Participatory Governance under the European Landscape Convention: Between Rhetoric and Empowerment

The European Landscape Convention (ELC) has made participation the cornerstone of democratic and inclusive landscape governance. However, 25 years after its adoption, the question arises as to the extent to which ELC promotes genuine community empowerment or perpetuates top-down control under participatory rhetoric. This systematic mapping synthesizes 39 peer-reviewed publications and book chapters (2007–2024) that examine participatory design, barriers and enabling factors, and implementation and implementation outcomes. The analysis revealed a wide range of participatory practices, yet empowered forms, such as delegated decision-making and self-management, are rare. Full community involvement correlates strongly with successful implementation, yet structural barriers—bureaucracy, centralized power, limited resources, and policy misalignment—often limit the depth of participation. Enabling factors include a supportive policy environment, capacity-building, and mobilization of local knowledge, with innovative tools such as participatory GIS enhancing engagement. Although examples of transformative co-governance exist, participation often remains procedural rather than genuinely redistributive. Strengthening the legal framework for co-decision-making and applying robust empowerment indicators are essential for moving from symbolic inclusion toward meaningful governance. This study offers an integrated understanding of how the participatory aims of ELC are realized, informing efforts to foster resilient, equitable, and democratic landscape governance across Europe.