H. (2021). An analysis of spatial inequalities of housing quality in the middle texture neighborhoods of Zanjan city. Quarterly Journal of Applied Geographical Sciences, 21(63), 39-58. https://doi.org/10.61186/jgs.24.74.6 (In Persian)
Akhavan Nielchi, N., Eyvazi, M. R., & Naderi, M. (2024). Identification and analysis of key drivers influencing the future of participatory governance in Iran and the upcoming scenarios. Contemporary Political Studies, 15(3), 1–29. https://doi.org/10.30465/cps.2023.44208.3145 [In Persian]
Albuquerque, C. M. P. (2017). Cities Really Smart and Inclusive: Possibilities and Limits for Social Inclusion and Participation. In Handbook of Research on Entrepreneurial Development and Innovation Within Smart Cities (pp. 229-247). IGI Global Scientific Publishing.
Ansell, C., & Gash, A. (2008). Collaborative governance in theory and practice. Journal of public administration research and theory, 18(4), 543-571. https://doi.org/10.1093/jopart/mum032
Arnstein, S. R. (2019). A ladder of citizen participation. Journal of the American planning association, 85(1), 24-34. https://doi.org/10.1080/01944363.2018.1559388
Asadi, A., & Ahadnejad Reveshty, M. (2025). Identifying the influencing components in realizing an inclusive city: A case study of Tabriz metropolis. Urban Ecology Research, 16(1), 37–54. https://doi.org/10.30473/grup.2024.68584.2799 [In Persian]
Attia, S., Shafik, Z., & Ibrahim, A. (2019). New Cities and Community Extensions in Egypt and the Middle East (pp. 1-18). Cham, Switzerland: Springer.
Bester, A. (2016). Capacity development. Report prepared for the United Nations Department of Economic and Social Affairs. https://doi.org/10.1080/01944363.2018.1559388
Bochani, M. H., & Samadi Foroushani, M. (2025). Analyzing participatory governance system in urban planning and budgeting: Evidence from the Council Law in Iran. Urban Economics and Planning, 6(2), 154–171. https://doi.org/10.22034/uep.2025.511143.1610 [In Persian]
Bovens, M. (2007). Analysing and assessing accountability: A conceptual framework 1. European law journal, 13(4), 447-468. https://doi.org/10.1111/j.1468-0386.2007.00 378.x
Brajaktari, E. (2016). Citizen engagement in public service delivery. The critical role of public officials, UNDP Global Centre for Public Service Excellence, United Nation, 1-20.
Bryson, J. M., Quick, K. S., Slotterback, C. S., & Crosby, B. C. (2013). Designing public participation processes. Public administration review, 73(1), 23-34. https://doi.org/10.1111/j.1540-6210.2012.02 678.x
Cabannes, Y. (2004). Participatory budgeting: a significant contribution to participatory democracy. Environment and Urbanization, 16(1), 27–46. https://doi.org/10.1177/095 624780401600104
Carnemolla, P., Robinson, S., & Lay, K. (2021). Towards inclusive cities and social sustainability: A scoping review of initiatives to support the inclusion of people with intellectual disability in civic and social activities. City, Culture and Society, 25, 100398. https://doi.org/10.1016/j.ccs.2021.100398
Charehjoo, F, Ahmadi, A and Javan, F. (2020). An analysis and Evaluation of Urban Well Governing and Quality of Life (The Case of Sanandaj Neighborhoods’). Geography and Regional Planning, 10(1), 171-184. 20.1001.1.22286462.1399.10.38.43.8(In Persian)
Cheema, S. (2020). Governance for urban services: towards political and social inclusion in cities. In Governance for Urban Services: Access, Participation, Accountability, and Transparency (pp. 1-30). Singapore: Springer Singapore. https://doi.org/10.1007/978-981-15-2973-3_1
Cornwall, A., & Coelho, S. (2007). Spaces for change: The politics of participation in new democratic arenas: 15–70.
Elias, P. (2020). Inclusive city, perspectives, challenges, and pathways. In Sustainable cities and communities (pp. 290-300). Cham: Springer International Publishing. https://doi.org/10.1007/978-3-319-95717-3_32
Fischer, F. (2012). “Participatory Governance: From Theory to Practice”. In: The Oxford Handbook of Governance, ed. D. Levi-Faur, Oxford: Oxford University Press, pp. 457-471. https://doi.org/10.1093/oxfordhb/97801 99560530.013.0032
Fitzgibbons, J. (2019). Building inclusive resilience: exploring justice and social equity in urban resilience planning (Doctoral dissertation, University of Waterloo).
Fung, A. (2006). Varieties of participation in complex governance. Public Administration Review, 66(s1), 66–75. https://doi.org/10. 1111/j.1540-6210.2006. 00667.x
Fung, A., & Wright, E. O. (2003). Countervailing Power in Empowered Participatory. Deepening democracy: Institutional innovations in empowered participatory governance, 4, 259.
Gaventa, J. (2004). Towards participatory governance: assessing the transformative possibilities. Participation: From tyranny to transformation, 25-41. http://hdl.handle.net/1828/6433
Ghadermarzi, H, Ahmadi, H, Ahmadi, A and Javan, F . (2018). An analysis on the effect of good governance in improving the quality of rural life (case study: Dehgolan city). Geography, 16(58), 157-190. (In Persian)
Ghodsi, S. J., Sharifzadeh, E., & Ahadnezhad Roshti, M. (2021). Evaluation of urban green space with emphasis on equitable distribution across urban areas (Case study: Zanjan city). Sustainable Development of the Geographical Environment, 3(4), 1–15. https://doi.org/10.52547/SDGE.3.4.1 [In Persian]
Gibelman, M. (2000). Affirmative Action at the Crossroads: A Social Justice Perspectives. J. Soc. & Soc. Welfare, 27, 153. https://doi.org/10.15453/0191-5096.2632
Healey, P. (2020). Collaborative planning: Shaping places in fragmented societies. Bloomsbury Publishing.
Kalantari, M., Tahmasebi Moghaddam, H., & Akbari Monfared, B. (2023). Analysis of land use distribution based on spatial justice and inclusive urban pattern (Case study: Zanjan city). Applied Geographical Sciences Research, 24(74), 114-132. http://dx.doi.org/10.61186/jgs.24.74.6 (In Persian)
Khoshhal, F. (2025). Designing and explaining a comprehensive participatory governance model. In Proceedings of the 4th International and 7th National Conference on Management, Psychology, and Behavioral Sciences (pp. 166–174). [In Persian]
Kundu, D., Sietchiping, R., & Kinyanjui, M. (2020). Developing national urban policies. New York, NY, USA: Springer. https://doi.org/10.1007/978-981-15-3738-7
Lee, N. (2019). Inclusive growth in cities: A sympathetic critique. Regional Studies, 53(3), 424-434. https://doi.org/10.1080/0034 3404.2018.1476753
Lefebvre, H. (2003). The urban revolution. U of Minnesota Press. ‏
Lemaire, X., & Kerr, D. (2017). Inclusive urban planning–promoting equality and inclusivity in urban planning practices.
Liang, D., De Jong, M., Schraven, D., & Wang, L. (2022). Mapping key features and dimensions of the inclusive city: A systematic bibliometric analysis and literature study. International Journal of Sustainable Development & World Ecology, 29(1), 60-79. https://doi.org/10.1080/1350 4509.2021.1911873
Lindfield, M., & Singru, R. N. (2017). Enabling inclusive cities: Tool kit for inclusive urban development. Asian Development Bank. https://dx.doi.org/10.22617/TIM157428
Lotfi, S., Esmaeili, T., & Ahmadi Fouladi, M. (2024). Investigating the factors affecting the realization of the inclusive city in Sari city. Journal of Sustainable City, 7(3), 99-116. https://doi.org/10.22034/jsc.2025.469043.1791 (In Persian)
Lund, D. H. (2018). Co-creation in urban governance: From inclusion to innovation. Scandinavian Journal of Public Administration, 22(2), 3-17. https://doi.org/10.58235/sjpa.v22i2.11422
Marlier, E., & Atkinson, A. B. (2010). Analyzing and measuring social inclusion in a global context. Journal of Policy analysis and Management, 29, 285-304.
Meerow, S., Pajouhesh, P., & Miller, T. R. (2019). Social equity in urban resilience planning. Local Environment, 24(9), 793-808. https://doi.org/10.1080/13549839.2019.1645103
Murray, J., Tshabangu, B., & Erlank, N. (2010). Enhancing participatory governance and fostering active citizenship: An overview of local and international best practices. Politikon, 37(1), 45-66. https://doi.org/10.1080/02589346.2010.492149
Narain, S. (2015). Trade finance for sustainable development in Asia and the Pacific.
OECD (2015), Stakeholder Engagement for Inclusive Water Governance, OECD Studies on Water, OECD Publishing, Paris. http://dx.doi.org/10.1787/9789264231122-en
OECD (2016), The Governance of Inclusive Growth, OECD Publishing, Paris. http://dx.doi.org/10.1787/9789264257993-en
Oecd (2025), Government at a Glance 2025, OECD Publishing, Paris, https://doi.org/10.1787/0efd0bcd-en.
Pineda, V. S. (2020). Building the Inclusive City: Governance, access, and the urban transformation of Dubai (p. 169). Springer Nature. https://doi.org/10.1007/978-3-030-32988-4
Pontrandolfi, P., & Scorza, F. (2016, July). Sustainable urban regeneration policy making: inclusive participation practice. In International Conference on Computational Science and Its Applications (pp. 552-560). Cham: Springer International Publishing. https://doi.org/10.1007/978-3-319-42111-7_44
Prigozhin, A. I. I. (1991). Game Methods of Collective Decision Making in Management Consulting. Soviet Education, 33(12), 25-45. https://doi.org/10.2753/RES1060-9393331225
Raco, M., & Freire-Trigo, S. (2019). Urban governance: Re-thinking top-down and bottom-up power relations in the wake of neo-liberalization. Handbook of urban geography, 383-396. https://doi.org/10.4337/9781785364600.00038
Rahimzad Madani, K., Rafieian, M., & Dadashpour, H. (2021). Spatial analysis of vulnerable groups' accessibility to public services with an inclusive city approach (Case study: Tehran metropolis). Geographical Journal of Urban Planning Research, 9(1), 93-117. https://doi.org/10.22059/jurbangeo.2020.308331.1350 (In Persian)
Rahimzadeh Madani, K., Rafieian, M., & Dadashpoor, H. (2021). Spatial analysis of accessibility for vulnerable groups to public services with an inclusive city approach: Case study of Tehran metropolis. Urban Geography Planning Studies, 9(1), 93–117. https://doi.org/10.22059/jurbangeo.2020.308331.1350 [In Persian]
Rhodes, R. A. W. (1997). Understanding Governance: Policy Networks, Governance, Reflexivity and Accountability. Buckingham: Open University Press.
Sen, A. (2008). The idea of justice. Journal of human development, 9(3), 331-342. https://doi.org/10.1080/14649880802236540
Serageldin, M. (2016). Inclusive cities and access to land, housing, and services in developing countries. https://doi.org/10.1596/24036
Soja, E. W. (2010). Seeking Spatial Justice. Minneapolis: University of Minnesota Press.
UNDP. (1997). Governance for sustainable human development. UNDP.
Unesco. (2013). Global Citizenship Education: Preparing Learners for the Challenge of the 21st Century. United Nations Educational, Scientific and Cultural Organization (UNESCO).
UN-Habitat (2016). New Urban Agenda (Quito Declaration). Nairobi: United Nations Human Settlements Programme.
UN-Habitat (2016). Urban Governance Index: A Tool to Assess Institutional Capacity for Participation.
UN-Habitat. (2016). World Cities Report 2016: Urbanization and Development – Emerging Futures. Nairobi: United Nations Human Settlements Programme.
United Nations. (1996). Report of the World Summit for Social Development, Copenhagen, 6-12 March 1995. New York: United Nations.
World Bank. (2015). World Inclusive Cities Approach Paper.
Young, I. M. (2002). Inclusion and democracy. OUP Oxford.
Journal of Geographical Studies of Mountainous Areas
Volume 7, Issue 1 - Serial Number 25
Spring
Spring 2026
Pages 149-174