Bearfield, Domonic A. and Melvin J. Dubnick, “All Mega-Projects are Local? Citizen Participation Lessons from the Big Dig,” JOURNAL OF PUBLIC BUDGETING, ACCOUNTING AND FINANCIAL MANAGEMENT, 21:3 (Fall 2009), 393-426.
ABSTRACT. This paper examines the impact of managerial philosophy on public participation. Specifically the paper explores the historical development of Boston’s Central Artery/Tunnel project, more commonly known as the Big Dig, with a particular focus on how the two men most closely associated with the conception and construction of the project approached this type of administrative reform. This paper uses the concept single and double loop learning to illuminate how each manager attempted to implement this reform.
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This document examines the impact of managerial philosophies on citizen participation in the development and management of Boston’s Big Dig mega-project.
Impact of Managerial Philosophy on Citizen Participation
- The paper examines how management approaches influenced public involvement in the Big Dig.
- It compares Fred Salvucci’s inclusive, community-focused style with James Kerasiotes’ more managerial approach.
Evolution and Challenges of the Big Dig
- Conceived in the 1970s, the project aimed to address Boston’s traffic and urban scars.
- Over three decades, it faced delays, cost overruns from $2.5 billion to nearly $15 billion, and safety issues.
Historical Context of Mega-Projects and Citizen Engagement
- Mega-projects are large, costly, and often controversial, with costs typically exceeding $250 million.
- Public opposition and protests, like highway revolts, have historically shaped project development and citizen involvement.
Citizen Participation in Infrastructure Planning
- Early efforts included community meetings, surveys, and mitigation negotiations to involve residents.
- Despite efforts, implementation of citizen involvement in budgeting and planning remains slow and uneven.
Administrative Reforms in Mega-Projects
- Reforms are either emergent, responding to immediate issues, or doctrinal, based on explicit strategies.
- The Big Dig’s management reflected shifts from community engagement to privatization and managerial control.
Early Reform and Community Engagement
- Salvucci’s era emphasized direct communication, small group meetings, and environmental mitigation.
- His approach prioritized transparency and community input, aiming to build support and reduce displacement.
Kerasiotes’ Management and Privatization Focus
- Kerasiotes’ tenure marked a shift toward privatization and managerial control.
- The project’s management faced scrutiny over private contractor relationships and changing administrative priorities.
Rising Project Costs and Management Challenges
- The Big Dig’s estimated cost increased from $2.5 billion in the 1980s to over $13.6 billion by 2001.
- Cost overruns were driven by underestimations, excluded expenses, and management issues, causing public concern.
Privatization and Oversight Shifts
- In 1985, Massachusetts partnered with Bechtel/Parsons Brinkerhoff for project management, emphasizing private sector involvement.
- Kerasiotes eliminated government oversight committees, trusting private contractors to oversee their own work, leading to conflicts of interest.
Leadership Changes and Political Influence
- Salvucci prioritized citizen participation and organizational learning, fostering transparency.
- Kerasiotes shifted focus to budget control, privatization, and market principles, reducing public engagement and transparency.
Organizational Learning and Reform Approaches
- Salvucci promoted double-loop learning, encouraging reflection on underlying issues and adaptive management.
- Kerasiotes adopted single-loop learning, emphasizing error correction within existing frameworks, limiting organizational reflection.
Citizen Participation and Public Engagement
- Salvucci engaged communities through smaller meetings and environmental outreach, fostering trust.
- Kerasiotes’ approach became symbolic, with participation reduced to ritualistic public meetings and one-way communication.
Budgeting, Cost Overruns, and Transparency
- The project’s budget was repeatedly underestimated, with official figures far below actual costs.
- In 2000, the project was revealed to be $1.4 billion over budget, leading to investigations and Kerasiotes’ resignation.
Impact of Leadership on Project Culture
- Salvucci’s leadership encouraged openness and reflexivity, embedding citizen involvement.
- Kerasiotes’ privatization and cost-control focus replaced participatory practices with doctrinal, market-driven management.
Lessons on Mega-Project Management
- The Big Dig illustrates how leadership shifts influence organizational learning and public involvement.
- The transition from emergent, double-loop learning to doctrinal, single-loop processes affected transparency and accountability.