Public Art as Administrative Communication: Policy Narratives and Community Participation in Public Art Projects

Fangxin Zhang

doi:10.71222/zhbbr463

Authors

Fangxin Zhang ArtCenter College of Design, Pasadena, USA Author

DOI:

https://doi.org/10.71222/zhbbr463

Keywords:

public art, administrative communication, community participation, urban governance, civic engagement

Abstract

This paper examines how public art projects function as a dynamic medium of administrative communication through the strategic use of policy narratives and active community participation. Taking Mural Arts Philadelphia, Superkilen Park in Copenhagen, and London's Fourth Plinth as diverse comparative cases, it systematically analyzes how public art translates abstract policy goals into visible, spatial, and highly debatable public experiences. The study adopts a rigorous comparative case study method combined with narrative analysis, focusing specifically on policy goals, art-historical narratives, participation mechanisms, communication pathways, and inherent project limitations. The empirical findings show that Mural Arts Philadelphia represents a community repair-oriented model, effectively transforming urban governance concerns into participatory mural storytelling. Meanwhile, Superkilen demonstrates a multicultural negotiation model by embedding residents' diverse cultural memories and everyday objects into a cohesive public space. Furthermore, the Fourth Plinth reflects a public controversy model, utilizing temporary contemporary commissions to challenge traditional monument paradigms and generate vital civic debate. Ultimately, the paper argues that public art becomes effective administrative communication only when policy goals are concretized through compelling art-historical narratives, community participation is introduced at early stages, institutional power remains transparent, public space stays connected to everyday life, and feedback mechanisms are sustained over time. However, the study cautions that when participation becomes merely symbolic or public art is entirely absorbed into urban branding and commercial spectacle, its fundamental communicative function and democratic potential may be significantly weakened.

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