The performance of transparency in public–private infrastructure project governance: The politics of documentary practices

Abstract

That public–private infrastructure partnerships (P3s) present problems in relation to democratic accountability has often been noted, with calls for greater transparency often following. Such calls tend to assume that anything that promotes transparency will further accountability and openness. Drawing on socio-legal studies of the documentary and other information practices that underpin and operationalise governance, this article carefully examines the features and the possible uses of the documentation that is made public by the PPP sector, in Canada. We find that information practices that perform and produce transparency (such as posting project documents online) may produce a merely illusory accountability. Particular attention is paid to the scale at which infrastructure planning information is made public, the selection of content included in the documents (e.g. photos of buildings versus background information), and the information formats commonly utilised. Overall, we find that the information that is made public does not actually empower the concerned public: projects are presented out of context, devoid of historical or comparative context and without reference to any broader regional or other plan, and when ‘real’ documents are made public, neither the content nor their framing enables effective openness, thus hindering accountability.