28 ISSN 1392-3110 Socialiniai tyrimai / Social Research. 2013. Nr. 3 (32), 28–40 Gd Gvrnanc Starts frm Prcdral Changs: Cas std f Prparing Participatr Bdgting in th Cit f Tart Jlizavta Krnjva (McS), Kristina Rinsal (PhD) Project Manager, Estonian e-Governance Academy, Tõnismägi 2, 10122 Tallinn, Estonia, PhD student at Tallinn University of Technology E-mail: [email protected] Program Director of Local Governments, Estonian e-Governance Academy, Tõnismägi 2, 10122 Tallinn, Estonia E-mail: [email protected] Abstract The min gol of his pper is o exmine prcicl experience in good governnce locl level b discssing he iniiive clled Pricipor Bdgeing (PB). The pper seeks o mp chllenges, choices nd decisive fcors h cn be disingished in he PB preprion process b presening cse sd of he Ci of Tr. I focses speciicll on he fers, brriers nd rgmens of he locl poliicins nd oficils involved in he preprion process. The sd revels h poliicl confronion, inncil consrins, composing he PB decision-mking bod s well s overcoming he problem of exr worklods cn become mjor chllenges in he process of prepring for PB. Kwrds: loc-l governnce, pricipor bd- geing, pricipion prcices. Intrdctin Ciizen pricipion or, o be more precise, lck hereof, hs become one of fvorie opics of nmeros poliicl docmens nd cdemic ppers. One cold even rge h i hs rned ino common rheoric in everd poliics ll levels. However, his rheoric ver rrel merilizes in good exmples of ciizen rel empowermen nd involvemen in decision-mking processes. Scepics of pricipion migh rge h if he im is o mke sophisiced nd dificl socio-economic nd poliicl decisions, hen, o give n exmple, if bridge needs o be bil, people shold no be sked how o do i becse engineers shold be in chrge of sch sk (Cellr 2011, in Krenjov, Rdl 2013). In oher words, i is ofen ssmed h people lck knowledge necessr o pricipe in pblic ffirs. However, even if one rges h here is indeed no need o sk ciizens how o bild bridge, i migh sill be good ide o sk hem where o p i (ICEGOV 2011, in Krenjov, Rdl 2013). In he conex of Pricipor Bdgeing (PB), one migh go even frher nd sk people wheher he wn bridge ll or he wold prefer h he mnicipli spen fnds on somehing else. PB is n emergen phenomenon nd growing inernionl prcice in mn conries. I provides n opporni nd spce for he pblic o shif from being mere service “ser” owrd being n involved “mker nd shper” (Demedik e l. 2012, 186). The beneis of PB inclde democrc, rnsprenc, edcion, eficienc, socil jsice nd commni developmen. Since here is considerble reserch on pricipor democrc nd he necessi of enhncing i (e.g., Kim nd Lee 2012; Höchl, Prcek, Schs, 2011), he presen pper does no focs on olining he dvnges of PB. We wold onl briel cie John Dewe’s expression: “The mn who wers he shoe knows beer where i pinches” (Lerner 2011, 31). Anlsing PB cn pose considerble chllenge. This is mosl becse of differences in PB prcices in erms of he form of ciizen pricipion nd monioring nd mnging he process. The scope nd combinion of differen elemens vr from cse o cse nd he ver noion nd deiniion of PB remins mch conesed isse 1 . While here is growing bod of reserch describing he lred implemened PB prcices nd heir resls, here is lck of nlsis of he preprion process of PB nd is chrcerisics. This pper seeks o ill his gp b mpping he chllenges, choices nd decisive fcors h cold be disingished in he PB preprion process. I focses speciicll on he fers, brriers 1 As Lerner (2011) rges, dvoces in some conries hve iner- preed PB o men n kind of pblic involvemen in bdgeing. While he refers o sch iniiives s helping he governmens “o legiimize old (or new) conslion prcices h give ciizens no power o decide spending” (Lerner 2011, 31), Zhng nd Lio (2012) in heir sd on New Jerse mnicipliies se h “he mechnisms of PB inclde pblic herings, ciizens’ srves, d- visor bords nd forms or workshops open o ciizens”. This pper refers o he crieri proposed b Sinomer, Herzberg nd Röcke (2005): (1) he inncil dimension hs o be discssed, (2) he ci level hs o be involved, (3) he process hs o be repeed, (4) here hs o be some form of pblic deliberion, (5) some cconbili is reqired.
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ISSN 1392-3110
Socialiniai tyrimai / Social Research. 2013. Nr. 3 (32), 28–40
Gd Gvrnanc Starts frm Prcdral Changs: Cas std f Prparing Participatr Bdgting in th Cit f Tart
Jlizavta Krnjva (McS), Kristina Rinsal (PhD)Project Manager, Estonian e-Governance Academy, Tõnismägi 2, 10122 Tallinn, Estonia,
PhD student at Tallinn University of Technology
E-mail: [email protected]
Program Director of Local Governments, Estonian e-Governance Academy, Tõnismägi 2,
10122 Tallinn, Estonia
E-mail: [email protected]
AbstractThemingolofhispperisoexmineprcicl
experience in good governnce locl level bdiscssing he iniiive clled Pricipor Bdgeing(PB). The pper seeks o mp chllenges, choices nddecisive fcors h cn be disingished in he PBpreprionprocessbpreseningcsesdofheCiofTr.Ifocsesspeciicllonhefers,brriersndrgmens of he locl poliicins nd oficils involvedinhepreprionprocess.Thesdrevelshpoliiclconfronion, inncil consrins, composing he PBdecision-mkingbodswellsovercomingheproblemof exrworklods cn becomemjor chllenges in heprocessofprepringforPB.
Kwrds: locl governnce, pricipor bd-geing,pricipionprcices.
IntrdctinCiizen pricipion or, o be more precise,
lck hereof, hs become one of fvorie opicsof nmeros poliicl docmens nd cdemicppers.Onecoldevenrgehihsrnedinocommonrheoricineverdpoliicslllevels.However, his rheoric ver rrel merilizes ingood exmples of ciizen rel empowermen ndinvolvemenindecision-mkingprocesses.Scepicsof pricipion migh rge h if he im is omke sophisiced nd dificl socio-economicndpoliicldecisions,hen,ogivenexmple,ifbridgeneedsobebil,peoplesholdnobeskedhowodoibecseengineerssholdbeinchrgeof sch sk (Cellr 2011, in Krenjov, Rdl2013).Inoherwords,iisofenssmedhpeoplelck knowledge necessr o pricipe in pblicffirs. However, even if one rges h here isindeednoneedoskciizenshowobildbridge,imighsillbegoodideoskhemwhereopi(ICEGOV2011,inKrenjov,Rdl2013).InheconexofPriciporBdgeing(PB),onemighgoevenfrherndskpeoplewheherhewnbridgellorhewoldpreferhhemniciplispenfndsonsomehingelse.
PBisnemergenphenomenonndgrowinginernionlprciceinmnconries.Iprovidesnoppornindspceforhepblicoshiffrombeingmereservice“ser”owrdbeingninvolved“mker nd shper” (Demedik e l. 2012, 186).ThebeneisofPBincldedemocrc,rnsprenc,edcion, eficienc, socil jsice nd commnidevelopmen. Since here is considerble reserchon pricipor democrc nd he necessi ofenhncing i (e.g., Kim nd Lee 2012; Höchl,Prcek, Schs, 2011), he presen pper does nofocsonolininghedvngesofPB.WewoldonlbrielcieJohnDewe’sexpression:“Themnwhowersheshoeknowsbeerwhereipinches”(Lerner2011,31).
Anlsing PB cn pose considerblechllenge.ThisismoslbecseofdifferencesinPBprcicesinermsofheformofciizenpricipionndmonioringndmngingheprocess.Thescopend combinion of differen elemens vr fromcse o cse nd he ver noion nd deiniion ofPBreminsmchconesedisse1.Whilehereis growing bod of reserch describing he lredimplemenedPBprcicesndheirresls,hereislckofnlsisofhepreprionprocessofPBndischrcerisics.Thispperseeksoillhisgpbmppinghechllenges,choicesnddecisivefcorsh cold be disingished in he PB preprionprocess.Ifocsesspeciicllonhefers,brriers
1AsLerner(2011)rges,dvocesinsomeconrieshveiner-preedPBomennkindofpblicinvolvemeninbdgeing.Whileherefersoschiniiivesshelpinghegovernmens“olegiimizeold(ornew)conslionprciceshgiveciizensnopowerodecidespending”(Lerner2011,31),ZhngndLio(2012)inheirsdonNewJersemnicipliiesseh“hemechnismsofPBincldepblicherings,ciizens’srves,d-
visorbordsndformsorworkshopsopenociizens”.ThispperrefersohecrieriproposedbSinomer,HerzbergndRöcke (2005): (1) heinncildimensionhs obediscssed,(2) heci levelhs obe involved, (3) heprocesshs oberepeed,(4)herehsobesomeformofpblicdeliberion,(5)somecconbiliisreqired.
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nd rgmens of he locl poliicins nd oficilsinvolved in he preprion process. The pperpresenscsesdofheCiofTr,Esoni.
Srcrll, he pper irsl presens hemehodologsedinreserchndhenproceeds ohe secion h deils he design of he vriblesof hePBprocessndolines hemin heoreiclssmpions concerning he mjor decisions hfce he developers of PB. The heoreicl pr isspplemenedwihconexlfcorshressmedodeerminehechoiceofhePBdesignndconsiehechllengeshhedevelopersreconfronedwih.The empiricl pr of he pper, irsl, focses onexminingheconexlfcorsofEsonindTrinpriclr,nd,secondl,nlseshepreprionprocessofhePBdesignindeph,olininghefers,brriers nd rgmens discssed dring meeingsnd in e-mil conversions.Finll, he elboredPBmodelofTrisbrielpresened2.
1. MthdlgThecondcedreserchinhepresenpperis
csesd.Innicipionofobjecionsconcerninginbiliogenerlisenhingfromsinglecseor possibili o look he problem sbjecivi, isholdbenoedhhecsesdformisperfeclsiedforgeneringconex-dependenknowledge,which is priclrl signiicn in reserching PB.Moreover,hecsesdmehodllowsheresercheroreminclose o hemeningflchrcerisicsofrel life evens (Flvbjerg 2006). Finll, s HnsEsenckclims,“someimeswesimplhveokeeporeesopenndlookcrefllindividlcses–noinhehopeofprovingnhing,brherinhehopeof lerning somehing!” (Esenck1976, 9, inFlvbjerg2006).ThePBpreprionprocessinheCiofTr,Esoni,isnlsedbpreseninghefers,brriersndrgmensdiscssedinhefocsgrop.The vire of he ler lies in he bili of grop process o prodce considerble monof informion:speopleengge indiloge, heconversion isnonlinernddifferenperspecivescnbebroghpnime(Johnson2002).
Thefocsgropin hisreserchconsisedof10–12peoplerepreseningeverpoliiclprinheCiConcil.Inddiionoprrepresenives,hegropincldedheCiSecrerwhoisresponsibleforheci’slegislivecs,heHedofheLeglDeprmen nd n oficil from he FinncilDeprmen.Theiniiiveopiloheprojeccmefrom heMornd hismen h heMorndDepMorswerelsoprofhegrop.Lsbnoles,hePblicRelionsDeprmenwslso2Deospcelimiions,hereisnodeileddescripionofex-
ising heoreiclPBmodels in hispper.Formoredeiledoverview,seeSinomerel.(2010).
involved in developing he PB process. The focsgropcoincidedwihheWorkGrop(WG)hwsinvolvedinheelborionofhePBdesign.
Thechoiceofpricipnsforhefocsgropwsprillbsedonself-selecionndprposeflselecion. A leer of inviion ws sen o llpries in heCiConcil, brieldescribingwhPB isndproposing oendmeeing odiscssis implemenion possibiliies in Tr. The CiSecrer, hehedof heLwDeprmennd herepresenive of he Finncil Deprmen werepersonll invied o ke pr de o he speciicsofheopicdiscssed.Similrl,herewsgenerlndersndinghhecommnicionspecofhePBprocessiscrcil;herefore,hePblicRelionsDeprmenwsssignednimpornrole.Overll,hree discssion sessions ook plce beweenApril2013ndJne2013,echlsingforwohors3.E-milcommnicionbeweenheWGmemberswsencorgedfromheonse.Oneofhehorsofhepper ws involved s n exper in designing ndplnninghePBprocessndws,hence,hefciliorof he discssion. The sessions were recorded ndrnscribed. Addiionl sorces inclde secondrlierrenlsisnde-milconversions.
2. Thrtical framwr 2.1. Dsigning th PB prcss: chics and challngs
As noed bove, he prcices nd mehodsof implemeningPBvrgrel, from he speciicformofciizenpricipioninhebdgellocionprocedre o heconrolmechnismssedonce hebdge hs been pproved (Sinomer e l. 2005;Cbnnes 2004, 28 in Krenjov, Rdl 2013).Ths, i is rherdificl o“mp heconors”ofPB.However,bsedonhesnhesisofexisingPBreserch,iispossibleoolinehebsicphsesofhePBprocedre(seeTble1).ThevriblesofheprocessdesignwereexrcedndconsolidedfromCbnnes(2004),Sinomerel.(2010),Fng(2006),EbdonndFrnklin(2006)ndTlpin(2007)4.
3 MrkedsWGsessionsbelow.4Thevriblesofheprocessdesignhvebeensnhesizedboneof hehorssprof hemser’s hesis (seeKrenjov2012). The were exrced from reserch condced b C-bnnes(2004)whichdrwson25experiencesinLinAmericndEropendfromgloblsdbSinomerel.(2010)whichelbored6modelsofPBinErope.Thecrierihhemodelsrebsedonhvebeeninegredwihhevriblesnddisribedbeween hesgesof hePBprocessdevelopedbhe hor of he hesis.Addiionll, he frmework hs beenspplemenedbFng’sdimensionsndsomecomponensfromEbdonndFrnklin(2006)onkeelemensofciizenpricip-ioninbdgeing.Lsl,heqesionsofprocedre,frmingndimplemenionrisedbTlpin(2007)hvebeenkeninoc-conwhileelboringhefrmework.Formoredeiledrefer-encesohesesorces,seeKrenjov(2012).
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Tble1PB prcss dsign variabls
PB dcisin-maing bd • Whosesp“herlesofhegme”?
Participatin
• Howrepricipnsseleced?• Whichpricipionmechnismscnbesed?(pblicmeeings,focsgrops,siml-ion,dvisorcommiees,srves,ec.)• Howdociizenspricipe?(direcvs.indirecpricipion)• Howremeeingsorgnized?(erriorilorhemicbsis;ci,disricorneighbor-hoodlevel)
Dlibratin • Whisbeingdelibered?(invesmensorservicedeliver,projecsorgenerlres)• Howdopricipnscommnicendmkedecisions?Empwrmnt • Whroledoeshecivilsociepl?Cntrl and mnitring • Whochecksheimplemenionofhebdge?Sorce:Krenjov,Rdl(2013)
The irs vrible, he discssion of he PBpreprion process rdiionll srs wih, ishe PB dcisin-maing bd. In oher words, decisionhsobemdesowhichbod/insiionis going o se p “he rles of he gme”, h is,mnge he whole process of selecing hemes fordiscssion,crieriforllocingresorces,nmberofmeeings,ec.AccordingoCbnnes(2004),ciedbKrenjov,Rdl(2013,26),mosPBcsesfllbeweenwoexremes:hespeciicPBConcilndhepre-exisingsocilndpoliiclfrmeworksschsneighborhoods.Thevireof heformer is hhebdgebecomeshefoclpoinofpricipion,while in he lerbdgeingcnendpsno heforemos concern nd locl neworksmigh no bemodiied(Cbnnes2004;HllerndFlkner2012).SomescholrsrgehheMor’soficesholdbe direcl involved in coordining he process(Goldfrnk 2007), while ohers do no excldemngemenofhePBprocessbnindependenndnligned bod/exper wiho vesed ineres inheocome(Thomson2012;Demedikel.2012;Lerner2011).ChllengendchoiceshissgelsoconcerninvolvemenofciizensinprepringforPB(Demedikel.2012).
ThePBdecision-mkingbodislsoinchrgeof deermining he proporion of he bdge or hemonofmoneobegivenopblicdeliberion.Cbnnes(2004,28)olineshisspecsseprevrible, lbelling i “mngemen of scrci orfll conrol of pblic resorce”.Agin, signiicndifferences exis beween cses, rnging from lesshn1% o100%of hebdge.Cmpins,Brzil,forexmple,implemenedhePBssemhllowsciizens o deermine 100% of he mnicipli’sresorces(Hllerel.2012).This,ofcorse,isnexremeexmple.Tpicll,lessh20%ofheolbdgeisnderdiscssion(Lerner2011).
Thenexspecobedecidedwhileprepringhe PB design is participatin nd ll chllenges
nd opions srronding i, rnging from selecionofpricipnsoorgnizionofmeeings.Amchdebed isse is eficc of pricipion.The self-selecionprocess,forinsnce,issomeimesvieweds involving isse exremiss (s he mos civepricipns),reslinginheso-clled“drksideofcivicenggemen”(Fiorin1999,414,inLFrnce,Blogn2012).Ahesmeime,sdieslsosggesh pricipion shold be open o lrge nmbersof people; i shold provide wide ccess ndnoexcldenone.Thereislsonddedchllengeofinvolving nderrepresened grops of socie,whheself-selecionprocessdoesnoensre.I islsoimporn h hechosenpricipionmechnismsreleopricipiongols(Ebdon,Frnklin2006).As Demedik e l. (2012) sggess, he ends(objecivesndocomes)chosenforPBiniiiveshold shpe he mens (srcre nd processes)choseninhePBdesign.
Undobedl, he wreness rising phsehs o ke plce in order o inform ciizens ofpcomingopporniies.Thiscoldbedoneviloclnewsppers,onlinemedi,socilneworks,elevision,milornohermensofcommnicion.Lerner(2011,34)nmesmobilizionofdiversepricipnshe grees chllenge for PB in heUnied Ses:“How do o rc diverse pricipns, beondheslsspecs?”Anddednnceiswodisincpproches o orgnising hemeeings: hemic orerrioril. Usll, PB is condced in wo ws:eiherhroghreglrmeeingsofheneighborhoodsnd hewholeci (erriorilpproch)or hroghhe so-clled hemic ssemblieswhich cn be onhosing,locleconomicdevelopmen,rnsporion,ec.(Cbnnes2004,28).
The min poin of hese meeings isdlibratin, he sbjec of which cn vr fromgenerl res o speciic projecs. I is lso hissge h he preprion process shold focs on
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heqesionoffrming,his,onhowdeliberivedecisions shold be (e.g., opering hroghconsenss or hrogh more ggregive pprochschsvoing).Consensldecision-mkingmighbecome ferile grond for he dminisrion omniplehediscssion(Tlpin2007);onheoherhnd,hereislwsnormivergmeninfvorof deliberion s he scope ofmers h cn bediscssedismorewide(Thompson2012).
Depending on he exen of civil socie’sinlence on he inl decision, differen levels ofmpwrmnt cn be impliced, rnging from“selecive lisening” o de fco decision-mking.While “selecive lisening” snds for mereconslionprocesswherebciizens’proposlsresimplkeninocconbloclhoriies;defcodecision-mking he oher side of he specrmmens h he locl concil hs n obligion ooficillpprovehepriciporbdgepln(Fng2006,Herzberg2011inKrenjov,Rdl2013).
Finll,decisionhs obemdes owhocntrls and mnitrsbdgeimplemeniononcei hs been pproved. These fncions re sllperformed b he execive brnch or b ciizens(Cbnnes2004,inKrenjov,Rdl2013)
2.2. Cntxtal factrsI is obvios h he preprion process,
h focses on he selecion of he PB design nddifferenopionsihsooffer,isgrelinlencedbenvironmenlspecshrefreqenldecisivein he elborion of he PB srcre nd in isfesibilindpplicbilioverll.
Reserch on differen PB experiencesmkesi possible o mp severl ke conexl fcors.Condcive poliicl nd civic clres consiefvorbleenvironmenlcomponenshfciliesccessfl implemenion of PB (Herzberg 2011,18;Wmpler2007,24;DeNrdis2011,98;Fölscher2007, 132–134; Goldfrnk 2007). Secondl, s PBconcerns locl levelgovernncenddelswih hellocion of inncil resorces, locl inncilonom is noher imporn prereqisie for isfesibili (Wmpler 2007, 25;DeNrdis 2011, 95;Fölscher2007,130–132).
Previos pricipion experiences, i.e. hehisor of pricipion of locl governmens (LG),cnservesnindicorofredinessforndpossibleccepnce of PB (Kwei ndKwei in Ebdon ndFrnklin 2006). For PB owork, here hs o be clerineresonheprofhecivilsocie,his,heciizenrhsoberedndwillingopricipe;lso,clerpoliiclwillonheprofmnicipldecision-mkers isvil (Ebdon,Frnklin2006 inKrenjov,Rdl2013).Poliiclcorsmighfeelhreened
bciizens’direcpricipion in loclgovernncesheobviosllosesomedecision-mkingspce(Cbnnes2004;Wmpler2007inKrenjov,Rdl2013).AsinvesigedbZhngndLio(2012),heMor’sgenerlideowrdpblicpricipionis of mos impornce. I hs srong impc onhe dopionofPB.Theirindings sgges h heexenowhichmniciplienggesinwo-wdilogewih is ciizensdependson hebeliefsofhe eleced oficils nd he rionl evlions ofprofessionlmngers, especill he esimion ofciizens’ineresndpricipioncos.
Cerinl, pricipion hs is cos, boh forciizensndoficils.TheformerderivesfromDowns’ide h individls lws weigh coss ginspoenil beneis, ndpricipion isno excepion(Downs 1957, in LFrnce, Blogn 2012). Fromhe governmen’s perspecive, ciizens’ presencein bdgeing is hogh o mke decisions moreexpensive (Zhng, Lio 2012, 285). Trnscionlcossofpricipioncndmpenenhsismmongpoliicl elies who clcle increse in sff imend commnicion (DeNrdis 2011).AsDeNrdis(2011) observes, he previling belief, h ciizenslck he necessr knowledge o pricipe, cnbecomenobscleinPBimplemenion.
Ilsocnlwsbergedhheeconomicperspecivesholdbespplemenedwihhevribleof impornce, h is, he vrible h mesresimporncehpricipnchesobeingbleoexpresshispreferences(Fiorin1999, inLFrnce,Blogn 2012).As one sd sggess, “perceivedeficc is he bes deerminn of generlizedconc”(Hirlinger1992,553,inLFrnce,Blogn2012, 2). Hence, he percepion of socie h isvoiceisbeingherd(whichisofenchievedhroghmliplepriciporexperienceshlegiimizehegovernmen) nd, s conseqence,willingness ofhecivilsocieopricipereddiionldecisiveconexl fcors h inlence he fesibili ofPB.
Frhermore,sincePBprescribespricipioninhellocionofinncilresorceshemnicipllevel, i probbl goes wiho sing h he LGwillingocrroPBhsohvesomedegreeofinncilonom.Thismighberelchllengeformnicipliwhichisdependenonsernsfersforvilservices(Lernen,Biocchi2007).
Exising reserch provides n even lessssemic overview of he more locl levelchrcerisicsofmnicipliies.ThesizeofnLG(e.g., ispoplion) ispresmbldecisive inhowpricipion will be srcred (ffecing he formnd scope of pricipion s well s he mehodsof pricipn selecion). Lrge ciies m op for
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mli-ler pricipion wih ciizens’ delegesinvolved in he process.An lernive for lrgeciwoldbergeedselecionoforgnisedciizens’represenives (his, however, lso depends on hepoliicl clre). Smller ciies migh choose oengge in pricipion vi self-selecion nd openmeeingsheownlevel.Thesizeofhepoplionm lso inlence formli of he process ndhemodeof decision-mking. In smller ciies, forinsnce, consenss-bsed nd informl processesmighbemoreprobble(Krenjov,Rdl2013).
Lerner(2011)poinsohehnicldiversicnconsiechllengeforhedeveloperssheempogellgropsinvolvedhslsoinlencingpricipion nd is opions. Concil diversiis being exmined b Zhng nd Lio (2012) s generll fvorble fcor h vles he inp ofdifferenperspecivesndencorgesoverllpblicinvolvemen.Thesgges,however,hPBismorelikelooccrinhomogeneoscommniies.
Finll, he levelofLGprosperi (indicedbispercpirevenes)islikelobehedecisivefcorinhechoiceofempowermenlevelndofhedecision-mking bod. Even hogh mnicipliinnces hve o be involved (ccording o hedeiniionofPB),sreserchondifferenPBmodelsshows, he migh be combined wih prive nd(non)governmenl resorces in order o providedeqe fnding for implemenion. I is worhnoing h PB cn be implemened even wih limied mon ofmone. Prcices vr from 1—10%of he overll implemened bdge (Cbnnes2004,34).Prosperimddiionllinlencehefocs of deliberion, which rnges from speciicprojecs obrodpolicgidelines.Amnicipli,srppedforfnds,ismorelikeloinvolveciizensin discssionovergenerlpolicprioriies rherhn in selecion of new pblic works (Cbnnes,2004,Wmpler2007inKrenjov,Rdl2013).
The ddiionl conexl fcor h isincresingl imporn in he informion ge isdesirendredinessofmniciplioseICTinpricipion.This fcormigh becomedecisive insrcringdifferensgesofhePBprocess,sringfromgheringinpforvoingonheinldecision.As vrios e-PB experiences sr o emerge,impornceofhisvriblecnnobenderesimed.As sed b Hller nd Flkner (2012, 24), whoexminePBinheUS,“heinegrionofechnologinopblicpricipionbecomeskeindicorofsccessofpblicenggemen”.TheseofICTinPBdesignbrodenshescopeofpblicenggemenndllowsformorediverserrofopinionsndidesobepresened.
3. DiscssinThissecionprovidesbriefoverviewof he
environmenl chrcerisics boh, he nionlndlocl,levels.IlsoolineshemindiscssionpoinsndrgmensriseddringhePBpreprionprocessinTr.Thergmenionissrcredonhe bsis of he design vribles presened in heprevios heoreicl frmework. This secion lsoindicescriiclpoinsinheWGdiscssionsessionsnd presens reled discssions h re vilbleinhepresenreserch.Thesecionlsorevelshemos decisive fcors behind he choices in hePBprocessdesign.
3.1. Envirnmntal charactristics f Estnia and Tart
Assedinheheoreiclsecion,preprionnd,inll,choiceofspeciicPBdesignsrongldepend on he environmen of LG. This secionprovides noverviewof he conexl fcors hre ssmed o inlence choices h oficils ndexpersmkedringhePBpreprionprocess.
Esoni is divided ino 226 mnicipliies,inclding 33 ciies nd 193 rrl mnicipliies.Thediffergrelinsize: helrges is hecpilciTllinn,wih hepoplionof bo 400000,whereswohirdsofheLGnishvelesshn3000inhbins.IndependenLGswerere-esblishedinEsoniinheerl1990s,whenmoslegisliononLGsndheirinnceswerewrien.TheConsiionofEsonises(in§154)hloclhoriieshve he righ o mnge locl isses: “All locl issesshllberesolvedndmngedbloclgovernmens,whichshllopereindependenlprsnolw”.
Despie he righ o mnge heir isses,locl inncil onom of he Esonin LGs isrher limied. Expendire onom is dependenon he cenrl governmen hrogh he mndorservicesndfncions hre imposedblwndh cll consie mos expendire res. Inddiion, vgeness inwh speciicll locl sksre enhnces LG dependenc on he discreion ofhe cenrl governmen. Somemndor fncionsimposedblwreregledbre-speciiclws,levingLGslileroomodecideforhemselveshowoprovideheservice.Finll,reveneonomisrher low,smosLGrevenescllconsiernsfers from he cenrl governmen (Krenjov2012).
I cold be rged h, similrl o loclgovernmens inErope, loclhoriies inEsonihverelivefreedomofcionndbrodopporniiesodeveloploclcommniies.However,hesmeime he hve he obligion o offer lmos 70%of he services (socil ssisnce, edcion, ec.).
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Frhermore,hessndroleofloclgovernmenshve differed nd hve been debed hroghohisorndcerinldringheersofindependence.Alhogh nmeros responsibiliies hve beendivided beween he cenrl governmen nd hemnicipliies formore hndecde, here is sillconfsion inndersnding he roles, fncionsndresponsibiliiesofhedifferengovernmenllevels.As he cenrl governmen hs consnl chngedis expecionsof he loclgovernmens, mlndersndinghsnolwsbeensficien.Ahesme ime, he mnicipliies hemselves hve nobeenoverlprociveindevelopingheiriniiivesndpproches.This,inrn,ffecsciizens’willoener inodilogewih heir loclmnicipliies(Reinsl2008).
The exisence of sch diloge cerinlconcernshepoliiclndcivicclreofheconrndofhespeciicLGhiscpbleofinlencingPB formion. Speking of he nionl level, forEsonisformnoherCenrlndEsernErope(CEE) conries, chnge from n ndemocric o democric regime hs hd n immense impcon people’s belief ssems (Tim, Rämmer 2006).The democric regime h he newl esblishedindependensewslongingforpperedrdiclldifferen from he regime ino whichmn peoplehdbeensocilisedforllheirlives(Mishler,Rose2001).Trsininsiions,oneofheminindicorsof ssinbili nd sccessfl performnce of poliicl ssem (Pei e l. 2011),ws ineviblffeced b chnge in he world hisor knowns collpse of he Sovie Union. Nowds, i hsprobbl become common knowledge h ciizensof pos-commnis socieies re likel o mnifeslowrsinheinsiionsofheirconr. Adesireo proec oneself from n inrsive nd repressivehoririnregimelef ismrkonmnpeople’spercepion of governmen-reled insiions(Mishler,Rose2001).As resl, he civic clreinEsoniispresmblrelivelwek.Generll,heroleofheEsoninciizenisseeninleglerms.Thismens h ciizens re focsed on heir leglss nd opporniies o ensre hemselves civilnd poliicl righs rher hn on ssming socilobligionsndpricipinginhegoverningofheirseormnicipli(Krenjov2012).
In generl, Esoni cold be sid o bedominedbnindividlisicpoliiclclre. TheNPM prdigm, h Esoni egerl sepped ino,conribed signiicnl o he developmen of heminimlisconcepionof heseswells o hewekl developed civil sociewhere pricipionres re relivel low nd individlis vlesprevil. Poliicins he locl level re eger oenggeinone-wrelionshipwihciizens,mosl
b he disclosre of pblic informion (civel5 or pssivel6) nd emphsize people’s pssivi inpricipion. From he individl perspecive, inrn,beingciizendoesnoseemoimplmorldokeprinpolic-mkingb,insed,hsshor-ermilirinin(Krenjov2012).
As noed bove, democrc in Esonihs developed similrl o oher pos-commnisconries. I hs been chrcerised b rpidinsiionldevelopmenndcomprivelslowerdevelopmenof he civil socie.However,Esoniisexcepionlde o is echnologicldevelopmenwhich hs been fser hn in mos oher pos-commnis conries. Esoni hs invesed in ndcreed well-fncioning IT infrsrcre whichinegres offering e-services boh levels, loclndnionl.TheseofheInernende-servicesisrelivelhigh,meninghereisgenerlfvorbleconexinwhichoplnheseofonlineoolsfromheverbeginningof hePBprocess.This is evenmore he cse de o he lred exising ools forLoclDemocrcProcedresschsheInformionSsemforConcils,VOLIS–specilsofwrefore-decisionsbloclhoriies.Thesofwredigillgeneres views for differen ser cegories ndrolesperformed(forheconcil,governmen,se,oficil, dminisror), links hemccording o heprocedrl reglions of he locl dminisrion,enbles decision-mking hrogh he se ofdigil henicion, llows members o virllpricipe in he concil nd is sb-meeings (vihe Inerne) wih fll righs (inclding voing ndmkingspeeches)ndrel-imeoverview,ec.WhisespecillimporninheconexofPBishhesofwreoffersspecilciizens’viewwhichenblespblic involvemen (llows he ciizens o presenproposls,mendmensodrfsswellsofferheiropinionsrel-ime).Theciizens’viewlsosremsvideo nd sond from he locl concil meeing.VOLISsofwreisvilbleollloclgovernmensndlevelsfor(relivellow)ixedserviceprice.Sill,nollEsoninLGshvejoinedhessem.Imighbehecsehloclpoliiclledersrefridofhighdegreeofrnsprenc7.
Tr hs joined he Informion ConcilSsemndmighbesidosndomongoherLGs in Esoni. In fc, i cnno be considered represenivecimongheEsoninmnicipliies.Wih he poplion of roghl 100 000 residens,i is he second lrges ci of Esoni. Loced185 km soh of Tllinn, i is lso he cenre ofSohernEsoni.TheCiConcilofTr,chosen5Dissemininginformiononisowniniiive(OECD2001).6Providinginformiononheciizens’reqes(OECD2001).7For frher informionboVOLISvisihps://www.volis.ee/gvolis/?lng=en
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bheelecoreof hecieverforers, is herepresenive bod ofmnicipl governmen.Cilifeisdirecedb49membersofheCiConcilnd5members of heCiGovernmen,mos recenlelecedinhemnof20098.
Tr hs been osndingl cive ininvolving ciizens in decision-mking processes ondifferenloclisses.Thereregreexmples9 from
he ls cople of ers when Tr hs involvedciizensinheprocessofnoicingndrewrdingbessnow-clerers, encorged ciizens o become hecreorsndhorsofneworisbrochresboTr, ec. These re minor everd locl isses.Inddiion,herehvebeenwopricipioncseswhichrehighlrelevninheconexofPBndfordiscssinghegenerlredinessforPB.
One of hese cses is he w he cigovernmensedonlinechnnelsopreprehenewpblic rnsporion ender in Tr. The projecwsmenorisepblicwrenessndmppblicopinion of he pblic bs rnsporion s newender ws being prepred.As resl, he cigovernmen received 552 pieces of feedbck fromciizensviheInernendsocilmedichnnelsndsedhemoimproveqlireqiremensforpblicbs rnsporion in he new ender.The feedbckwslsosedoimprovebsroesndimeblesccording o ciizens’ needs. This cse clerldemonsreshighredinessfore-pricipionfrombohpries,spporedbsficienITinfrsrcrewihmnfreewirelessresinheci,highseofhe Inerne, gre vilbili of vrios e-servicesndlongrdiionofsinghem10.
Anoher exmple of pricipion relevn ohisdiscssiondemonsreshhecigovernmenhs ken irs seps owrds combining he oolsof rdiionl pricipion wih e-ools in order oenggeciizens inspilplnningprocesses.Since2011Trhsbeenworkingonhegenerlplnningof he ci cenre wih he im of esblishing heprinciples for is spil developmen – where obild nd where no o bild. The irs sge ofgenerlplnningdrfedhecicenredevelopmensreg, inclding he evlion of he previosdevelopmens nd se of possible sggesions oimprovehecenre.Nexoonlineools(fromonlineqesionnires on Twier nd Fcebook poss),rdiionl deliberive democrc ools sch sworkshopswereorgnizedfordifferenciizengropswhohvespeciicineresinhecicenre(shop8 For frher informion see hp://www.r.ee/?lng_id=2&men_id=13&pge_id=1119
9 Fordescripionofhecses(ccompniedwihvideos)see:hp://epricipion.e/conr/esoni/10
Seehedescripionofhecsehp://epricipion.e/2012/10/sing-online-chnnels-for-preprion-of-he-new-pblic-rns-porion-ender-in-r/
owners, sdens, ec.). This experience nderlinedhe impornce of pblic relions nd he erliespossible involvemen of hemedi in he decision-mkingprocess.Thediscssionwsiniiedbhelocl dil Tartu Postimees.Airs,heCiArchiecpblishedheirvisionofhowheriverbnkscoldbedevelopedinhecicenreinhefre.Thereweredrwingsndvideosched.Thisiniiedmjordiscssioninhemedi.MospblishedricleswereorderedbTartu Postimees.Dozensofricleswerepblishedindifferenmedi,mosofheminTartu
Postimees.TheopicwslsocoveredonTVndonherdiowihheimofmkingciizenshinkbocidevelopmen11.
However,hereischncehpricipioninheprocessofPBmighreminmodes,prdoxicllno becse of he design of he process iself bbecse of speciic conexl fcors. There hvelelbeensomeinsncesinsomeresofheciwhereciizenshvesffereddeomisinerpreionndnhorised(ndillegl)behviorofproperdevelopers.The fc h he ci governmen doesno lws hve n pproprie recion ndmighbenbleochngehesiionhsledomisrsin nd dissisfcion wih he poliicl ledershipof Tr. The misrs hs lso incresed nd heringofhegoverningboddecreseddeosomenionwide poliicl scndls reled o he ledingReformPrinTr.
3.2. PB prparatin prcss in TartTheopicofPBwsnoenirelnewforTr.
One of he hors of he presen pper hd beeninvolvedinorgnisingndrnningseminrsinTrin2011forlocldecision-mkersonheopicofPBinhefrmeworkofheprojec“PriciporBdgeingin Locl Governmens”12 which ws implemenedb he Esonin non-governmenl orgnision e-GovernnceAcdem(eGA).Alredbck hen, iseemed h herews ferile grond for he ideof PB inTr, s herews srong poliiclwillmonghemembersofheCiGovernmenndheCiConcilopilohisiniiive.Inpriclr,heMorwsverenhsisic bo inegringnewpriciporprcices inoeverdgovernnceofheci(seminrsession).
PB decision-making body
A decision o invie he e-GovernnceAcdem(eGA)obenexernlexperorgnisionmnging he whole process ws bsed on he11 See he deiled descripion of he cse hp://epricipion.e/2012/10/engging-ciizen-o-he-generl-plnning-of-he-ci-cenre/ 12
TheprojecwsinncedbheOpenEsoniFond-ion.
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previos experience from he seminr. The eGAhs lso demonsred is poliicl nerliwih previos pricipion projecs, nlsis ndnmerosdemocrcnde-governncework.Ths,iwssregicdecisionbheCiGovernmenoenggeheeGAshelederofheprocess,imedincresingcredibilind legiimcof heprocessmongdifferenpoliiclpriesswellsciizens.Anerlnd independen insiionwssep omngehePBprocess.
In generl, he eGAws given firl lrgespceoopereinfromchoosingwhosrfromndhowobeginseingprlesofheprocess.TheeGA’s sreg ws o combine cdemic reserchmehods(nlsingexisingreserch,collecingcsesdies)nd freediscssion (deliberion)mehods.Exernl expers begn b presening n overviewof he inernionlcsesofPB heirsmeeing(herefer lbelledWGSessionI).A hefollowingmeeings,heminrgmensndsggesionswerelredkeninocconwhenprepringdiscssiondocmensobepresenedfremeeings.
As ws sed in he mehodolog secion,he PB decision-mking bod ws composed ofci oficils nd poliicins.One ke spec o beemphsized is necessi o involve oficils fromheLeglDeprmen.InhecseofTr,heCiSecrerndlsoheHedofheLeglDeprmenwereinvolved.Theseoficilserneslconribedogropdiscssionsnddocmens obeprepredforsbseqenWGmeeings,pingrgmensnddiscssionpoins ino he exising legl frmeworkndpoiningolimisndresricions.
As reserch indices, involving ciizens inhe elborion of he PB design is n isse o beconsidered. In Tr, he exernl exper nd heCiGovernmen discssed possibili o enggerepresenives of civic orgnizions s well shewiderpblicinheprocessofdesigninghePBmodel (conslingdifferen scenriosvielecronicools) (WG Session I). However, i ws decidedh, since heirs imewhenPBwsplnnedndimplemened s pilo projec, i migh be esierforciizensoconribeohelreddesignedesmodel. I ws ssmed h more sefl feedbckwoldbe received if peoplewereofferedw oprciceheprocessbhemselvesirsndonlhenskedogiveheirhoghsndcommensoni.Infc,ibecmecriicloplnndimplemeneficienfeedbckcollecingprcicesdringhepiloprojecinorder odjs hemodel ifneedbendmkeibeer correspond o he needs nd expecions ofciizens.Dringndfer hepilobeweenAgs2013ndDecember2013,exernlexpersfromheeGArogesmchfeedbckndco-prodcion
from ciizens s possible so h he process coldberedesignedndimprovedinpcomingers(WGSessionI).
I is lso worh noing h, since he PBdecision-mking bod in Tr ws formed ofrepresenives of ll poliicl frcions eleced ohe Ci Concil nd of he members of he CiGovernmen, he min rgmen ws focsed onhe bili o combine direc democrc (ciizenspresening ides nd choosing he bes ones) ndindirecorrepresenivedemocrc(poliicinsnddminisrive ledersworkingon hemodel) (WGSessionI).AsolinedbNovndLebol(2005),PB is n ongoing socil experimen of linking heelemensofdirecndindirecdemocrc.
As he reviewed reserch indices, even inhe conex of fvorble poliicl clre, hererelwscossinvolvedinseingppriciporprcices. In Tr, one of he mos serios opicsdiscssedinheWGhesgeofiniiingPBwscosofhewholeprocess(nohemonofmoneobeevenllllocedbheciizensbcosofheprocessiself).Thelrgesnicipedcoswshofpblicrelions(PR).Iwsgreedheficiencommnicionsregiesndqiecoslciviies(e.g., he se of pblici screens) were needed orlmobilizeciizens.Anohercriiclqesionwspmenndmoivionofheoficilswhohdodoexrwork (WGSession I).Theexernlexperpresened pproxime clclions of ll coss(incldingddiionlpmens,PRmerilsschslers, ec.).Thesewerepproximel6200EURwhwslesshnpoliicinshdnicipedirs(WGSessionIII).
ThegreesisseofconcernwsnohePBprocessormkingiworkbrherhemonofmone obegiven ociizens odecidepon.Thisdiscssionws iniiedb hepoliicins involvedfrom heverbeginningof hepreprionprocess(WGSessionI).Adecisionhmonesholdcomefromheinfrsrcrebdgendbespenonpblicspces nd speciic objecs (bildings, prks, ec.)ws fs nd lmos consensl. However, moreliveldiscssionoccrredonheopicofspeciicsmofmoneobelloced:sholdibesmbolicsm, les in he pilo projec? This ws nodiscssedinoherreserchbheTrexperienceclerl illsredwh he criics of “he smbolicsmofmone”pprochhverged: h inschcircmsnceshewholeprocessreminssmbolicswell.Thosewhorgedformoresigniicnmonofmone, whichwold legiimise he process ndincresepricipns’moivion,werecriicisedforwillingokerisks.Asmenionedbove,heinncilonom of LGs is noher fcor. The previos
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secionsexplinedhow90%ofhebdgeEsoninLGsmde essenill nvoidble decisionswherehespce omnoevre isver limied.As reslofhediscssions,iwsgreedhTrresidenswolddecideonbo1%ofheinvesmensbdge(140000EUR).
Participation As he heoreicl frmework indiced,
pricipionisnimpornvribleodecidepon.Differenl from reserch h debes he isse ofnder-represened grops, his did no become signiicn fcor in he PB preprion process inTr. Exmples of vrios cses in Cnd hvebeen lised: in Gelph, people in neighborhoods,whohvenobeenorgnizedinogrssroosgrops,cnno pricipe; in Torono, hose who do nolive in pblic hosing cnno pricipe; nd Ridgeview,non-sdenscnnopricipe(Biocchind Lerner 2007).As Biocchi nd Lerner (2007)rge,heseexclsionrprcicesmprdoxicllhve inclded mrginlized grops b preveningmore privileged ciizens from king chrge of heprocess.Alhogh,whenicomesoheexisenceofmobilizedsocilgropssincehesiioninEsoniis more similr o he Unied Ses nd CndhnBrzil, i ws decided h n opporni opricipe wold no be limied o forml socilorgnizionsorcommnissociionsbwoldlsobedireced o individlciizens.Since iwsgreed in heirs session hTr isgoing o sep pilo projec on PB, i ws decided h heiniiive wold be direced o ll ciizens hroghhe self-selecion mehod. Governnce prcices inTrhvebeenfirlinclsiveofllgropsndonecnnompgropshwoldhvebeenpriclrlmrginlized.Frhermore,relecinghenoionhhe ends shpe hemens (Demedik e l. 2011),hispriclrPBiniiivecoldbelbelledsheprojec“lerningbdoing”wherehenmberofinlpricipns (hosemking proposl or voing) isnosimpornsexperienceiself(WGSessionI).
One of he mos criicl qesions riseddringhediscssionsconcernedciizenmoivion(WGSessionsIndII).WheresinLinAmeric,poor people pricipe in PB prl o ix rgenproblems (Lerner 2011) sch s npved srees oropensewers,inEsonihesebsicneedsrelredmendonehsoenggepeoplebsingdifferenmehods.InTr,onesregicdecisionwsoinvesin commnicion mngemen boh inncillnd in erms of hmn resorces. TheDeprmenofPblicAdminisrion, he eni responsible forhe whole process, ws promised exr fnds foreffecive commnicionciviies (WGSession I).
Also, deiled commnicion plnws prepredin collborion wih he PR Deprmen nd heexernlexperndpresenedWGSessionIII.
The discssion of which mechnisms coldbesedfor heprocesswscerinl inlencedbprevios pricipor prcices inTr (describedbove).Bsedon heseexperiences, iwsdecidedh differen pricipion mechnisms ofline ndonline wold be combined, lhogh greer focswoldbeplcedononlinemensbecseheciizensofTrhveprovenheirpreferenceforsingonlineoolsforpricipion(WGSessionII). Whileiwsgenerll greed h here shold be specil PBwebpge for sbmiing ides nd h he sholdbe pblished long wih exper opinions on hem,hemos criicl qesion rised in he discssionsws he crieri for selecing he ides.An eqllimpornqesioniswheherheresholdbefce-o-fcemeeingsndhowhesholdbeorgnized.As sedbove, herewsnopln opre-selecorsegmen pricipns in he Tr projec; insed,inldecision-mkingwoldbeopenollciizens.Ths, no disric or neighborhood level meeingswereorgnized(WGSessionII).Sill, heresholdbeshredenvironmenforredingndcommeningon exper opinions nd join even forpreseninginl ides (elborionsof preliminr idesbsedonexperopinions)before heciizenscold selechewinningone.Consideringheechnolog-drivenclrendpreviosprcices,iwsgreedhheeven for presening he ides shold be held in smlldiorimwihonlhePBworkgrop,someexpersndpresenersofheidespricipingndhheevenwoldhenbebrodcsonlineowiderdiences(WGSessionsII–III).
DeliberationAs he previos secion olined, here is
plnosepshredenvironmenforredingndcommening on he ides nd exper evlions.This is wh he deliberion vrible heoreicllddresses:howdecisionsrebeingmde.Regrdinghe inl decision-mking nd king echniclvilbili, e-rediness nd long experience of e-voing13inEsoniinoccon,onesggesionmdedring he PB preprion process concerned heseofne-voingssemforinldecision-mking(WGSessionI).Thisideprovokedwiderrofopicsreledohepoliiclsiion,sringwihprocedrlqesionsonhepossibiliofconnecing13
Esoniws heirsconr in heworldwherese-wide Inerne-bsed elecions ook plce: he locl elec-ionsof2005ndheRiigikogelecionsof2007.E-elec-ionhsbeenpossible inllelecionsfer hwih henmbers of e-voers consisenl rising from elecion oelecion.
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hePBprocess(voingonides)wihvoinginloclelecions inOcober 2013 o sensiive discssionof poliicl vicimizion. Nmel, he opposiionccsed he mjori pr of “convenienl”beginning he process of PB on n elecion erndmkingheprocessprofheircmpign.Ahe sme ime, represenivesof ll frcionswereinviedohePBworkgropndheexernlexperdvisedhhisfcbecommnicedoheciizensswell.IhsobenoedhferheirsmeeingheccsionsofoneoroherprproiingfromPBbeforeelecionsndohersimilrrgmenswerelmosnon-presen(WGSessionI). Asresl,dringhesecondsession,iwsdecidedhheprocedreof voing for PB ides nd voing he elecionswoldnobeconneceddeoheresricionsinheLw of Elecing Locl Concils h prohibis nkindofprllelvoingprocedres.Aseprevoingprocedre14 ws designed for PB voing, pplingbohrdiionlndonlinemehods.Therdiionlmehodispper-bsedvoingspecilvoingpolls(PblicHllinheCiHll);nddevelopmenhslred sred on creing new fncionliies oVOLIS(InformionSsemforConcils)foronlinevoing.
The phse h precedes he PB voingprocedre in Tr is he experise sge whenll sggesions re evled b he expers whoprodcedeiledsemens.TheexpersreoficilsofheCiGovernmenwhoreresponsibleforhecorrespondingresofheproposls(deprmensofciplnning,rchiecre,ec.).Onecriiclspechereismoivionofheexpers/oficilsodoexrwork.This is ofmos impornce formkingPBrlwork, since imosldependson hepoliiclclre nd willingness of he governing elie oconribe o he process. As noed b Herzberg(2011), giving ciizens rel feedbck on resonedsemensoheirproposlsishighlsigniicn:ifhissgeiscrriedosccessfll,icreesrelbrekfromhenoionof“selecivelisening”.
14TheimingforPBvoinglsodifferedfromloclgovernmenelecions.IwsseforNovember2013.
EmpowermentThenoionof“selecivelisening”issomehing
he ci oficils swell s he poliicl eliewereiming o void. Alred dring he inrodcorseminr in 2012 on he opic of PB, here ws commonndersnding(hhdfllbckingofheMor)hisholdbeobligoroimplemenhedecisionmdebheciizens.Therewsndsillisrhersrongpoliiclwillmonghegoverningeliein Tr o empower ciizens b deleging he defcodecision-mkingpower.
Managing and monitoringSince he formed work grop opered
eficienlhroghohepreprionprocessofPB,decisionwsmdehheminbodomngehewholeprocesswillbehesmeworkgrop.Since2013 elecions will coincide wih he process ndsincemembershipisvolnr,heremighbesomechngesinhepeopleinvolved(WGSessionIII).
3.3. Tart PB mdlAs he resl of nmeros discssions,
rgmensndexchngesofides,hePBdesigninTr consised of he following sges. Firs, fromAgs 21 o Sepember 10, presenion of ideskes plce (boh ofline nd online). Everone iseligibleopresenheirideshhveoqlifsinvesmensndhecosofwhichsholdnoexceed140000EUR.Aferhesgeofcollecingciizens’inp, expers will nlse heir respecive opics,consolidesimilrides,evlendcommenonheiresimedcosndconennilOcober2013.Theevenforpreseningheidesisplnnedformid-November 2013.All ideswill be vilble on heciwebpgendheevenwillbebrodcsonline.Finll,heendofNovember,llideshreinccordnce wih he prediced bdge nd receiveposiive exper evlionswill bevoedonb heciizenssingbohrdiionlndelecronicmens.EverTr residen of les 16 ers of ge iseligibleovoe.InDecember2013heCiConcilisobligedopprovehedecisionmdebheciizensndincorporeiinohecibdge.
Fig. 1.PBdesigninheCiofTr
38
Compring he Tr PB model/design wihheexisinginernionlfrmeworksofdifferenPBmodels(seeSinomerel.2010)presmblreqiresmoredeiled reserch hn hescopeof hisppercn offer. I cn be rged, however, h in ermsofciizenempowermen,TrhePBdesign(evenwihinhelimied1%ofheinvesmensbdge)iscloserohePoroAlegremodel,whereciizensreenggedinheco-prodcionofhebdge,hnohe “selecive lisening” experiences worldwide.According o expers, he process hs gone versmoohl so fr. The projec of PB ws voed onon27Jne2013 heCiConcilmeeing,wihhe pln o sr is implemenion on 21Ags.Hopefll, locl Tr poliicins ndersnd hhereisnowbckndheinldecisionmdebheciizensisbindingforhem.Aheendofhed,pricipor insiions hve o complemen helogicofrepresenivedemocrcndiisexclhelocllevelhheciizen“lernshowogovernhimself” (Pemn 1970, 31; Wmpler 2012). AsDvidPlokepi:“Theopposieofrepresenionis no pricipion” (Ploke, 1997, 19, inWmpler2012,7).
4. CnclsinPricipor Bdgeing, globl prcice of
locl democrc, provides ordinr ciizens wihheopporniodecidepblicspending.SincePBprcicesvrlloverheworld,differensdiesonhe reslsof heir implemenionredescribed inhelierre.Thispperfocsesonheprocesshprecedes implemenion, nmel, he preprionsge of PB. The reserch looks he chllenges,choices nd decisive fcors of he PB preprionprocess.Theheoreiclfrmeworkolinesheminvriblesofheprocessdesignswellshechllengesnd choices of selecing hemwhile prepring PB.Frhermore,conexlfcors hressmedoinlencehechoiceofpriclrdesign/modelndcsdecisivefcorsrepresened.
The empiricl pr is bsed on he cse ofheCiofTr hdecided opilo PBprojecin he mn of 2013. The reserch reveled hone of he mos criicl chllenges nd choices ofhe PB preprion process is overcoming poliiclconfronions s well s inncil onomconsrins.Onedecisivefcorincombingpoliiclconfronions is ogive he leding role onerlndindependeninsiionsndexpersindesigningheprocess.Frhermore,poliiclwillopiloheprocess cn id o pve hew beond he limisofinncilonom.Ths,neiherlimiedinncilonomnorhepcomingloclelecionsendedpimpedingheincepionofhePBprojec.However,
evling wheher nd how he pilo projec wssedbdifferenpoliiclpriesndwhhemleffecofhewoprocesseswsiisonlpossibleferPB is implemened. The iniiors of PB lso fceimpornchllengesincomposinghePBdecision-mkingbodndinovercomingheissesreledoexrsksformnoficilsinheCiGovernmenwhileimplemeningPB.Inschconex,hepoliiclclre ppers o be he decisive fcor in solvingproblems sccessfll. Nowds, he rr of hemehods vilble o ciizens for mobilizion ndpricipionissigniicnlwiderdeohemssiveimplemenion of ICT in ll ields of life. Tr,hvingposiiveconexlfcorinheformofhecivicclrende-redinessdecidedoinegreICTino hePBprocess. In ermsofconexl fcors,s lredmenioned bove, he locl poliicl ndcivicclresreexremelimpornndneedobeken ino cconwhen prepring for PB.Amongoher vribles of he design process he moslinlence he levelofempowermenndhedegreeof deliberion. The ler ws lso deermined blocl e-rediness, h is, he se of ICT in voingnd in presening ides. Finll, he pricipioncomponenwsprilldeinedbhehomogeneiofhespeciicci.
IissillobediscoveredwhreslshepiloPBprojecinheCiofTrwillbring.Thehopeishiwillenhncedilogebeweenheciizensndhegovernmen,hiwillbringnewknowledgeonhowoimproveloclpriciporprcicesinhefrendhiwillhelplernwhdemocrcisndhowiworksforhebohpries,forhosewhoreenggingndforhosewhoreengged.
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Хорошее управление начинается с процессуальных изменений: исследование разработки дизайна совместного бюджетирования в городе Тарту (Эстония)
Резюме
Совместное бюджетирование (СБ), глобальнаяпрактика местной демократии, предоставляет прос-тым гражданам возможность принятия решений обиспользовании публичных денежных средств. В товремя, когда многие ученые фокусируют свое вни-мание на описании многих вариантов СБ во всеммире, авторы настоящей статьи в качестве объек-та исследования избрали предшествующий внед-рению СБ процесс – этап подготовки дизайна СБ.Данное исследование выявляет трудности, опциии решающие факторы, с которыми сталкиваютсяполитики и государственные служащие в ходе раз-работки модели СБ. В теоретической части данногоанализа рассматриваются основные переменныепроцессуального дизайна СБ, а также описываютсявозможные трудности и опции, возникающие привыборе той или иной модели СБ. Контекстуальныефакторы, в свою очередь, потенциально оказываютвлияниенавыбортогоилииногодизайнаивыступаютвролирешающихаспектов.
Практическаячастьисследованияосновываетсяна кейсе города Тарту (Эстония), который принялрешение внедрить СБ в рамках пилотного проектаосенью2013года.Исследованиепоказало,чтооднойизосновныхтрудностейприразработкепроцессаСБявляется преодоление политической конфронтации,а также финансовых ограничений. Одним из мето-дов борьбы с данными проблемами является пре-доставлениелидирующейроливпроцессеформиро-вания СБ нейтральной и независимой организацииилиэкспертов.Темнеменее,судитьобиспользованиипилотногопроектаполитическимипартиями,станерт
возможнымтолькопослеегореализации.Кромеэтого,инициаторыСБсталкиваютсяструдностямивструктуреотвечающей за процесс СБ организации, а также срешением проблем, связанных с дополнительнойработой государственных служащих. В данном кон-тексте благоприятная политическая культура можетпослужитьфактором,способнымразрешитьподобныепроблемы. К тому же, на сегодняшний день спектрметодов по привлечению населения к участию впубличныхпроцессахпринятиярешенийзначительнорасширился благодаря внедрению информационно-коммуникационныхтехнологийвовсесферыжизни.ВТартуимеетсяблагоприятныйконтекстиэ-готовность,чтоповлиялонарешениемуниципалитетаиспользоватьтехнологии в процессеСБ.Данные контекстуальныефакторы (политическая и гражданская культура)представляютсяоченьважнымиидолжныприниматьсявовниманиеприразработкепроцессаСБ.Помимоэ-готовности, гомогенность сыграла важную роль привыбореметодовучастия.
Результаты пилотного проекта в Тарту пос-лужат темой будущих исследований. Надеемся, чтоданныйпроект укрепит диалогмежду гражданамиигосударством,предоставитновыезнанияотом,какимобразом улучшать на практике участие населения впринятиирешенийнаместномуровне,атакжепоможетучиться демократии и понимать обеими сторонами(теми,ктововлекает,итеми,когововлекают)механизмееработы.
Ключевые слова:совместноебюджетирование,местнаядемократия,участиевпринятиирешений.
Thericlehsbeenreviewed.ReceivedinSepember2013,ccepedinOcober2013.
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