3 
to publicize the existence of the documents by contacting or- 
ganizations with recognized environmental interests. 
All these provisions for document access open possibilities 
for citizen intervention and give environmentalists a legal 
instrument to influence or delay projects. They do not, how- 
ever, in themselves assure participation. For, on the working 
level, these procedures by themselves are limited, being entire- 
ly passive and leaving the burden on individual citizens to 
inform themselves. Even when agencies set up procedures to 
help public access, the costs of obtaining information are high: 
keeping up-to-date on notices in the Federal Register is time- 
consuming, and obtaining information may include transcript or 
duplication costs. There are few provisions for staff to help 
those who do not know exactly what documents they need. More- 
over, the most crucial information may not be available at all. 
For example, the budget of an agency is a crucial indicator or 
priorities. Knowing the budget allows one to distinguish real 
choices from mere public statements. Detailed budget informa- 
tion, however, is usually hidden from public view. 
While open information is curical, meaningful participa- 
tion must also allow opportunities for interested groups to 
inform agencies about their concerns, values, and preferences. 
Informing the Agency 
Legislation delivers priorities and broad mandates to 
administrative agencies, but it is rule-making procedures that 
actually shape policies. Thus, the public must participate in 
these procedures if it is to have any real influence. Rule- 
making in most agencies includes requirements for public com- 
ment. However, while notice-and-comment procedures are fre- 
quently used, they tend to favor established groups who monitor 
[A-112] 
