Governance of urban green spaces: Insights from three top-down urban gardening programs

Abstract

Urban gardens have attracted the attention of scholars, local organisations, and policymakers as they provide a valuable ground for meeting the interests of different urban actors. As a component of green infrastructure, these gardens present a challenge for managing open green spaces. This study examines urban gardening governance through case studies of three top-down programs in Malmö and Zagreb, focusing on how governance structures impact citizen participation. Using qualitative methods, including document analysis and semi-structured key informant interviews, the study provides insights into the participatory governance of these spaces, particularly from the perspective of city officers. The findings demonstrate that while cities aim to foster engagement, governance mechanisms often remain hierarchical, limiting long-term gardener participation. Local governments do assume different roles, ranging from "leading" to "enabling," with the latter fostering more participatory governance, as seen in Malmö’s community gardens. The study also suggests that top-down programs like Zagreb’s, with dominantly leading municipal role, can evolve towards more participatory approaches over time. Additionally, it identifies challenges such as balancing enforcement of regulations with granting gardeners more autonomy and managing resource-intensive communication between local authorities and gardeners. The study suggests that urban green space governance should offer diverse models to accommodate varying citizen needs and engagement levels, from individual plot maintenance to active participation in community management. It also offers considerations on how local authorities could support citizen self-organization and involvement in top-down programs, particularly by adapting the role of green space managers to include a focus on communication and collaboration.