A cognitive and participative decision-making model for transportation planning under different uncertainty levels

Decision-making processes related to transportation systems are often very complex, belonging to the class of “wicked problems” in social studies. The literature and the media abound in examples of transportation planning “failures” including decisions made, delayed or withdrawn without any traceable motivations, public opposition, public opposition, extra costs/implementation times and outright cancellation, wrong traffic/revenue forecasts. Planning failures stem from several causes, including technical errors in forecasting predictable effects, lack of consensus, new governance cycles and inability to recognize the intrinsic uncertainty affecting some key variables. The underlying assumption of this paper is that the quality of the decision-making process critically depends on how the process is structured and managed. The paper proposes a conceptual model to represent and organize transport planning as a cognitive decision-making process with strong involvement of different stakeholders in various stages, accounting for different levels of uncertainty and including short- and long-term decisions options. The result is a planning process that allows for changes in objectives, strategies and decisions during different stages of the process itself, as is usually the case when different governance and socio-economic cycles succeed over time. However, the process maintains a form of procedural consistency and is intended to counteract the “Penelope syndrome”, whereby decisions made under previous governance cycles are undone regardless of their merits and costs. The real-life implementation of the proposed model requires strong “political commitment” to an open and accountable decision-making process, a technical structure able to act as “process owner” coordinating technical and engagement activities, and a general societal attitude towards organized participation to public decision making. The proposed model was applied to the Regional Transportation Plan of Veneto in Italy where the above conditions applied. A number of lessons were learnt from that exercise: i) stakeholders’ engagement revealed an important potential to manage uncertainty and increase consensus; ii) flexibility and robustness with respect to medium–to–high uncertainty levels already recognized at the time of the plan (immediately before the COVID-19 crisis) were an appreciated feature of the plan; iii) separation between mature decisions and those needing further analysis was a success strategy, reducing political “decision costs” (from naysaying) by delaying decisions still recognizing underlying needs; iv) reduced decision time (a largely bi-partisan vote in less than one year).