Citizen participation manual UI by Mirna Karzen

CITIZEN PARTICIPATION MANUAL LOCAL GOVERNMENT REFORM PROJECT

DRAFT COPY

Prepared by Krzysztof Chmura Mirna Karzen Momo Kuzmanovi With contributions by Lori Bishop Maris Mikelsons

Prepared for:

Local Government Reform Project U.S. Agency for International Development Contract No. EEU-I-99-00015-00, Task Order 808

THE URBAN INSTITUTE

2100 M Street, NW Washington, DC 20037 (202) 833-7200 www.urban.org

December 2003 UI Project 06901-011

PREFACE The Local Government Reform Program (LGRP) is a technical assistance project with two aims: to build the managerial/administrative capacity of local governments and to provide policy advice to the Government of Croatia on local government reform. The project is implemented by the Urban Institute, a nonprofit policy and research organization based in Washington, D.C., and is funded by the United States Agency for International Development (USAID). The LGRP is managed by Maris Mikelsons (Director) and Krzysztof Chmura (Deputy Director). Over the past several years, the project has developed five local government management models to address the needs of local governments to better manage their resources. Each of the five management models has been implemented in a variety of sites throughout the country, and in all cases implementation occurred in close collaboration with counterparts in local governments, with primary emphasis placed on institutionalization of the models. This manual is designed to assist the user to understand the methodology related to the citizen participation model and serve as a basis for efficient and effective implementation of new management techniques developed by the LGRP in collaboration with local governments in Croatia. The LGRP will continue to refine and update the management models with information gained from new “lessons learned” and deeper application of management methodologies.

The following is a brief description of each of the five management models. Asset Management. This model introduces a new systematic approach to increase the effective use of real property, owned or operated by a local government. The first step is to create a comprehensive inventory of all assets, followed by an evaluation of each property to determine the best use for a local government. Upon completion of these steps, the model addresses other property management issues by introducing methodologies related to property valuation, analysis of direct and indirect subsidies, introduction of operating statements for each property, and so on. By using a multidisciplinary approach to managing assets, the model results in improving local finances, service delivery and facilitates local economic development. Citizen Participation. This model enhances the participation of citizens in local government decision making as a tool for better resource allocation. It introduces a systematic approach for local governments to effectively communicate with citizens and to promote civic initiatives. The model suggests two paths for implementation, the Quick Results Approach and the Integrated Approach. Suggested tools include community newsletters, citizen advisory boards, “one stop shops,” budget-in-briefs, and citizen satisfaction surveys, among many others. An example is provided for each tool discussed, many of which come from initiatives already undertaken in Croatia. Economic Development. This model addresses local economic development from a community perspective by bringing local government, business leaders, and civic leaders together to forge and pursue a shared vision of a community’s economic potential and how to achieve it. The model also discusses the mobilization of both public and private resources in support of that vision, and discusses how to create a favorable business climate that both encourages local entrepreneurs to create new business and expand existing ones, and is also

attractive to outside investors. Through this process, an Economic Development Strategic Plan (EDSP) is developed. Finally, the model suggests the development of a local entity with responsibility for overseeing the implementation of the plan, and that will address capacity issues related to the regulatory environment to accomplish plan objectives. The model is an important tool to enhance the ability of a local government to manage local economic development. Financial Management. This model outlines a system of financial management that increases transparency and accountability in overall financial management, from decision making to evaluating expenditures. The model introduces four modern management practices: (1) the creation of a transparent budget, (2) analysis of creditworthiness for better access to credit, (3) a systematic approach to planning capital projects over a multi-year period, and (4) a budget organized around programmatic objectives and linked to performance indicators (program budgeting). These four practices are supported by the application of a comprehensive software program (Financial Analysis Model, or FAM) designed especially for use by Croatian local governments and in conformity with the current legal framework. Information Management. This model introduces a new approach to managing information and communicating within a local government and between citizens and local government. The approach relies on a systematic evaluation of the information needs of a local government, followed by the application of modern tools for communication and sharing of information such as LAN (Local Area Network), email, and electronic conferencing. Most importantly, the model connects citizens to the local government electronically, to allow access to information on local government functions (processes), and communication with government officials, saving time and increasing citizen participation in local governance.

TABLE OF CONTENTS

Acknowledgements

Part One: CITIZEN PARTICIPATION

Part Two: CITIZEN PARICIPATION MODEL

Part Three: CITIZEN ARTICIPATION TOOLKIT

APENDIX: Case Study Glossary

ACKNOWLEDGEMENTS This manual is a key document for disseminating the LGRP citizen participation model to other cities in Croatia. It is a practical rather than a theoretical record of what was accomplished in LGRP demonstration sites. This manual is based on experience from implementation of citizen participation activities in Croatian local governments throughout the course of the Local Government Reform Project. The LGRP gives a special thanks to the staff and mayors of the City of Rijeka, City of Crikvenica, City of Varazdin and other local governments in Croatia for their cooperation and case examples that have been included in the manual. The Manual has utilized some elements of the CP toolkit prepared by The Urban Institute for Albanian local governments and other publicly available citizen participation manuals prepared for use in Central and Eastern Europe and other transitional countries.

INTRODUCTION Dear Reader, You have in your hands a Citizen Participation Manual for local governments. The Manual is meant for local or regional government officials and staff members as well as citizen participation specialists and people interested in local government issues, especially in the topic of citizen participation. It can be also interesting for people active in a NGO sector or generally interested in civil society issues. The manual is intended to provide guidelines on how to improve the local community management. The topic seems to be simple but in fact utilizing citizen participation in improving overall management and understanding that it allows to gain tangible results is not so common. The traditional perception is that citizen participation is an abstract issue and is just improving democracy but doesn’t bring the real results. The Manual has ambition to change that attitude. The Manual main “messages” are that (1) citizen participation is a management tool and contributes to better effectiveness in management, (2) the meaningful citizen participation is when there exists mechanisms of partnership between local government and citizens groups and (3) there is variety of citizen participation tools, which can be utilized to address various citizen participation goals defined by particular local government. If you are a mayor, local government official or staff member, you probably quite often face problems with efficient communication with citizens and meaningful collaboration with them. You probably quite often seek answer to a question on how to promote development of your community and how to find resources for those activities. This Manual provides you answers and guidelines on these important dilemmas. The Manual will help you to address those issues through understanding citizen participation issues and gaining ability to implement various citizen participation practices. But, what is even more important, the Manual will help you to mobilize additional, quite often unexpected, resources to promote development of your community. For those who are a consultant or person interested in local government issues or involved in NGO sector, this Manual will help to understand how local governments should operate in terms of citizen participation. You can also find examples, which might induce you to improve your own community life. It may address your personal dilemmas, e.g. what to do to improve quality of your life in your community. This Manual will hopefully help you to find a path on how to start improving it. How should you use the Manual to address the above issues? You will find in Chapter One explanation on what citizen participation is, especially what is the specific LGRP/UI approach and philosophy. Reading the Chapter Two you will learn, what is LGRP Citizen Participation Model and how to implement it. Then in the Chapter Three you will find, what we consider the core of the manual – Citizen Participation Toolkit. The Toolkit provides you will variety of Citizen Participation Tools, categorized in different categories, from information tools, through communication and partnership tools up to administrative tools. At the end of the Manual you will find a successful story – implementation of various citizen participation interventions in Rijeka. The Manual ends with a glossary of the most common terms utilized in the Manual. The authors of the Manual sincerely hope you find the Manual useful and practical.

PART ONE CITIZEN PARTICIPATION Definition of Citizen Participation

Citizen participation is critical to developing and strengthening democracy at all levels of government, but increasing citizen participation in government decision-making should not be a goal for this reason alone. Nor should citizen participation be an objective of local governments solely because it is fashionable. Citizen participation has a much broader importance that lends an even more convincing reason for local governments to make increasing citizen participation a priority. Citizen participation is a very important management tool that increases the effectiveness of local government management and, if understood widely, can lead to a real and lasting partnership between all of the “sectors” in a community (public, private and civil society sector). This partnership can produce many perhaps unforeseen benefits for all parties, including uncovering new sources of funding for public projects and improvements in overall problem-solving capacity in local communities.

A. THE MEANING OF THE CITIZEN PARTICIPATION Meaning of Citizen Participation

In this manual, the term “citizen participation” will be used with four distinct meanings: a) The general meaning of the term, referring to an active role of individuals in all areas of community life, from the macro level issues of budgeting and education, to neighborhood councils and individual initiatives; b) As a constitutive element of civil society values, institutions and practices; c) As a constitutive element of effective governance, with emphasis on the local governments; and d) As the title of a local government management model designed by the LGRP project for local governments in Croatia.

What does citizen participation mean conceptually, and what does it mean for individuals?

a) General meaning of the term In modern society, interactions are increasingly complex and diverse, and as a result individuals now play a variety of social roles. During their lives they “act” as child, friend, pupil, spouse employer or employee, voter, businessman, soldier, city mayor, priest, and so on. Some roles are assigned at birth. Individuals passively “agree” to play the role of someone’s child with the very first breath they take. Some roles are performed as a result of individual’s own choice. Some roles are imposed on individuals against their 6

individual’s own choice. Some roles are imposed on individuals against their free will. It would be possible to differentiate societies according to the opportunities for individuals to perform their roles actively, according to their preferences and needs. When discussing citizen participation, we are talking about individuals in a distinct social role: the role she or he plays in the local, regional, state or global community. When raising the issue of citizen participation, we are mainly concerned about the active role of individuals as community members. It is presumed that in modern free societies, individuals should be able to participate in all aspects of community life - to influence the overall performance of the organizations, institutions, associations and activities in business, governance, sports, charity, and so on. However, the presumption always fails when individuals accept a “role” that was “chosen” for them by someone else (parents, street gang, government). It fails even in the case that an individual enjoys the lack of responsibility associated with the fact that the role is “chosen” by others. For example, the role of “someone’s child”. Being somebody’s child, not by my own decision but by that of my parents, allows me to expect my parents to be responsible for providing food and toys and for my behavior in the kindergarten. And I would be entitled to enjoy that lack of responsibility as long as my parents allow me to continue in the role of “someone’s child.” In the case of the kindergartener, the first time the child exhibits responsible behavior or performance is an important step in his personal maturation; he begins to cease being “someone’s child,” and takes an important step toward defining his own identity and social role. Similarly, the first time someone initiates an activity to solve a community problem is an important turning point in the development of a citizen as an active participant in community development. What is the meaning of citizen participation in different areas of society?

b) Constitutive element of civil society In the commonly accepted metaphorical picture of modern society, the entire social space is divided in three main areas (or sectors), according to prevailing type of activities, institutions, and values in each of them: market economy, public sector and civil society. Citizen participation refers to a wide range of ideas, initiatives and activities targeted to the increasing the citizen’s role in all areas of community life, particularly (but not exclusively) in the social space situated between the market and the state, usually called the third sector. Private ownership, profitoriented activities and institutions make up the market economy sector. The public sector is composed of public ownership, with organizations and institutions providing and ensuring legal framework, social welfare provision and other services in the public interest. Non-profit organizations, nongovernmental organizations, institutions, and activities, based on civic 7

governmental organizations, institutions, and activities, based on civic initiatives make up the third sector. Civil society is described as a set of institutions “outside of government – including civic associations, nonprofits, churches and neighborhood clubsthat contribute to the public good”1. Civil society institutions and various forms of citizen participation in them help develop important social networks with a potentially strong impact on the interaction between the public sector, business and individuals. The importance of citizen participation for modern democracies has been widely recognized over the last two decades. Dynamic development in the civil society “sector,” with institutional diversity and a variety of experimental and innovative practices, has generated a new public interest on the importance of participatory oriented and community based activities. It has also reshaped academic and public understanding of citizen participation: • The capacity of citizens to organize themselves “around shared interests and needs outside the market and without being mandated to do so by the state”2 • Their capacity to share responsibility for the activities of social security, cultural activities, environmental programs • Their capacity to create new means of civic-public partnership • Their overall problem solving capacity It has been “rediscovered” that improved citizen participation and the growth of the civil society sector does not necessarily mean that they distrust the state more than previously, but rather, that “they have more trust in themselves and in the societies in which they live”2 . What does citizen participation mean for effective management in local community?

c) The constitutive element of effective governance, with emphasis on the local governments. There is extensive empirical and theoretical evidence proving that a decline in citizen (civic) engagement always coincides with the ineffective performance of social institutions, erosion in the quality of public life1 and a lack of mutual trust between government and citizens. An organized community has to deal with issues that an individual is not able to solve alone or with problems that can more effectively be solved by groups of community members, organizations or institutions than by an

Kingsley, Thomas, G., and Gibson, O. 1999, Civil Society, the Public Sector, and Poor Communities, Washington D.C.: The Urban Institute. The Future of the Public Sector Occasional Paper No.12 2 London School of Economics, The Centre for Civil Society, 2002. Anheier, Helmut, K., The third sector in Europe: Five thesis. Civil Society Working Paper 12. London,

groups of community members, organizations or institutions than by an individual alone. The modern community should not be organized as an isolated structure imposed on individuals. It should be a “user friendly” mechanism adjusted to individual expectations and achievements of community members, families, neighborhoods, and associations. Mutual efforts, both from community institutions and from community residents, are needed to provide such adjustments. One of the main objectives of effective governance is public-civic partnership in community development. This can be accomplished when citizen participation in various areas of community life is realized through effective collaboration between all “three sectors” of society (civil society, private and public sector). A local government should understand that its role is to undertake activities that create a favorable environment for residents to be active in different ways. The driving rule of conduct for local government, in all of its functions, should be the subsidiary principle. That means that local government has to encourage lower levels of governance or community organization (those that are the closest to the people) to be in charge of as many functions as it is effective and efficient. The residents of one street, for example, may come together to take action in cooperation with the local government. A formal organization is not always needed for successful performance of public services. In fact, quite often an informal association of individuals rallying around a local issue becomes formal after some period of time. A civic initiative could also come from informal group of citizens, often focused on particular problem or issue (like an informal neighborhood organization, for example). What is the meaning of citizen participation in the implementation of the Local Government Reform Project?

d) The management model for local governments The Local Government Reform Project (LGRP) and local governments in Croatia have developed the Citizen Participation Model as one of five local government management models. This Model details a systematic approach for local governments to improve communication with citizens and to develop new practical solutions for public-civic partnership. The concept of the Model is based on recent achievements in business and public management and examples of efficient implementation of various civic initiatives in the U.S., EU, and the transitional countries. The community-based methodologies are important elements of all LGRP models in different areas of local governance: asset management, citizen participation, economic development, financial management and information management. All are designed for efficient and effective implementation of new managerial techniques within the Croatian legal framework, all with significant emphasis on active cooperation of local government and business managers, NGOs, and other formal or informal institutions at each LGRP implementation site. 9

Governments never have sufficient resources to meet all citizen expectations. Local government management should create a collaborative environment for the expression of needs and ultimately address these needs. In a partnership between citizens and local government, a community can mobilize additional resources for its own development and provide stronger justifications for decision-making. Such an approach influences the way that local government manages local issues. Public-civic partnership in improving various areas of community life is neither the prevailing model in community governance nor a utopian concept. The examples of successful implementation of community partnership have increased in numbers and variety in the U.S., EU, and other transitional countries; a full set of examples follows the discussion of the citizen participation model (see Part Three, Citizen Participation Tool Kit).

B. (RE) STARTING CITIZEN PARTICIPATION IN THE LOCAL COMUNITIES Why should we encourage Citizen Participation? To encourage increased demands on already scarce resources?

Concerns Many local governments are hesitant to or afraid of encouraging citizen participation, as they believe it will place additional burdens on their already scarce resources, particularly their budgets. This is often the case in transition countries, where the problem of scarce resources is more prevalent. Local government authorities are afraid that citizens, when asked for their opinion, will automatically demand more services and other outputs from the local government. Some would argue that in a situation of very scarce resources, citizen participation should be limited so as not to inadvertently open the door to additional demands. Based on that assumption, they think that citizen participation is an objective primarily for local governments with more stabilized financial foundations. However, this perception is entirely incorrect. Citizen participation in its full meaning is not just asking citizens for their input on what they want done or what services they require. Rather, democratic citizen participation provides a platform for meaningful dialogue that enables authorities to provide information and solicit feedback from citizens in order to make good choices in using scarce resources. It also involves citizens in the decision-making process in which they also commit their own resources to justify and support decisions made collaboratively with the local government.

Objectives There are many objectives of developing citizen participation. Some of the most important are: •

To be better informed of citizens' expectations, which in turn enable the local government to better meet those expectations. Those who manage community services and infrastructure on behalf of individual citizens have to establish a way to be informed of their needs, or to create an enabling environment to fulfill those needs. Developing citizen participation in local governance is essential for local authorities to fulfill their basic task -- to meet the expectations of their constituents. It should be emphasized that local government authorities should not think of this as simply listening to citizens, but also as an opportunity to have a dialogue about prioritizing the use of scarce public resources. Obviously, not all needs (or wishes) can be fulfilled at all times, and sometimes difficult decisions have to be made. But with increased citizen participation, local governments can make these decisions in an open transparent way, which is already an important improvement in the functioning of local governments.

•

To ensure citizens’ influence on the community’s future. Apart from daily management responsibilities, local authorities have to devote time to planning future activities. They must have a vision of the community in the future and a strategy of how to achieve the vision. Planning for the future of the community should be an active collaboration. Although elected community leaders should take the lead, members of the community should have the opportunity and be encouraged to actively take part in shaping that vision. If this opportunity is not available, the community will not have ownership or buy-in to the vision. Individuals will be unlikely to perceive themselves as meaningful members of a community, and therefore will be less likely to contribute (either ideologically or financially) to the development of the community vision.

•

To develop mutual trust between citizens and the local government. It is difficult for the local government to fulfill its responsibilities and manage scarce resources without the trust of the citizens. Citizen participation, as a concept, includes both soliciting suggestions and creating and taking opportunities to explain the context and framework behind the decisions to be made, and to encourage a thoughtful dialogue on the community future. Trust is initiated by the transparent provision of information followed by the opportunity to discuss that information and communicate it back to authorities. But the best way to build trust is to organize joint activities – the real engagement of 11

to build trust is to organize joint activities – the real engagement of citizens in local government issues. •

To attract support for activities and investments through implementation of joint projects. It is difficult and, in a way, inappropriate, to implement various projects or activities without the support of public. The mutual trust between the local government and citizens may be damaged if an activity or investment is not as successful as expected. On the other hand, resources are always scarce, and it is difficult to fulfill all expectations. Different levels of support can be defined. The simplest level is when citizens simply say that an activity or investment is useful, perhaps through a simple survey or poll (or if activities and investments are a response to a previously expressed demand). However, it is easy to say that something is useful or necessary when it does not require any sacrifice. A higher level of support, which is of much greater value, is when citizens are directly involved in the implementation of the activity or investment, when there is a cooperation between the public sector and private individuals. If citizens devote their energy and resources (in-kind, financial, or volunteering their time) to a particular activity, then that activity is clearly one that the community, or at least the citizens involved, deem useful.

Benefits Developing greater citizen participation is fundamental to improving: • • • •

Decision making processes, involving more people and more points of view; provides a check on the power of local governments to make decisions; Effectiveness of local government, as decisions are made more rationally or with the check provided by direct citizen involvement, the overall effectiveness of local government performance may increase; Partnership with the community, as it strengthens citizens engagement in local government activities; Democracy, as it enables the implementation of more meaningful democracy, so that local governance becomes more than just a representative system based on input every four years; it allows for grass roots democracy, where people experience their influence on decisions.

PART TWO CITIZEN PARTICIPATION MODEL DESCRIPTION How Citizen Participation Model was created?

Background The LGRP Citizen Participation Model is designed to help local governments use modern methodologies and tools to improve their management effectiveness, based on increased citizen participation in public governance. It has been developed and modified through close collaboration between the LGRP program and several local governments in Croatia. The goal of the model is to provide guidelines for increasing participation of citizens in the local government decision-making process and thus to foster the development of civil society. Part Two introduces the Citizen Participation Model, discusses the methodology, and details from the citizen participation implementation process in Rijeka, Crikvenica, VaraĹždin, and other Croatian cities and municipalities.

What is Citizen Participation Model?

Definition The Citizen Participation Model is a planning and implementation process aimed to increase participation of citizens in the local government decision-making process and to provide an environment for the creation of civil society. Such participation will contribute to strengthening democracy and improving public service delivery.

Why should local governments use the Citizen Participation Model?

Potential gains The successful implementation of the Citizen Participation Model cannot be accomplished without additional efforts of local government officials, sometimes with additional costs. But there are also several rewarding results that they can expect: 1. Practical solutions for the increased citizen engagement in the decision-making process at the local level will prove true legitimacy of the elected officials. “Direct Citizen Participation in Decision-Making” is one of the requirements of Croatian “Law On Local and Regional Self-Government”. The Citizen Participation Model promotes methodologies and tools designed to help local leaders to reach those requirements in everyday life with visible results. 2. Citizens involved in the decision making process are likely to support local government programs. 3. Citizen participation provides a source of information, knowledge and experience, which contributes to the soundness of community solutions and available resources. That will encourage local business people for further investments in their community and attract private investments from other regions. 4. Effective management in community governance, sound implementation procedures of the local development projects and transparent expenditure evaluation for the public investments will increase the chances for the additional financial support for the future projects. 5. Cities and municipalities developing a variety of joint activities performed through the public-civic partnership in culture, business, education, tourism, and sport (festivals, fairs, tournaments) are more capable to establish partnership relations with other cities and municipalities on the regional, national and international level. 6. Increased citizen participation will unleash the creative potential of community members. They will be more willing to volunteer their time and resources for the activities in the community. That will also reduce the cost for personnel needed for the duties associated with community action. 7. Local government officials with the proven managerial skills and visible results in citizen participation development are more likely to be reelected. 14

How can local governments approach the Model?

B. IMPLEMENTATION Introduction New management methodologies in the Model and various tools for implementation in local governance are designed with attention to the adaptive capacity in communities of different size and levels of citizen participation experience. It was not designed as a “one size fits all” model, but as a dynamic framework that can be adapted to a variety of circumstances. The citizen participation model can be implemented using two different approaches: the “Quick Results Approach” and the “Integrated Approach”. Each local government can decide which approach is the most appropriate for their circumstances. Smaller units can, for example, decide to implement only some of tools that they deem most applicable to their situation (quick results). Another reason to choose from a variety of approaches is capacity, as in the case of a small local government in which it might be difficult to organize a complex or sophisticated process. Also, it is sometimes more effective to successfully complete simpler activities, increase buy-in as a result of those successes, and then apply increasingly sophisticated tools. Local governments that already have some experience in promoting citizen participation and have sufficient capacity, might step into a more sophisticated approach from the beginning. “Quick Results Approach” vs. “Integrated Approach”

What does “Quick Results Approach” mean?

The simpler approach is “quick results”. In this approach, the local government selects and implements, based on its own evaluation of the level of citizen participation in the jurisdiction, the particular tools that it deems most relevant to address citizen participation. Examples of tools include: a city newsletter, if citizens are not well informed; contests among citizens groups, if that is needed to motivate citizens; or general public surveys, if there is a need to identify citizens’ perceptions of the local government’s activities/services.

What does “Integrated Approach” mean?

A more long-term approach is to develop an integrated citizen participation plan, in which the selection of tools to be utilized is based on more thorough analyses and determination of citizen participation goals.

How to implement the “Quick Results Approach”

Implementing the “Quick Results Approach” consists of three steps: Step 1. Start a dialogue about citizen participation issues in the community based on simplified analysis (scan of CP situation); Step 2. Determine the most optimal interventions (CP tools) and prepare implementation guidelines or action plans; Step 3. Implement the tools.

Step 1: Start a dialogue – conduct a citizen participation scan.

In order to choose the best interventions, the local government should conduct citizen participation “scan.” This could be as simple as a meeting of local government heads of departments or a council meeting. Participants should discuss current status of citizen participation initiatives including information sharing and communication, public-civic partnership, citizens’ role in the budget process, and local government administrative procedures to increase citizen participation. The outcome of such a discussion might be the realization that citizens receive information about local government activities only through regional media (newspapers and radio) and that there is limited external influence on the content; that is, journalists choose subjects themselves and that therefore, only major or scandalous issues are covered. Or, those contributing to the scan may feel that conducting meetings with citizens brings up many criticisms and demands, but few constructive conclusions. This can lead to a decline in attendance in such meetings. Having identified the main areas in which citizen participation is lacking, the local government can then select tools that will address those specific areas. Another approach is to start with the tools available and analyze each individually. It is important to evaluate the potential success of each tool, given the local government situation and needs (as outlined in the second step, below). If a local government wants to gather more objective information and opinions, focus group meetings can be held to contribute to the citizen participation scan. A focus group can be formed with community members; the goal would be to discuss citizen participation issues. The outcome of focus group meetings serves as an important basis for the selection and implementation of the tools. See Templates: • Template No 1: Citizen Participation Scan.

Step 2: Choose the appropriate tools.

Local governments who choose the “quick results” approach are implementing tools directly from the citizen participation tool kit. Designed to produce short-term outcomes, this approach is accompanied by certain risks, in particular that decision-makers are tempted to overlook important 16

risks, in particular that decision-makers are tempted to overlook important issues that need to be addressed. This approach is applicable mostly in smaller local governments or as a starting point (initial step) for developing citizen participation in a local government. The choice of tools should be based on the outcome of Step 1 (citizen participation scan). The selection should be based on three factors. The first is the extent to which a particular tool addresses critical issues and needs of local government, identified by the scan. From a previous example, developing and distributing a newsletter might solve the issue of access to information. The second factor is a subjective feeling for how the tool fits the local situation, to what extent it can change the current situation, and what the willingness for change is at the moment. The third issue is the feasibility of implementation, both in terms of complexity and the availability of resources. Step 3: Implement the tools.

After choosing the appropriate tools, an action plan should be prepared. It might be a very simple list of the steps in implementation, persons responsible, timing, and resources (a sample action plan will follow). Then, implementation should be monitored and, if necessary, modified. It is important to monitor not only the implementation of tools, but also their effectiveness in improving citizen participation practices. Taking the earlier example of the newsletter, we have to ask ourselves not only whether the newsletter was produced, but also whether the number of well-informed citizens has increased or the number or proportion of citizens who have been affected by the newsletter. If the effect is not as desired, the tool may need to be modified or another tool chosen. See Templates: â&#x20AC;˘ Template No 13: Draft Action Plan for The intervention â&#x20AC;&#x153;Printing Brochureâ&#x20AC;?.

How to implement the “Integrated Approach”?

The Integrated Approach is a long-term systematic activity focused on increasing citizen participation in the community. Local governments are advised to follow 6 practical steps for successful implementation: Step 1. Organize and conduct an “orientation seminar” on citizen participation. Step 2. Organize a citizen participation task group; assign staff to serve as members of the task group. Step 3. Conduct a series of task group workshops and summarize results for the Citizen Participation Integrated Plan. Step 4. Develop the Plan and present it to the Board and Council for adoption. Step 5. Implement the Citizen Participation Integrated Plan. Step 6. Monitor and evaluate implementation; update the Plan.

Step 1. Facilitation Organize and conduct an “orientation seminar” Seminar participants should include key local government staff members, on citizen participation. neighborhood council members, and local NGOs. During the seminar, participants will be introduced to the benefits of increased citizen participation, the philosophical importance and legal requirements on citizen participation. They will be also introduced to the citizen participation tool kit and ways to implement the tools. The seminar might be conducted by a citizen participation expert from outside of community (this is recommended, if possible). It might also be conducted by someone from the community, such as a local government employee responsible for public relations or an NGO representative. In general, the content of the seminar should be based on the content of this manual. See Templates: • Template No 2: Outline of The Seminar on Citizen Participation. • Template No 3: Presentation for The Seminar on Citizen Participation. • Template No 4: Summary of Seminar Participants’ Opinions on Citizen Participation.

Step 2. Organize a citizen participation task group and assign staff.

Members of the task group should be recruited from the local governments (both elected officials and staff members), NGOs and neighborhood councils. They should be willing and able to commit their time and knowledge to the task group. The best way is to ask participants at the orientation seminar to commit to work as part of a task group. This might be done in a very simple way, such as passing a sign up sheet around the room at the end of the seminar.

Step 3. Conduct series of task group workshops.

Workshop 1 The task group starts its work by analyzing all aspects of citizen participation in local government. The task group can use certain criteria to evaluate the current practice of information sharing, including: credibility of the local government; the general level of trust in the government; perceptions of the local government’s openness or effectiveness, outreach, access to the public, willingness to share authority, and respect towards citizens. This could be then summarized in a table or document outlining the strengths, weaknesses, opportunities, and threats relevant to citizen participation in local decision-making (or sometimes referred to as SWOT analysis). See Templates: • Template No.5: Invitation Letter Draft for The Citizen Participation Task Group First Workshop. • Template No.7: Summary of The Citizen Participation SWOT Analysis. Workshop 2 The purpose of the second workshop is to define citizen participation goals. A good approach is to first define critical areas (e.g. communication between citizens and authorities) and then define goals that can be achieved and measured. See Templates: • Template No.5: Invitation Letter Draft for The Citizen Participation Task Group First Workshop (modify). • Template No.8: Proceedings from The Citizen Participation Task Group Second Workshop.

Workshop 3 The next task is to identify interventions to address citizen participation goals defined in the second workshop. Brainstorming is the best way to generate ideas for the interventions. During the brainstorming session, tools from the tool kit can be cited but it is also important to go beyond the toolkit descriptions: to generate innovative proposals concerning specific situation in the community. See Templates: • Template No.5: Invitation Letter Draft for The Citizen Participation Task Group First Workshop (modify). • Template No.9: Citizen Participation Task Group Third Workshop Agenda. • Template No.10: Brainstorming Procedure. • Template No.11: Ideas for Interventions in Citizen Participation. Workshop 4 The purpose of the fourth workshop is to evaluate the ideas generated in Workshop 3 according to well-defined criteria and to choose the best ones. The next task is to prepare draft action plans for selected interventions. All of the plans will be included in the Citizen Participation Integrated Plan. See Templates: • Template No.5: Invitation Letter Draft for The Citizen Participation Task Group First Workshop (modify). • Template No.12: Evaluation of Interventions.

Step 4. Develop a Citizen Participation Integrated Plan and present it to the Board and Council for adoption.

The final outcome of series of task group workshops is The Citizen Participation Integrated Plan, a document that is then presented to the Board and Council for adoption. Because not all Board and Council members will participate directly in developing the plan, it is important to prepare a comprehensive presentation. However, because meeting time is usually limited, the presentation should also be concise and well thought out to minimize presentation time. The plan is a policy document. The adoption of the Integrated Citizen Participation Plan gives a green light for the further development of particular interventions and action plans. It is also important to note that the Plan should be considered as a working document that is constantly subject to change and should be monitored and updated on a regular basis. See Templates: • Template No.14: Table of Contents of The Citizen Participation Integrated Plan.

Step 5. Implement the Citizen Participation Integrated Plan.

After the Citizen Participation Integrated Plan is adopted, detailed action plans can be developed. They should include more details than draft action plans included in the Citizen Participation Integrated Plan, which contain only those details necessary for making policy decisions. It should be noted that more detailed action plans increase the probability of successful implementation of different tools. See Templates: • Template No.13: Draft Action Plan for The Intervention “Printing Brochure”.

Step 6. Monitor implementation, evaluate and update the Plan.

During the implementation stage, it is important to monitor results, evaluate and, if necessary, to revise the plan due to changing circumstances/environment in the local community. Changes needed for successful implementation Successful implementation of the plan depends on several basic elements in local community governance: • • • •

Leadership for change Understanding the issue Changes in administrative structure (responsibility) Resources for implementation

Who will lead the change?

When discussing leadership, we have to be aware that changes do not happen without someone to lead them. This leader must understand the need for change, have a vision of what the organization and the community will look like after changes are made, and be convinced of benefits that will result from change. The leader should have sufficient authority to take charge of the initiative, and should be supported by a devoted team of counterparts and/or colleagues.

Do we need the change at all?

Another important factor is to understand the need for change and the matter of change, not only within the team spearheading the change, but also with the rest of the organization. If the entire organization does not understand the proposed changes (new initiative), they may present significant opposition that could disrupt or halt the teamâ&#x20AC;&#x2122;s progress. To facilitate understanding throughout the organization, the process should be transparent, and an effort should be made to organize a sufficient number of seminars and trainings to inform the rest of the organization of the goals and expected benefits of the proposed changes.

How can improvements in citizen participation become sustainable?

If we want change to be sustainable or institutionalized, it must be reflected in local by-laws. This could include a change in administrative structure; for example, if we establish a special position to manage particular issue, e.g. citizen participation staff specialist. Or, it could be reflected in a job description, when particular tasks are assigned to the responsibility of a particular position.

Which resources are needed for change?

Finally, if we want changes to occur, we have to devote resources. It might be human resources, like allocating time to participate in the task force, or financial resources to purchase goods in support of implementation of particular tools.

How can we measure the change in citizen participation?

Monitoring and evaluation When monitoring implementation, it is important to pay attention not only to the implementation of particular tools (did we or did we not start publishing a newsletter), but also to monitor the actual impact of the tools on citizen participation (are more citizens attending the events advertised in the newsletter? Are fewer citizens registering complaints against local government decisions?). This is directly connected with previously defined citizen participation goals. Each goal should have a well-defined measurement mechanism, as well as a way to collect the information. Sometimes it is difficult to directly measure the degree to which a specific goal is being accomplished. For example, the goal of increasing access to information is very difficult to measure. While a survey could be conducted, surveys can be expensive because they require well-trained survey designers, interviewers and analysts. Other methods of measurement that are less expensive are often less reliable: for example counting the number of information channels available and number of people using 22

number of information channels available and number of people using those channels. TEMPLATES SET

TEMPLATE No.1:

Citizen Participation Scan.

TEMPLATE No.2:

Outline of The Seminar on Citizen Participation.

TEMPLATE No.3:

Presentation for The Seminar on Citizen Participation.

TEMPLATE No.4:

Summary of Seminar Participants’ Opinions on Citizen Participation.

TEMPLATE No.5:

Invitation Letter Draft for The Citizen Participation Task Group First Workshop.

TEMPLATE No.6:

SWOT Analysis Scheme.

TEMPLATE No.7:

Summary of The Citizen Participation SWOT Analysis.

TEMPLATE No.8:

Proceedings from The Citizen Participation Task Group Second Workshop.

TEMPLATE No.9:

Citizen Participation Task Group Third Workshop Agenda.

TEMPLATE No.10:

Brainstorming Procedure.

TEMPLATE No.11:

Ideas for Interventions in Citizen Participation.

TEMPLATE No.12:

Evaluation of Interventions.

TEMPLATE No.13:

Draft Action Plan for The Intervention “Printing Brochure”.

TEMPLATE No.14:

Table of Contents of The Citizen Participation Integrated Plan.

TEMPLATE No.1: Citizen Participation Scan.

Citizen Participation Scan Are local government officials aware of the need for citizen participation? How do citizens get information about local government activities? Is the information complete and accurate? Do citizens trust information issued by the local government? Are there channels for receiving citizensâ&#x20AC;&#x2122; opinion about activities? Are communication channels effective? Do citizens have a chance to influence local government decisions? Have citizens ever influenced a local government decision? Are there task forces created, if important analysis, deliberation, and decision-making are necessary? Are important community actors respected when important decisions are made? How are citizens involved in local activities? Are meetings with citizens effective, ending with constructive conclusions? Does anybody within the office take care of relations with citizens? Is there clear policy towards NGOs and civil initiatives? Are neighborhood councils utilized to promote citizen activity? â&#x20AC;Ś

TEMPLATE No.2: Outline of The Seminar on Citizen Participation.

Outline of the Seminar on Citizen Participation (Introduction to preparation of a integrated citizen participation plan)

Goals: To present a variety of citizen participation tools To start preparation of a citizen participation (CP) plan Expected outcomes: Participants gain knowledge of various tools Creation of task force (within the City) Begin discussion on the citizen participation plan Outline next steps Justification of activity: The City emphasized that it wants to improve direct communication with citizens, with neighborhood councils and between council members and citizens. It was agreed that CP activities will be implemented in two ways: Pilot implementation of a few CP tools (methodology of neighborhood meeting, â&#x20AC;&#x153;My visionâ&#x20AC;? contest, and general survey). Preparation of a integrated citizen participation plan Citizen participation is not intended to be a single distinct activity, like Public Relation activities, but as an important mode of continuous operation, in which the entire local government should work Any matter that deals with important decisions concerning citizens should be available to them. Citizen participation applies to finance, the budget, the level of services and many other issues. Participants: The seminar should be attended by those who deal directly with the issues to be discussed: key City officers, neighborhood council members, and representatives of local NGOs.

Agenda: During the seminar, general citizen participation issues will be presented. Additionally, tools and techniques to improve citizens participation will be presented, such as: Public surveys Gathering opinion on particular services Interviews (focus groups) Public meetings and hearings Citizen task force groups Open council meeting Open budget preparation process Local partnership programs Cooperation with business sector (e.g. Business Forum) Rules for cooperation with NGO (NGO chapters) One stop shop (most common administrative services in one hall) Administration services procedures

TV open discussions (e.g. Mayor answers questions) Information centers Press release Answers to most common questions (e.g. brochure) Information on particular services Catalogue of City services Local City newsletter Information boards City telephone book â&#x20AC;&#x201C; most important numbers Automatic telephone information (or toll free phone) City web page Budget implementation report brochure

At the end of the seminar participants will be asked to fill a simple survey on their opinion of the current status of some CP aspects in their City and their comments and opinions on areas for improvement. This would be an initial material to analyze the status of CP. At the end of the seminar, participants will be requested to sign up for a CP Task Group.

TEMPLATE No.3: Presentation for The Seminar on Citizen Participation. Slide 1

Slide 2

EVOLUTION OF CITIZEN PARTICIPATION

WHAT IS CITIZEN PARTICIPATION ? Public (citizen) participation is any process through which citizens influence public decisions that effect their lives and lives of other citizens - active: interaction with elected officials or the staff - passive: attending public meeting to get information

Slide 3

• Information (one way) • Communication (two ways) • Partnership (joint activities)

Slide 4

WHY CIVIL SOCIETY?

MODERN IDEAS OF XXI CENTURY • Devaluation of traditional democracy • The role of grass – root democracy • Community Development Corporations (CDC) experience in US • Civic / Information society • Decrease in social status • Subsidiary principle Slide 5

• Neither central nor local government can fulfill all citizens expectations • Without communication – inefficient solutions • 3 pillars of modern society: – Market economy – Democratic institutions – NGOs

Slide 6

WHAT IS A CIVIC ACTIVITY? • Writing letters, memos, enquiries? • Attending meetings? • Active participation in meetings: posing questions, discussing? • Solving local (involving citizens group) problem using own resources? • Solving local problem in partnership with city?

WHY CITIZEN PARTICIPATION? • Modern society / democracy (fashion?) • Because the memorandum is signed? • Because Mayor and Secretary think so? or we feel: • That city cannot be managed without citizens involvement • We can better fulfill our tasks

Slide 7

Slide 8

WHAT ARE POTENTIAL GOALS OF CITIZEN PARTICIPATION (1) • Better information on citizens expectations • Ensuring citizens influence on community issues between elections • Building mutual trust between LG authorities and citizens • Ensuring that budget expenditures are effective

Slide 9

WHAT ARE POTENTIAL GOALS OF CITIZEN PARTICIPATION (2) • Support to activities and investments • Higher involvement of citizens in joint activities • Building understanding among city staff that their role is providing public services • What else? (everybody can add himself)

Slide 10

IF YOU DON’T BELIEVE

NEW APPROACH MEANS CHANGES

Tangible (and other) arguments: • Additional resource for better services and development • Cheaper capital for development • Higher chances for reelection

• Changes require leadership and responsibility • Changes require understanding • Changes require administration structure • Changes require funding

TEMPLATE No.4: Summary of Seminar Participants’ Opinions on Citizen Participation.

Summary of Seminar Participants’ Opinions on Citizen Participation (elements shortened).

(Survey conducted during the seminar in Rijeka, June 2001) 1. Introduction – important facts concerning citizen participation The City of Rijeka is considered as one of the most advanced cities in Croatia in implementing CP and particularly in supporting NGOs. The first activities concerning CP in Rijeka started three years ago, with a survey prepared by AED through its Croatian NGO support program, driven by donations of the town, county and businesses. Recently, an NGO support center «RI-CENTAR» (an NGO incubator) was created. It supports newly created NGOs by providing office facilities, training and technical assistance. The City is funding various NGO activities on a competitive basis, but conditions and rules differ between different City departments; there is no general regulation from the City council level, such as an NGO chapter. Citizens are aware about their rights and are changing attitude on activities for their own community. (…) 2. Sources of information. Web site with information from City council sessions Media (Novi list, Radio Rijeka, Ri kanal, HTV are among the most important) Most frequently, through local media (newspapers, radio) Notes at the bulletin boards at neighborhood council Verbal communication Contacts with council members (…) 3. How citizens, neighbor councils and City authorities communicate. Citizens – neighborhood councils Citizens communicate with City institutions mainly through direct phone calls with members of the neighbor council, usually calling members at home, and expressing their problems in certain issues. Verbally – by telephone, meetings (in groups or for the whole neighborhood or area), in writing (…) Neighborhood councils - City: We transfer those requests to the neighborhood council Secretary and those are sent in written form to the City departments.

(…) Citizens and organizations - City: Verbally (direct conversation or by telephone); in writing (memos); in some cases indirectly through media (newspapers and radio); at stakeholders'meetings As a representative of the City office, I am in frequent contact with different Associations, upon their request, mostly resolving issues of implementation of their programs. I am providing information, seeking solutions and finally resolving requests of Associations, depending on decisions of Executive body or Office of the City. (…) 4. Proposed mechanisms for information and communication. Through electronic and printed media or especially by networking (so-called) “open telephone” Thematic panel discussions, workshops, round tables with other institutions and NGOs and asking citizens to participate directly Systematic education of children and youth about the possibility to directly participate in decision-making process (school, media, internet) Once a week, members should answer citizens’ questions Organize broadcast by TV, in which representatives of the City authorities are invited once a week and citizens may ask questions of interest to them Allow citizen participation in any City project that they find interesting: culture, sport... Councilors should visit citizens’ meetings Neighborhood councils should receive complete materials from City council sessions, as well as minutes of the sessions Feedback – in writing, personally, by phone, about problem solving Through thematic panel discussions related to specific area (e.g. communal problems and similar) City councilors should directly communicate with citizens in neighborhood council. (…) 5. Various opinions on information and communication. Local authorities are insufficiently communicating with the citizens and are therefore missing opportunities to build on citizens’ willingness and ideas. Reports from City council sessions are provided in ½ page article in local newspapers and reports of executive body sessions in only few sentences. I participate and obtain information about the work of local self-government through media and in contacts with City councilors. I think we should have a closer direct cooperation at the local level, especially with councilors of the neighborhood council. In order to improve communication it is important to process requests of citizens and provide feedback. We should improve this area because citizens should realize that their involvement is necessary; they should not expect Neighborhood council to resolve all issues with only 5 members. Better program development and implementation, better information/idea flow is needed. (…)

TEMPLATE No.5: Invitation Letter Draft for The Citizen Participation Task Group First Workshop.

Invitation Letter Draft for The Citizen Participation Task Group First Workshop

Mr., Ms. ...

Let me invite you to a first workshop of citizen participation (CP) task group, which will be organized on October 12 (Friday). 2001. The seminar will take place in City Hall, room no. We plan to start at 10.00. and complete at 14.00 The general goal of the Task Group is to prepare an integrated citizen participation plan, which would include citizen participation tools chosen from selection of tools presented during seminar in June. During first workshop we plan to analyze the situation of CP, start determining what goals City wants to achieve by facilitating citizen participation and also how those goals can be achieved. During next workshops we will continue determining selection of tools and then we will develop action plan for its implementation. We hope that you can devote your time to that important event. The workshop will be facilitated by representative of â&#x20AC;Ś , which is assisting us to promote CP in our City.

With best regards,

Mayor of ...

TEMPLATE No.6:

SWOT Analysis Scheme.

The SWOT Analysis Scheme

This diagram illustrates the strategic planning format for analyzing factors that affect your city’s ability to realize your vision for the economic future. To use it: • • •

Identify the forces and conditions that will help realize the vision, the positive factors. Identify forces and conditions that will make it more difficult to realize the vision, the negative factors. Separate each group into internal or external forces and conditions by asking: Does this factor describe the local situation and trends, local actions and policies that we can control or at least influence or is it an external reality outside our control?

TEMPLATE No.7: Summary of The Citizen Participation SWOT Analysis.

Summary of The Citizen Participation SWOT Analysis

What does a citizen of Rijeka look like? Team worker Cosmopolitan Self-oriented Ready to cooperate Reluctant â&#x20AC;&#x201C; passive for initiative Likes competing Insufficiently informed Willing to participate Tolerant Likes living in Rijeka, which is open multicultural City and educational center Strengths Ready for cooperation citizens Cosmopolitan citizens Most advanced City in citizen participation GUP (urban plan) involved citizens Incubator for NGOs Neighborhood councils (NC) existence Tradition of NC 2.5% funds from the budget for NGOs activities Healthy City project Public tenders for allocation of funds NCs have information about funds they have at disposal 10% of communal fee available to NCs Public solidarity Tolerant citizens People like living in Rijeka Open multicultural City Weaknesses Passive citizens, lack of initiatives Weak activities of NCs Lack of information about activities of NCs (and other levels of local governments) Insufficient public motivation Most funds (meant for NGOs) allocated for sports activities

Budget process - citizens are not informed about how the budget is prepared Different procedures in departments (allocation of funds) Unclear need for partnership relationship between citizens - City Citizens do not know where to find information There is no systematic information management No tradition in organizing round tables and public hearings Opportunities New law on local self-government New law on NGOs Law on information Urban Institute' s program «Rijeka – Healthy City» project «Children-Friendly City» project Mediterranean City / City linked to ecology Partnership as EU guideline Threats Social problems in Croatia Weak economy Concerns because of insecurity in the world Bureaucracy

TEMPLATE No.8: Proceedings from The Citizen Participation Task Group Second Workshop.

Proceedings from The Citizen Participation Task Group Second Workshop (Rijeka, October 23, 2001)

Areas of CP concern: Communication (including information flow and access, communication between councilors and citizens, communication on level of services required by citizens; Budget preparation process – excluded from communication because of its separate nature (including tools which allow citizens to have influence on budget preparation); Neighborhood council or “Mjesni odbor” (including role of mjesni odbor in decision making process, better information flow); Civil initiatives (including both initiatives of non – formal citizens groups and also formally registered NGOs). Citizen participation strategic goals: 1. CITIZENS BETTER INFORMED AND MORE FREQUENTLY COMMUNICATING BACK TO THE CITY. As result of: a. b. c. d.

Existence of clear information channels Establishing feed-back channels Creating trust to information provided Improved internal communication

Measuring: What does it mean: “better informed”? e.g. 5 – 10 % of citizens claim that they are better informed – it could be measured by survey and compared to baseline of previous survey results. As it is difficult and quite expensive to measure that way, meantime we can make assumption that if conditions to achieve desired situation (“better informed and…”) are fulfilled we will achieve the goal. The goal then can be measured by: There are at least 2-4 clear information channels, There are at least 3 feed-back channels, There is trust to information, measured for example by opinions gathered Through focus groups, Internal communication improved – measured by opinions gathered during staff meeting or through opinions polled from City office workers.

2. HIGHER LEVEL OF CITIZENS PARTICIPATING IN BUDGET PREPARATION PROCESS. Measuring: After discussion the base line is that at the moment nearly no citizens are participating personally and directly in budget preparation process. The goal is to achieve 5 % direct involvement, measured by counting people who will take part in various tools introduced during preparation process, e.g. public hearing, calls during TV discussion on budget, etc. 3. INCREASED ROLE AND ACTIVITY OF “MJESNI ODBOR” (MO). Measuring: More people will know about “mjesni odbor” (MO) activities: baseline is provided by survey conducted approximately 2 years ago, so we could increase it by 10 % and measure during next edition of survey. More people are informed and participate in “mjesni odbor” activities (including implementation of different initiatives). Programs and decisions of MO are taken into account by departments, board and council; Level of trust in MOs role increased among citizens (measured by citizens’ increased involvement and support) More funds are transferred due to results achieved by MO related to improvement in communities 4. INCREASED QUANTITY OF CIVIL INITIATIVES SOLVING PROBLEMS AND NEEDS OF COMMUNITY. Measuring: More initiatives observed on a level of MO or entire City – measured by polling figures from MO and departments (compared with baseline data from previous years). More NGOs registered. More initiatives financed by budget and other resources.

TEMPLATE No.9: Citizen Participation Task Group Third Workshop Agenda.

Citizen Participation Task Group Third Workshop Agenda

Citizen Participation Third Workshop

Introduction; Summary of previous workshop Agenda and goals for today

Finalizing brainstorming: Additional ideas Structuring of ideas Evaluation of its effectiveness in achieving goals Selection of interventions to be implemented

Preparation of individual action plans: Presentation of action plan table Preparation of one action plan Division into sub- groups and preparation of other plans

Conclusions

TEMPLATE No.10:

Brainstorming Procedure.

Brainstorming Procedure

PART ONE • •

Think of a number of approaches or strategies that we can use to address this issue. Think quickly and tell us your ideas without first considering if they are realistic.

TAKE A BREAK

PART TWO • • • •

Group similar ideas and combine duplicates. Consider the likely costs and potential benefits of each idea and eliminate those that are not likely to be worthwhile. Assess the probability of successful implementation of each idea and eliminate those that are not likely to be successful. Develop the most promising ideas into more detailed proposals.

Brainstorming is used early in the planning process to generate ideas and spur creativity. It is a two-stage process that first generates ideas and then evaluates them. Separating those two stages is crucial to the success of brainstorming. The brainstorming process is most effective in a group setting. Large groups may be broken down into smaller groups, which then report back the results of their brainstorming. The brainstorming activity is lead by a facilitator who defines the issue being addressed and then either acts as recorder or asks a member of the group to act as recorder. The facilitator encourages everyone to contribute in an open and judgment-free atmosphere. The recorder needs either a flip chart or a large blackboard on which to write. Everyone in the group should be able to see what the recorder has written. As each sheet is filled, it is taped to the wall. It is important to write down all the suggestions WITHOUT noting contradictions, overlaps, or making any kind of judgment about the ideas. Sometimes far-fetched ideas lead to a good strategy.

TEMPLATE No.11:

Ideas for Interventions in Citizen Participation.

Ideas for Interventions in Citizen Participation (Results of brainstorming)

BUDGET 1. Defining procedure (open budget preparation process) – resolution adopted by City council 2. Materials (posters, articles in local newspaper) with basic information on future budget (for discussion): (a) transparent criteria by budget proposals; (b) transparent criteria for budget use; (c) feedback address for complaints on budget 3. Public discussions on budget preparation 4. Talk shows between heads of offices and citizens giving explanations to citizens 5. Brochure (article in local newspaper) on current budget: (a) simple examples based on, for instance, 100 Kn spending (if budget is 100 Kn); (b) consequences for the City without budget / without taxes paid by citizens. NEIGHBORHOOD COUNCILS 1. Leaflets and brochures on MO activities - distribution through: schools (children), daily press, by mail, authorized persons 2. MO’s day 3. Round tables on specific issues, meetings with citizens with precise agenda 4. Press conferences on MO activities 5. Public invitation to citizens to submit their proposals on program concerning community. CIVIL INITIATIVES 1. Decision of the City to cooperate with NGO’s (NGOs chapter – rules for cooperation with NGO) + mjesni odbor (and their programs) 2. Various competitions and initiatives (local partnership; motivating volunteers – books, diplomas, theater tickets, etc.) 3. Informal meetings with various associations (e.g. coffee with Mayor) 4. Citizens’ task forces, round tables, interviews (focus groups), 5. Talk – shows on civil society on the radio and television 6. Socializing with citizens 7. Open phone lines 8. Written proposals 9. Publishing and distribution of leaflets about civil society COMMUNICATION 1. City newsletter 2. Brochure with information where citizens can come with their problems, information on projects being implemented in the City (catalog of City services with its procedures) 3. Book or box for complaints, ideas and compliments 4. Citizens survey 5. Open telephone 6. Direct broadcast of City council meeting on the TV (open council meeting) 7. Presentation of activities of local government 8. Meetings with Mayor (invitation to citizens for a cup of coffee) 9. Personal contacts with citizens 10. E-mail address City web page Other tools and techniques to improve citizens participation Special function within municipality responsible for public outreach

Education of City officials and staff

TEMPLATE No.12: Evaluation of Interventions.

Evaluation of Interventions Evaluation criteria: I. Leadership Representing the will and support to implement a particular tool, especially from the City point of view; there might be also leadership coming from a different body. (1-5) 1-little will; 5- high will II. Effectiveness. Representing to what extent a particular tool is leading to achieve the goal. (1-5) 1-low effectiveness; 5-high effectiveness III. Complexity (Simplicity) Representing difficulty (complication) of implementation and need for much preparation. (1-3) 1-high complexity; 3-low complexity (high simplicity) IV. Resources required (1-5) 1-high resource required; 5-low resources required Represent requirement for resources for implementation. CIVIL INITIATIVES INTERVENTIONS / TOOLS

CRITERIA I II 4 3

III 2

IV 5

TOTAL 14

11. Various competitions and initiative competitions (local partnership; motivating volunteers – books, diplomas, theater tickets, etc.

12. Informal meetings with various associations (e.g. coffee with Mayor)

13. Citizens’ task forces, round tables, interviews (focus groups),

14. Talk – shows on civil society in radio and television

10. Decision of the City to cooperate with NGO’s (NGOs chapter - rules for cooperation with NGO) + mjesni odbor (and their programs)

COMMENTS Good and rather necessary foundation for good cooperation between City and citizen’s groups; it sets good atmosphere for it Excellent tool to induce initiatives, employs jealousy (in a good meaning) and competition, which are very good powers; for the other hand evaluated as rather complicated and expensive Good tool, depends very much on availability of Mayor First time it could be organized as part of Rijeka NGO Forum It is more as procedure requirements then a separate intervention; it has to become a custom to call various citizens to join the task force (as in ED and PP) Evaluated very high, although it is not a direct tool to induce civic initiatives, it might through good presentation create good atmosphere for such an initiatives

15. Socializing with citizens

More an idea then a particular tool; the question is how it should be done Low evaluation as it doesn’t have direct influence; it’s rather communication tool Probably it’s over valuated in terms of effectiveness; the problem is how to make people understand civil society by reading then by participating; the brochure would have to be written in very clear language.

16. Open phone lines – written proposals

17. Publishing and distribution of leaflets about civil society

CRITERIA I II 4 4

III 1

IV 2

TOTAL 11

12. Brochure with information where citizens can come with their problems, information on projects being implemented in City (catalog of City services with its procedures)

13. Book or box for complaints, ideas and compliments

Very simple to implement, not always simple to manage (answering questions)

14. Citizens survey

Very good but rather expensive

15. Open telephone

16. Direct broadcast of City council meeting in TV open council meting

Very good communication tool, but citizens have to get used to that Very good communication tool

17. Presentation of activities of local government

Very similar to the tool described in as no 2

18. Meetings with Mayor (invitation to citizens for a cup of coffee)

19. Decentralization within the municipality office

Difficult to judge what will happen after invitation is realized, in Rijeka size of City it would have to be carefully thought about

20. Personal contacts with citizens

21. E-mail address City web page

22. Councilors on duty

COMMUNICATION

11. City newsletter

COMMENTS Very good tool, despite of evaluation rather expensive It could be simple brochure or set of leaflets indicating what issues City is dealing with and what is the procedure to have particular issue solved

Although it is good idea it doesn’t indicate the way how to do it Very easy, although number of people connected to internet is limited it is a future of communication Easy to say, more difficult to implement, it depends 100 % on councilors will to devote time for meeting citizens

TEMPLATE No.13: Action Plan for The Intervention “Printing Brochure”.

Action Plan for The Intervention “Printing Brochure” ACTIVITY (TASK) WHAT? Define target audience

RESULTS WHY? Target audience defined

RESPONSIBLE WHO? Task force in charge of brochure preparation, City' s representatives

PARTNERS WHO WITH? Representatives of organizations from the field of civil society development Experts in civil society issues

TIME WHEN? Week one

RESOURCES

CONDITIONS

Task force, premises, time

For the task force to agree on the target audience

Determine the contents of the leaflet

Define guidelines of the leaflet

As above

Week two

As above

That the task force agrees on the context of the text

Determine the number of copies Write the text

The number of printed brochures The first draft of the text

As above Smart

RI Center

Week 3-8 Week 8-12

Computer, author of the text E-mail

Availability of the author and literature

Present the leaflet' s text for comments Final version of the text Proof-reading

Comments obtained

Smart

Final version of the text

Smart

City, task force, experts City

Week 12-14

Computer, author

Comments received

Text proof-read

City of Rijeka

Proof-reader

Week 14-16

As above

Designer

Week 16-20

Money or a person in the City Money

Graphic design Printing

Graphically designed leaflet 1000 leaflets

As above

Printing industry

Week 20-22

As above

Distribution

Leaflet' s distribution

As above

Neighborhood councils, organizations, City institutions

Week 22-30

As above

Week two

TEMPLATE No.14: Table of Contents of The Citizen Participation Integrated Plan.

Citizen Participation Integrated Plan

Table of contents

1. The meaning of public participation. 2. Summary of analysis. 3. Public participation goals. 4. Interventions addressing goals. 5. Interventionsâ&#x20AC;&#x2122; implementation plans. 6. Implementation and monitoring.

Appendix: -

Outcome of brain storming - list of ideas

Evaluation criteria.

Part Three: CITIZEN PARTICIPATION TOOLKIT

Why do we need tools for citizen participation?

Many local government officials in Croatia and in other democratic countries worldwide have recognized the concept of citizen participation as an important element of overall community development. But there are significant differences in the actual level of citizen involvement in the decision-making process, as well as economic, cultural and other activities in their communities. These differences can be discerned even between communities that are very similar, with the same legal and institutional framework and similar natural, financial and human resources. Furthermore, it is not sufficient for a local government to simply understand that citizen participation is important and to have good intentions regarding the implementation of policies and procedures to strengthen citizen participation at the local level. This understanding and intention must be accompanied with specific knowledge, skills and tools that will facilitate the success of implementing any particular intervention. Surprisingly, this logical next step that transforms intention and understanding into practice is often neglected in modern public affairs. Frequently a â&#x20AC;&#x153;conceptualâ&#x20AC;? understanding of the issue and theoretical commitment to implementation is considered sufficient to declare an initiative successful. Neglecting the importance of procedures and tools used in the implementation phase of any public initiative will always produce the same result as in any other endeavor performed without skills and tools: the outcome will be useless or undesirable.

Quite often, when we talk about citizen participation and its merits, it sounds somewhat abstract and the benefits intangible. The toolkit brings a real, concrete dimension to that. How the tools are presented in this Manual?

Some of them are very simple, some more sophisticated. They address different issues and to different extents. Some of them cover simple actions, but perhaps cast them in a new light and provide useful suggestions. The goal is to show both individual tools and a more comprehensive approach that uses multiple tools in combination. This approach will be particularly useful for smaller local governments, which can pick and choose the tools most appropriate for their locality. It will also help them in applying the tools chosen. Though some tools appear quite similar, they have been defined as separate tools to more clearly highlight the strengths and weaknesses of each. The tools are presented in tables to provide structured information on each of the tools. The last line provides information on an implementation example for each tool. There is not always a Croatian example of implementation, but we hope that over time the publication of this manual will result in additional case studies that can be incorporated into future versions of the manual.

Below is a selection of potential tools (interventions) that can be utilized in order to improve citizen participation. They are grouped according to function into four different categories:

Information Tools

• • • • • • • • • • • • •

Communication Tools

• • • • • • • • • • • • •

General Citizen Survey Personal Interview Survey Questionnaire on Service Quality Focus Group Feedback Channels Citizen Response Card Radio/TV Program Public Hearing Neighborhood Meeting Successful Meeting Youth Contest Intranet-Internet System Internet Presentation Portal IPP)

Partnership Tools

• • • • • •

Local Partnership Program Planning for Public Spaces Local Festival Business Forum Citizen Advisory Group Task Force

Administrative Tools

• • • • • • • •

Policy on Citizen Participation NGO Charter Procedure for Financing Civil Initiatives Transparent Budget Preparations Process One Stop Shop Administrative Service Procedures Youth Council Citizen Participation Staff Specialist

Open Council Session Public Information Center Information Book Public Information Board Frequently Asked Questions (FAQ) Automated Telephone Information Newsletter Leaflet Mayor's Budget Message Budget-in-Brief Press Release Meeting Agenda Published Minutes

INFORMATION TOOLS What is the purpose of Information Tools?

This set of information tools is designed to improve the availability of information related to service provision, the decision-making process, responsibilities and overall performance of elected officials and local government employees. Access to accurate and reliable information is one of the main preconditions of the transparent decisionmaking process in a democratic society. Only informed citizens can participate actively in local government activities and be meaningful members of modern, civil society. Access to information is a basic human right that should be protected and facilitated by government at all levels, particularly the local level. If citizens have accurate information about how much the government is spending, on what, and why there is not enough money for all projects, they are more willing to contribute their own resources to address their various problems and needs. Only those local governments who are capable of providing sufficient information to their citizens will be able to gain the trust of the constituents they have been elected to represent. Sufficient information flow is also the first step toward establishing an active role for citizens in community life: communication with local government, their influence on decision making process, involvement in planning and implementing community based projects and establishing partnership with local government and business. The successful implementation of these tools will also demonstrate the local government' s commitment and ability to apply new management methods and skills developed in contemporary democracies. Local government, after “taking care” of provision of information can then move to more sophisticated category of communication tools.

What is the selection of The selection of Information Tools includes following tools: Information Tools? • Open Council Session • Public Information Center • Information Book • Public Information Board • Frequently Asked Questions (FAQ) • Automated Telephone Information • Newsletter • Leaflet • Mayor' s Budget Message • Budget-in-Brief • Press Release 5

• •

Meeting Agenda Published Minutes

TOOL WHEN TO USE

OPEN COUNCIL SESSION • • •

DESCRIPTION

To increase transparency in decision-making To increase contact and communication between citizens and elected representatives To educate citizens on local government issues

During the period between elections, city council decisions and activities (including regular council sessions) are one of the most important elements of the contemporary democratic political system. Often, the public simply does not understand the complexity of decisions made by the council, and the circumstances, constraints, and obstacles the council faces in making these decisions that shape local policy. Though there is no legal obligation requiring open council sessions, inviting the public to observe council meetings first hand removes an important barrier between citizens and local government. If the normal venue is too small to accommodate all potential spectators, the session can be announced as “public,” but with seating on a “first come, first serve” basis. Additional coverage can still be provided by a local TV or radio station. Open Council Sessions are a good opportunity for citizens simply to observe how local government works and to gain information on which activities local government is undertaking and how they plan to do so. It is not intended as a mechanism for gathering feedback or a forum for discussion between local government and citizens. Typically, citizens attend these sessions (or watch them on television) simply as observers, not as participants.

STEPS

POTENTIAL COSTS

1. Prepare a decision on open council sessions for adoption by the council. 2. Advertise the open council session in the local media (press, radio, TV, if available). Consider issuing a special invitation to schools to encourage teachers to utilize open sessions as element of education about the democracy. 3. Arrange the venue to accommodate spectators. Attention should be given to making the spectators welcome and comfortable. 4. Welcome spectators directly upon commencement of the meeting. 5. Establish clearly the ground rules for citizens who are observing the meeting. The ground rules have to prevent interruptions in conducting the session. 6. Although this is intended as a mechanism of information sharing rather than discussion, consider reserving time at the end of the meeting for a question and answer session. Expenses: • Advertising fees

â&#x20AC;˘ Purchase of additional chairs for a public venue Administrative Costs: â&#x20AC;˘ Staff time to prepare the open session EXAMPLE

City council decision to broadcast council sessions in local TV, Rijeka

TOOL WHEN TO USE

PUBLIC INFORMATION CENTER • • • •

DESCRIPTION

To distribute information on municipal services and activities To accept, record and respond to citizen complaints To assist citizens in solving problems associated with municipal services To save time of other staff members and make their work more efficient

A Public Information Center provides information to citizens to help them navigate the local government systems and procedures. Whether you choose a separate office or a desk located in a central hall will depend on the variety of service you offer and the staff and resources available to support it. Ideally the information center would be located in City Hall or another public office building that is frequently accessed by the majority of the population. A primary goal of the information center is to make each visit to the local government as easy and efficient as possible. It might also provide basic information on municipal structure and distribution of responsibilities and is a great place to distribute newsletters, pamphlets, and any other information. [Refer to the Newsletter and Leaflet tools.] The Information Center can, first of all, provide information to citizens. It can also can provide and collect permit applications and accept citizen complaints. It may also act as an intermediary between citizens and government service offices to relay complaints, requests, and new procedures or general information. In short, it can serve a variety of functions and can easily adapt to changing needs and resources. Public Information Center can focus also on particular target group. For example, the Center can provide entrepreneurs with the information necessary to start and run a business.

STEPS

1. Decide what information will be available at the desk; this list can evolve as different needs present themselves. The decision on the list of information that should be relayed to citizens on a regular basis can be made based on a citizen survey, or on consultation with department directors. 2. Decide where to locate the desk or office. It should be located somewhere easily visible and might have posters or public lists clearly posted next to the door or on the surrounding walls. A visible sign at the entrance to the building should indicate where the information center is located. 3. Identify the person who will be the head of the Information Center. This person should be knowledgeable, resourceful, patient and have a pleasant demeanor (good communication skills are essential). 4. For every type of information (e.g. on services), establish a channel of communication between the employee of the Information Center

and other local government employees and administrative units. 5. Establish a method for recording all questions and complaints and prepare a regular report for the Mayor, heads of each service handled by the office, or Council. 6. Prepare information on local government services, if the information has not already been prepared for another purpose. This may be in the form of a general leaflet (book) about all services or it may be a specific leaflet for each service. These leaflets should be available at the information desk and at the offices of the sectors that have some of their services provided by the information desk. [Refer to the Administrative Service Procedure tool.] 7. Prepare for distribution other materials, like copies of local government minutes, laws that have been passed, newsletters, citizen response cards, survey results, application forms, posters advertising events, and notices of public hearings. In short, anything that you want to communicate to your citizens can be available in this office. It will eventually get the reputation for being “the place to go” to get information. 8. Post the hours of operation on the local government building doors, at the office itself, and in the newsletter - the Information Center needs to have a regular schedule and someone always has to be present in the office during opening hours. 9. Organize an opening ceremony. Invite citizens to visit the Information Center. Ask the TV and radio to come and publicize the services that you will be offering. You might ask school children to make signs for the center to celebrate its opening. Anything that draws attention to the services. POTENTIAL COSTS

Expenses: • Adaptation cost of the venue; printing costs for brochures, leaflets • Cost of additional personnel (if needed) • Costs of computers and Internet connection (if not already present) Administrative Costs: • Staff time to design the center and prepare the materials .

EXAMPLE

Leaflet on Information Center for Entrepreneurs in Rijeka

INFORMATION BOOK

TOOL WHEN TO USE

• •

DESCRIPTION

If there are not sufficient sources of information about key names, telephone numbers, email and office addresses for local government staff members and specific services If the procedure for accessing specific services are not clear

City Information Book is a publication providing information on the most important local government issues and functions as a directory of local government staff members and specific services (e.g. include “how to” directory for the most popular, new, or most frequently accessed services). This could be a fairly limited publication, such as a “City-in-Brief” document containing only names and contact information. It could also be a more detailed book that would contain general information on city authorities, telephone numbers, working hours, organizational chart, board, council, committees, advisory groups, etc. Such a book could be distributed among citizens along with a local newsletter or placed in public buildings. This can be done in conjunction with a brochure on city services, explaining procedures and providing examples of application forms, or this additional information can be included directly in the Information Book. The material gathered and organized in the Book can be also posted on a local government website.

STEPS

1. Analyze the need for information and make initial decision on what you what to include in a publication. 2. Consider cooperation with a local organization to publish the Information Book, because they often have a different but valuable perspective on what information is important; they also have access to different sources of information that can be quite helpful. 3. Check copyright restrictions on information that is already published by the local telephone company or other organizations. Evaluate how much personal information should be provided on individual staff members (for example, home addresses of local government employees should not be listed, but work addresses should). 4. Check availability of additional information that might be included, such as working hours of agencies and local organizations, their scope of activities, etc. 5. Design the layout and format; be concise and choose a format that is clear and provides information in an easily accessible way. To the degree possible, it should correspond to the format (font, colors, logos, etc) of the newsletter, leaflets/pamphlets/brochures, local government letterhead, etc. [Refer to the Newsletter, Leaflets and Press Release tools.] It should also include an index that clearly indicates where to find specific information. 6. Select a method of printing or publishing the information. Often this

can be done in the local government office in a very simple and cost efficient way by designing a short and simple publication and producing photocopies. However, a longer or more complicated item can also be published professionally and bound like a phone book. 7. Distribute copies to the public information office and ensure that copies will be available in all local government offices. House to house delivery, either in person or through the mail, is also a possibility. Decide who will be responsible for maintaining the supply in public areas and who will coordinate the production when additional copies are needed. 8. Agree on a timeline and team to update the information (ex. after each local government election). Be sure to budget for production expenses at each time the information will likely need to be updated. POTENTIAL COSTS

Expenses: • Printing/copying and delivery cost • Professional design, if required Administrative Costs: • Staff time to gather information and develop material

EXAMPLE

City Information Booklet of Glina

TOOL WHEN TO USE

DESCRIPTION

STEPS

POTENTIAL COSTS

TOOL

PUBLIC INFORMATION BOARD •

To inform citizens about local government activities, council decisions, and service improvement or management initiatives, etc.

A Public Information Board is one of the simplest ways to share information. It can contain information on a variety of topics, but care should be taken to keep the board tidy and information current. Particular items to display include information on new council resolutions (at least, titles of the new resolutions and where to find a copy of the full resolution), highlights of local government initiatives and activities (especially capital investments). If space allows, the board can also include information from community organizations, such as NGOs and neighborhood councils. 1. Decide what information will be posted, who will update the information, and how often. 2. Select the location for the Board. Information Boards should be displayed in public space where people tend to gather, such as a bus or train station, store, shopping center, central market, etc. 3. Choose an eye-catching design for the Board. Because there are often multiple information boards clustered in the same public place, the Board should be designed with a logo, shape, or colors so that it is easily recognizable as the local government information board. It should also have a clear and prominent title, like “News from the city”. Choose a design that will minimize damage to both the Board and the information posted. 4. Construct and install the Information Board. Depending on the local situation, it may be best to contract with a construction firm to do this. The durability of the Board is important, because it should last for several years and resist weather. 5. Check the Board regularly to update outdated information, to replace copies that have been damaged, and to insure that it is still in good condition. Depending on the location (and cost), it might be advisable to laminate all items that will be posted on the Board. Expenses: • Materials to construct the Board • Construction expert to build and install the Board Administrative costs: • Staff time to update information and monitor the Board

FREQUENTLY ASKED QUESTIONS (FAQ)

WHEN TO USE

• • •

DESCRIPTION

To provide standard information on a variety of common questions to a large audience quickly and easily To distribute basic information on local government or other activities and functions to a wide and varied audience To make more efficient use of local government employees time

Frequently Asked Questions is a tool, selected by many organizations to provide a set of standard responses. These are the most common questions that are raised by citizens when they call or visit a local government office. They can also be “leading questions” prepared by the local government to share information considered important by local government staff, but citizens do not often request that. Answers to frequently asked questions could be published in the press, on a web page, or in a specially prepared brochure. [Refer to the Leaflet tool.] Publishing the answers provides more complete information to citizens and shortens the communication path, which enables local government staff to utilize time in more efficient way.

STEPS

1. Gather topics from different sources of communication, including records of telephone calls, letters, e-mails, and in person visits to an office, and/or lists of questions raised at public meetings. 2. Group the questions by areas, types of services and develop answers. This will help citizens to find the answer to a particular question. 3. Publish the list of questions (and answers) in the local press or media, in a special newsletter or brochure, on a website, or through any other means of communication with the public that might be more appropriate to the particular case. 4. Monitor the use of the publication and update the list of questions by adding new ones or, if necessary revising answers that are unclear or incomplete.

POTENTIAL COSTS

Expenses: • Printing costs (if brochure is printed) Administrative Resources: • Staff time to gather questions and prepare responses

AUTOMATED TELEPHONE INFORMATION

TOOL WHEN TO USE

• • •

DESCRIPTION

To provide commonly requested information on an as-needed basis To have a source of immediate information that is available 24hours a day For local governments who have a high volume of telephone inquires or limited telephone lines

Automated Telephone Information is an easy and efficient way to provide commonly requested information on local government activities. Though there is a lot of information that is important to make available to the general public, not everything can be covered by any single means of communication. The Automated Telephone Information line provides information that is relevant to the majority of the population, including dates and times of public meetings, information about local taxes, upcoming election dates and information, brief information about current activities (e.g. what is under construction, current hot topics). This information can be automated and accessible through an easy touchtone menu. In addition to the automated information (accessible through the set menu), there should be an option to speak directly with an operator for additional information. An advantage of this system is that information is available around the clock (with the exception of additional information provided by the operator). Additionally, local governments willing and able to devote the necessary resources can establish a toll – free number. An automated telephone system is intended for larger local governments with greater resources, but smaller local governments with limited staff time to respond to telephone inquiries could also consider using this tool. If for particular local government, automated information is too complicated to implement, a regular telephone information (with an assigned telephone number) should be still considered.

STEPS

1. Collect the most frequently asked questions from all departments and analyze the questions. 2. Prepare answers that are simple and direct. Keep in mind that the system is intended for all segments of the population, even those who are not accustomed to modern technology. Also, because spending a long time on the phone can be frustrating and expensive, answers should be limited to 1 minute or less (with the speaker enunciating clearly and speaking slowly). 3. Consult the telecommunication company about installing the system. 4. Prepare a small leaflet or brochure with operating instructions (including the menu and directions on how to navigate to the required information). Distribute this in local government offices,

e.g. Public Information Center. [Refer to the Public Information Center tool.] 5. When the system is ready to be inaugurated, advertise the new phone number in local media. A party or press conference could also be held to mark the launch of the system, which would provide an opportunity to demonstrate how the system works and sample the information available. POTENTIAL COSTS

Expenses: • Hiring a firm to design and install the system. • Setting up and maintaining a toll free line Administrative costs: • Staff time to prepare the answers to commonly asked questions • Staff time to serve as “operator” for assistance or other questions not answered by the automated system

EXAMPLE

Toll- free Telephone Information of the City of Rovinj 0800 200 034

TOOL WHEN TO USE

NEWSLETTER •

•

DESCRIPTION

If citizens are not informed to a sufficient extent about local government issues (e.g. community goals, fees and collection procedures, new laws or regulations, service changes and improvements) To provide information, thereby encourage feedback and dialog between citizens and local government

A newsletter is a local government publication designed to increase transparency by telling your citizens about the city functions and activities. A newsletter is published on a regular basis: weekly, biweekly or monthly. It contains short articles about city functions and activities. It may also contain new laws and an explanation of these new laws, decisions and announcements of the Council, and notice of public hearings or other city activities. Information on the budget may be published with short graphs or charts as explanation. A local government newsletter is usually distributed free of charge. It is a credibility building, informational product that raises awareness of the activities of your local government in the minds of your citizenry.

STEPS

1. Appoint an editor to be responsible for the newsletter. The editor should have good writing and interpersonal skills, especially in terms of having credibility with the other local government staff members so that everyone will feel confident about sharing information with the editor to include in the publication. The editor must also be very familiar with local issues, local government activities, and the local public. 2. Encourage the editor to collect samples of other newsletters. From these samples, the editor should suggest a format for the publication. Make a point to evaluate which techniques have been most successful for other localities, and adopt those methods to your newsletter. 3. Design the newsletter. Local government staff should collaborate with the editor to determine the content. • Determine what kinds of things to include; also determine what kinds of things not to include. • Decide who will approve the content. Usually this is a senior member of the management team; it may also be the Mayor or the Deputy Mayor. Regardless, this person needs to understand the purpose of the publication. • Choose a standard layout that will be used for every newsletter. This allows you to focus on the content of each subsequent issue without wasting time considering format or design each time the newsletter is published. • Make a list of sources that could contribute articles to the newsletter. Potential sources of information are sector heads, council members, heads of cultural activities, or anyone with

4. 5.

7. 8. 9.

information about city activities. The mayor may also submit a letter specifically prepared for the publication. • Prior to starting work on the first issue, prepare a start-up timeline. Include the target date to publish the first edition. Set milestones for every phase of development leading up to that date. Also include deadlines for submission of articles, to finalize content, and print the publication and budget time for distribution. • Decide how many copies and how often it will be published. Ensure that the cost of preparing and distributing newsletter is included in annual local government budget Be aware that not all news is good news. Sometimes you must tell your citizens things that they will not like to hear, such as an increase in taxes or water fees. It is also important not to omit descriptions of local government initiatives that were unsuccessful. By telling the full story truthfully, the publication (and by extension the local government) increases their credibility. Include graphics such as pictures, charts, and maps, which increase people’s interest in the publication. A picture is worth a thousand words. Pictures and charts can also help people understand an issue more easily and quickly. Use short sentences, short paragraphs, indented paragraphs, and lots of sub-heads for the people who will be "scanning through" your publication. Use the publication to distribute Citizen Response Cards or written survey questions. Publish the survey results in the next issue. Consider utilizing variety of ways to distribute the publication: through schools, with pension or social assistance payments, and at the Information Center are several ways. [Refer to the Public Information Center tool.] Ask newsstands to distribute it for free. Copies can also be placed at libraries, cafes, and other places where many people visit.

POTENTIAL COSTS

Expenses: • Editors fees, • Coping or printing costs Administrative Costs: • Staff time to gather and prepare information for the newsletter

EXAMPLE

Newsletters of Viskovo, Medulin and Glina

TOOL

LEAFLET

WHEN TO USE

• •

DESCRIPTION

To explain specific topics (such as services, laws, and regulations) to a large and diverse audience If other ways of explaining the issues are not effective or fail

Leaflets (along with pamphlets and brochures) can be used to convey information on a variety of topics. They are often used to describe changes in services, laws and regulations in relation to services the local government provides. They can also be used on a short-term basis to introduce or do public outreach for topics like voter registration and local election guidelines. Each leaflet should focus on only one service or issue; because of this, leaflets are often issued in sets so that more than one issue can be covered at the same time. For example, leaflets on municipal waste collection, municipal water service, and municipal heating can all be issued at the same time, but each topic should be treated in a separate leaflet. This is because all information in a leaflet should be relevant to the audience who is reading it. It should include information on how to access the service and the contact information for the sector that provides the services or is responsible for implementing the law or regulation. A leaflet is always written in very clear language without a lot of technical terminology. This is to make the information as accessible as possible to a wide range of people, most of whom are not technical experts on the topics covered, and who will be more interested in how the issue affects them than the technology or specifics behind the issue itself. It is also common to use graphics, pictures or diagrams, again because this is an easy way to make these publications more “user friendly.” A leaflet does not have to be very sophisticated (and thus expensive to produce). It could be as simple as alone-page copy folded (for example into three parts).

STEPS

Identify the services that the local government provides and the laws and regulations that most impact citizens’ lives (or because of complexity need explanation the most). You may want to ask each sector head to help identify these. Appoint a person in the relevant sectors to draft a short explanation of identified service or regulation. The leaflet should be simple, easy to understand and usually limited to one or two pages. Any special terms should be clearly defined. Appoint an editor to supervise the production of the leaflets. He should create a format that can be used for all leaflets and edit the drafts from the sectors so that the language is uniform and easy to understand. Print enough leaflets to enable you to distribute them at the Information Office and other public places. [Refer to the Public

Information Center tool.] Periodically review the leaflets to determine if any need to be updated or if new leaflets need to be published.

POTENTIAL COSTS

Expenses; • Printing costs • Optional: fees for the editor Administrative Costs: • Staff time to identify issues and prepare materials

EXAMPLE

Leaflet on Mjesni Odbor, Rijeka

MAYOR'S BUDGET MESSAGE

TOOL WHEN TO USE

• • •

DESCRIPTION

To share information on the anticipated upcoming budget with counselors, staff members, budget users and citizens To clearly explain goals and constraints of the budget for the coming year and to show comparisons to previous years To increase transparency in the budget preparation process

The Mayor’s Budget Message is a document or set of documents that contains information explaining the draft budget that has been developed by local government staff and the Board. While it could include a copy of the draft budget, the budget itself – with no additional explanation – is typically very difficult for non – professionals to understand. The budget message contains information that helps the average citizen understand the components of the budget and the decisions behind allocation of funds to certain departments or activities. Important elements include an explanation of budget goals, constraints, comparisons with previous budgets, and pointing out trends over time. The materials should be designed in a way that will facilitate and prompt discussion of the draft budget before the council formally adopts it. The budget message should be prepared using simple language that can be understood by the average citizen. Topics should be presented as clearly and simply as possible, with sufficient details to explain the issue but without deviating from the topic or providing so much information that the average citizen will end up confused or missing the main points of the message. The Mayor’s Budget Message is an important element of the transparent budget preparation process [Refer to the Transparent Budget Preparation Process tool.], as it provides a clear explanation of the budget in a way that encourages meaningful discussion (for example during public hearing).

STEPS

1. Identify key budget decisions and policies included in the budget. This step includes the activities of the overview and the analysis of the existing strategy, adopted mayor' s guidelines and the defining of priorities favorable for the budget message. It also includes an overview of all the requests from budgetary and extrabudgetary users for the funds. 2. Review and analyze previous budgets (e.g. three years back), and consider long-term plans and their links with the current budget. This step includes the revision and analysis of the projects and activities, which were transferred from the previous period to the current (planned) year in which they will be continued. Then analyze and review the new projects and activities, which are to be launched in the current budgetary year (all correlated to the existing capital investment plan). 3. Summarize the key issues and the main budgetary actions and

themes. Emphasize three to four main and key budgetary activities, which will take place in the current budget, based on which the budget will be presented and promoted. For example: increased productivity, privatizing services, no new taxes and fees, increasing services to underserved areas. Use simple words to explain the reasons for the changes in the budgetary relations, figures or trends or the introduction of new projects and program initiatives. 4. Prepare the document of budget message. This final step incorporates the materials prepared so far, their integration into the final document, enclosure of the required summarized financial and economic summary data, as well as the data about the programs in the budget. Charts and tables accompany them, and the final sentence closes it all addressing the citizens as the announcement of future steps of the local administration regarding the orientation towards transparency. 5. Determine a way of publicizing the document – for example the document (or part of it) might be published in local newspaper or placed on the local government’s web page (to facilitate discussion on the budget before Council starts debating about that). POTENTIAL COSTS

Expenses: • Cost of providing photocopies or printing Administrative Costs: • Staff time of various members of financial department

EXAMPLE

Elements of Mayor’s Budget Message from the City of Crikvenica

BUDGET-IN-BRIEF

TOOL WHEN TO USE

DESCRIPTION

• •

To present and explain decisions on budget priorities To present and explain the role of the budget, the constraints associated with creating a budget, and the components of the budget itself

A Budget-in-Brief is an abbreviated version of the official local budget (adopted by council) written in clear and concise language that is easily comprehensible to all local citizens. Usually, a Budget-in-Brief consists of an introduction by the Mayor in which he explains the city’s priorities and the most important issues in the budget. This is followed by an explanation of the sources of revenues and expenditures, perhaps divided by program or department. Special attention in the Budget-inBrief is devoted to capital expenditures [Refer to the Transparent Budget Preparation Process tool.]. Budget-in-Brief preparation is supported by the Financial Analysis Model (FAM) software, which has been distributed to all local governments in Croatia. This software allows the user to structure expenditure by programs, which can more easily highlight the goals and priorities of the budget. It also allows the local government to produce different types of diagrams to support the figures in the budget. The Budget-in-Brief is usually published as a brief and easy to read leaflet. It can also be posted on the local government web page in addition to printing hard copies. As this is often the first exposure that many citizens will have to the budget, it is important to define key terms, like the word “budget” itself, as well as basic responsibilities of local government. In order to create an aesthetically pleasing and informative document, it is ideal to incorporate professionals (such as local journalists) into the design process. A Budget–in-Brief document may also contain general information on the local government, such as the members of the board and the council, the administrative structure, or other information related to the official budget.

STEPS

1. Define the goal of the document. Remember that the Budget-inBrief is developed in a way to fulfill several goals that are interconnected and function as a whole (transparency, confidence and higher level of understanding about tasks the local government is performing, education of citizens about budget matters, involvement of citizens in the decision-making process, possibility of control by citizens). 2. Define the approach to presentation of the Budget-in-Brief. The approach to the presentation refers to the group to which the Budget-in-Brief will be presented. As the intention is to inform the general public, the approach is focusing on the education and preparation of citizens to better understand the future document. 3. Define the contents and structure. The contents of the Budget-in-

Brief should be short, easy to skim, written in an understandable way and easy to read. The number of pages of the Budget-inBrief can vary from about 4 – 16 pages. Charts, structural columns and other graphic elements to make it easier to understand should follow the text. The Budget-in-Brief should be structured in a logical way by constituent parts of the budget, but terminology should reflect every day ways that people talk about revenues, expenditures and projects; it is not necessary to use the legal terminology that is included in the formal budget. It is also possible to use the opportunity and the space in the document and inform the citizens about the elementary data on budgetary users. 4. Define the distribution of the Budget-in-Brief. The form of distribution is most frequently defined according to the local government population. For local governments with up to 50,000 inhabitants, which represents about 15,000 households most frequently is chosen the written form (small A5 size booklet) that is distributed in two ways: (1) delivery to mailboxes of each household or (2) inserting the Budget-in-Brief as an appendix to the major and best-selling regional newspapers. For local governments with more inhabitants, the best option will be to insert the booklet to regional newspapers. Additionally Budget-inBrief can be in the electronic form posted on local government web page. POTENTIAL COSTS

Expenses: • Printing costs (will vary depending on outline, amount of information included, color or black and white printing) Administrative Costs: • Staff time to prepare the information

EXAMPLE

Budget-in-Brief from Municipality of Omisalj

TOOL WHEN TO USE

DESCRIPTION

PRESS RELEASE • • •

To communicate periodic data on service performance To provide the public with updates on the city’s financial status Any other time there is a need to communicate important information through the press

A press release is a short (1-2 page) document containing specific information on a topic that the local government wants to communicate to the general public through a variety of sources. It is an important tool to ensure that all media outlets have access to the same information, and that all information reported in the media is accurate. A press release can form the basis for a newspaper article or TV story, or it can be published in the media with no changes at all. A press release should address only one topic; if multiple topics need to be addressed at the same time, multiple press releases should be issued. Each release should include the same basic information: who, what, when, where, and why – and sometimes how. These five elements should be addressed in the first paragraph of the press release so the reporter or editor (and eventually, the reader) knows immediately what the release is about. The second paragraph should contain the most important information about the topic, which may be necessary to convince the reporter or editor that the story is of interest to their audience. A press release contains facts. If the release contains opinions, these should always be put in quotes and the person being quoted should be identified.

STEPS

Issuing a Press Release: 1. Appoint a person to be responsible for issuing all press releases. This ensures that there is always a single source that the press can contact for information, and that multiple releases are not issued on the same topic. 2. Prepare a list of all media to whom Press Release should be sent. This list should include: • Names of the individuals at each media outlet responsible for receiving press releases • Address, phone, fax number and e-mail address of each media recipient • Deadline for publication • A copy of the form that each media outlet prefers or requires for submission of press releases. 3. At the top, type the name and address of your local government, or print the release on local government letterhead. Include the name, address and telephone number of the person to be contacted in case additional information is required. This should be the person responsible for issuing all press releases. 4. Insert the date that the material may be used by the press in the upper right hand portion of the first page. For example, you may want to give

the press information in advance of an event, but ask them to use it only on the day of the event. If they may use it immediately, type: "FOR IMMEDIATE RELEASE." This means that the editor can use it at once. 5. Write a press release in such a way that it will not be confusing or inaccurate if the part at the bottom is cut off. A newspaper will generally shorten a story by cutting off the last paragraph, then the next to last, and so on, if the story is too long for the space available. 6. When sending background material or complex reports, always put a press release on it as a cover. The press release should include a summary of the material that can be used by the media to explain what the report or material is about. 7. If possible, obtain training for this person in how to prepare press releases and to understand the problems and advantages of dealing with the press. Distributing the Press Release: 1. Decide how to distribute the press release. Methods include: • E-mail (if available and feasible) • Fax • Hand delivery – especially for emergency press releases, or if communication infrastructure does not allow for timely delivery of fax or email messages • Surface mail, if you have sufficient time between issuing the press release and the release date 2. Make press releases available at your citizen information offices. [Refer to the Public Information Center tool.] 3. Give a copy of the press release to all municipal staff involved in the issue. 4. Post on Public Information Boards and through other information channels. POTENTIAL COSTS

Expenses: • Copying costs Administrative Costs: • Staff time of appointed person(s)

EXAMPLE

Press Release Format

TOOL WHEN TO USE DESCRIPTION

MEETING AGENDA •

For all local government meetings, both internal and with citizens

A written agenda for meetings lets the meeting participants and others who may have an interest in the meeting know precisely what will be discussed and what decisions can be expected. The agenda defines the purpose of each meeting and helps keep the discussion on track [Refer to the Successful Meeting tool.]. The written agenda gives information about topics to be discussed, the day and time of the meeting and location of the place where the meeting will be held. It should include time for each item and the names of the people responsible for holding the meeting. The use of an agenda is a strong indicator of the local government’s willingness to be transparent about its business and the decisions to be made.

STEPS

POTENTIAL COSTS

1. Prepare an agenda in a simple, easy to understand form (usually limited to one page). Specific information about the topics to be presented or discussed should be a separate handout or attachment (it is not always necessary to provide supplemental information in advance of a meeting). 2. Publish or distribute the agenda at least three days in advance of most meetings. For some meetings, the agenda may be prepared up to two weeks in advance. 3. Send out the agenda before the meeting to city officials, news media, NGOs, interest groups and to anyone else who may have an interest in the topic(s) of the meeting. Send copies to schools and other public places in diverse areas of the city. Post the agenda at the information board and other places within city hall. 4. If a public notice is used to announce the meeting, include a copy of the agenda. 5. Have extra copies of the agenda available at the meeting. 6. Make certain any background information for agenda items is also available for the press and public. Expenses: • Photocopying of materials Administrative Costs: • Staff time to prepare and distribute the agenda

PUBLISHED MINUTES

TOOL WHEN TO USE

•

To keep a record of any meeting held by the local government, particularly public meetings

DESCRIPTION

Published Minutes is a tool allowing keeping the official record of deliberations and decisions from the meeting. They summarize the discussion. They provide a record of participants, discussion topics, decisions taken and how those decisions were made. If a vote was taken, the result is also recorded in the minutes. [Refer to the Successful Meeting tool.].

STEPS

1. Assign a person to take minutes. If a meeting is a regularly scheduled event, it is helpful if the same person takes the minutes of each meeting. If the meeting is an occasional activity, before the beginning of the meeting, the chair decides who will be the recorder for that meeting. 2. Advise the recorder to take notes on the meeting, including accurately recording the current agenda, decisions made, and the agenda for the next meeting. The minutes should note which Council members and staff were present and topics covered. Minutes may simply indicate the sense of the meeting, such as stating who participated, the general content of the discussions and decisions taken. Or more detailed minutes may provide a complete report of participants, detail the substance of everyone’s speeches and the decisions taken. 3. After the meeting, make sure that the recorder distributes the minutes to city officials, news media and public before the next meeting. 4. At the next meeting of the group, encourage the members of the group to review and approve the minutes. If necessary, minor corrections may be made by individuals who attended the meeting. However, it is important that all corrections only be made to clarify what actually happened at the meeting and not to change the substance of what happened. 5. After the minutes have been read and approved, make any corrections, and then file the approved copy in the organization’s offices. These approved minutes constitute the official history of the organization’s actions.

POTENTIAL COSTS

Administrative Costs: • Staff time to take notes during a meeting

EXAMPLE

Extract of minutes from Economic Council meeting, Varazdin

COMMUNICATION TOOLS What is the purpose of Communication Tools?

Communication tools both provide information to citizens and enable citizens to express their opinions and comments. Communication in this Manual and Model is primarily understood as a two way process “by which information is exchanged between individuals through a common system of symbols, signs, or behavior”3. Citizen participation in the local community is possible only when the information flow goes both ways: upward dissemination of information (from citizens to local government) and downward dissemination (from local government to citizens). Of course the process of information exchange will be effective only when both “sides” accept “a common system of symbols, signs or behavior”. Then the question remains: How to create a system that will improve communication between citizens and local government? How to make that system applicable to modern local communities? Tools presented in this section are intended to form the basis for such a system, but by no means they are the only tools that can be employed to increase both upward and downward dissemination. When local government informs citizens about important plans and decisions related to community development, a preliminary step toward communication is made. When citizens respond to information received, provide comments on this information (plans and decisions); propose solutions for improvements in planning and decision-making, full communication is established. The communication process comes full circle when citizen responses influence positive changes in planning and more effective implementation of local projects and activities. The successful implementation of these tools will demonstrate the local government' s ability to make one step further – to develop various activities based on public-civic partnership (see Partnership Tools), characterized not only by effective communication but also by effective implementation of the joint projects.

Merriam, Webster’s Dictionary

What is the selection of Communication Tools:

The selection of Communication Tools includes the following tools: • General Citizen Survey • Personal Interview Survey • Questionnaire on Service Quality • Focus Group • Feedback Channels • Citizen Response Card • Radio/TV Program • Public Hearing • Neighborhood Meeting • Successful Meeting • Youth Contest • Intranet-Internet System • Internet Presentation Portal IPP)

TOOL

WHEN TO USE

GENERAL CITIZEN SURVEY • •

DESCRIPTION

When the local government does not have information about citizens’ general opinions on various local government activities. When opinions received by local government are fragmentary and generally not from a random or representative sample.

A general citizen survey is one of the most effective (on one hand) and sophisticated (on the other hand) tools to be used by local government to determine citizen opinions. In many developed democracies it is a standard way to inform policy makers on public opinion. Since it is a “general opinion” survey, it usually consists of more general questions, like citizens problems, visions of development, general evaluation of services. This type of survey enables authorities to focus on the problems considered most important by its constituents. Typically this kind of survey does not identify the specific causes of a negative evaluation, or which aspects should be improved. To find this information, an additional and more detailed survey, or another type of analysis, is required. It is essential to conduct a sophisticated analysis on relationships between answers on different questions. This is the best way for the survey to provide truly meaningful information on public opinions; therefore, an experienced specialist should conduct the analysis. Though this can be expensive, there are ways to make it less so. One possibility is for the local government staff to develop a survey form based on previous samples, and hire a specialist to review what they have designed. In smaller local governments or when resources are limited, a much simpler survey can be carried out with simple questions and a less sophisticated analysis (keeping in mind that the results of the analysis would not be complete).

STEPS

1. Decide on the approach you want to take in conducting the survey (sophisticated or simplified). 2. In case of sophisticated approach consider contracting an experienced consultant to assist you (because survey design and analysis is a specialized task). 3. Design the survey form – the survey should be relatively short and the questions should be clear and simple. 4. Ensure that it is a true random sample - typically, professionals interview a representative sample of the community to conduct this type of survey. 5. Conduct a pilot stage of surveying to check whether the questions are clear (if necessary revise the questions). 6. Conduct the survey – it can be delivered by university students, perhaps incorporated into an element of their curriculum.

7. Conduct the analysis of the results, which should not be a simple tally of responses, but should analyze the relationships between different types of answers. 8. Prepare a results report and present it to the board and council. Publicize the results in the local media and other information outlets. POTENTIAL COSTS

Expenses: • Cost of hiring a consultant to assist in the process • Cost of printing questioners • Cost of surveyors (if they need to be paid). Administrative Costs: • Staff time to manage the process

EXAMPLE

Extract from General Citizen Survey conducted in Rijeka

TOOL WHEN TO USE

PERSONAL INTERVIEW SURVEY

• •

DESCRIPTION

If a local government seeks in-depth opinions from citizens about the services. If issues are more complicated to capture by written surveys.

In-person interviews are a survey method that gathers in-depth opinions from a target group. It may follow a written survey to collect additional information regarding specific aspects of the service. The more complex the information that you are seeking, for instance soliciting opinions about a new urban plan, the more likely an open ended question-and-answer interview is the best approach to getting the information you need. These interview surveys are expensive because they require a great deal of interviewer time for traveling and interviewing. Because it is an expensive survey tool, it is used only if you need additional information once a written survey has been conducted. An option that could save some time is to conduct personal interviews over phone, but lack of personal contact is a disadvantage.

STEPS

1. Decide what you need to know. Personal interview surveys may have open-ended questions that solicit opinions in the words of the citizens. They can probe for more information and ideas than a multiple choice written survey. An open-ended question provides an opportunity for citizens to explain their answers. An interviewer may ask a specific question about water services such as: “What do you think about the quality of your water?” If the citizen responds that he thinks that the water is “dirty,” the interviewer can then follow up with detailed questions such as: “Give me an example of what you mean by ‘dirty water’?” 2. Identify from whom you want to gather this information. Typically, you will interview fewer individuals than you will reach with a written survey. So you will need to choose your target group carefully. If your written survey indicated that pensioners think the water quality is not good, but parents of school children are satisfied, you might interview the pensioners to get more information about why they think the water is dirty. 3. Use an experienced consultant to help you design your questions, train your interviewers and interpret the results. These complex surveys must be carefully designed to get valid results. 4. Decide whether you want to use open-ended questions. Mind that open-ended questions can solicit more personal opinion and give you more information, but are more difficult to interpret. 5. Decide whether you want to conduct interviews at the home of the citizen or you want to ask citizen to come to a central location such as the library, a school or city hall where all interviews are being held. 6. Consider using local staff, volunteers or other citizens. Volunteers or citizen interviewers might include college students, pensioners, or other interested citizens. The people who conduct the interviews must

be trained to do so. This will be a job for your consultant. 7. Compile the results and analyze the data. It is easy to count the answers of a multiple-choice survey. It takes a bit of practice and experience to interpret and understand the results of an interview. A consultant can help you to interpret the results. However you prepare the results, ensure that they are easy to read and understand. 8. Share the results with your staff and the Mayor, the Board and the Council. 9. Use the data to steer decisions, planning and service improvements. 10. Publish your results so the citizens can see that you based your decisions on their input. This helps your credibility and builds support for the local government decisions. You might hold a press conference to announce these results. [Refer to the Press Conference tool.] POTENTIAL COSTS

Expenses: â&#x20AC;˘ Cost of hiring consultant Administrative Costs: â&#x20AC;˘ Staff time to prepare the questions, conduct the survey and analyze the results

TOOL WHEN TO USE

DESCRIPTION

QUESTIONNAIRE ON SERVICE QUALITY • •

To gather citizen feedback on performance of a particular service. To gather ideas on how to improve a particular service.

It is important that the local government or the direct service provider regularly monitors public perceptions of service delivery quality. Local government or local utility staff can design a relatively simple questionnaire to better assess public perception of their performance. There are a variety of ways that the questionnaire can be delivered. An easy and cost effective way is to include a short questionnaire with bills when they are delivered. Technicians can also deliver questionnaires when they provide service. Most important is for the local government to clearly establish a policy to gather public opinion and to start a dialog on a variety of public issues (not only service delivery, though this is often an easy way to start).

STEPS

1. Clearly define the purpose of the questionnaire: what information are you trying to gather? 2. If the questionnaire is a written questionnaire, chose 4-6 simple questions. If it will be oral, ensure that the person(s) delivering the survey have a standard script to work from, using simple language and only 4-6 questions. 3. Choose the method of delivery (mail, with technicians, other). 4. Depending on the method of delivery, choose a collection method. Options are to include a return envelope or to place a drop box in a public office. 5. After questionnaires are collected, analyze the results and produce a report. 6. Present the results report to the Board and to the public. Include information about the way you plan to address the issues, which were identified in the questionnaires.

POTENTIAL COSTS

Expenses: • Printing (photocopy) costs • Postage for delivery and submission of questionnaire Administrative Costs: • Staff time to prepare, conduct the questionnaire and analyze the results

EXAMPLE

Development Process Questionnaire, Rocky Hill, Connecticut, USA

TOOL WHEN TO USE

FOCUS GROUP

• • •

DESCRIPTION

For review of important local government services, policies, fees, etc. To solicit opinions on local government services, changes or improvements in services If you want to complement your survey results or if you do not have enough time or resources to conduct regular survey

A Focus Group is a way of gathering information and asking citizens for their opinions and suggestions about a specific topic. Because citizens are given time to discuss and explain their opinions and suggestions, the information is extremely useful to local government policy makers. The best focus groups are made up of a group of citizens from all parts of the community. The local government asks a small group of ordinary citizens to meet with a group of skilled focus group discussion consultants who present a series of questions to the group. The group discusses the questions and gives their opinions and suggestions about the topic. All of the group’s answers are written down by the discussion leaders to be put into a report for local government leaders. The report will contain the ideas and suggestions of the group, but will not include any names or references to who the participants were. They are an informal, inexpensive, and relatively efficient way to conduct consumer and opinion research. The aim of the Focus Group is just to gather opinions. This is different then of a task force, which is organized to contribute to solving a problem or develop a plan.

STEPS

1. Decide what you want to know. Focus groups should only deal with one or two related topics. For example: How much more would citizens be willing to pay for water and what level of service do they expect the local government to provide? What do citizens think about urban development plans for a neighborhood and what are they willing to contribute to their success? 2. Consider holding a series of groups to make sure that the information you receive from focus group discussion is on target. At least three groups covering the same topic is generally recommended. 3. Make sure that participants are recruited at random or by constituency such as by neighborhood or the recipients of a service. There should be young people, pensioners, teachers, laborers, mothers, and fathers, anyone who would have an interest in the topic. It is better not to include elected officials or city employees because this is to be a chance for the citizens to tell their opinions to the local government. Some potential participants may be intimidated by what they perceive to be a topic requiring specialized technical expertise and will need reassurance about the content of the discussion and their role in the process. Recruit more participants than you will need. An ideal group

is about 10 - 15 people, but you can expect some invited people not to attend. 5. Prepare a discussion guide to cover the topics you would like to explore. You should make sure that it addresses the issues that you are concerned with. Questions should be open-ended – that is, requiring an explanation and not just yes or no or good or bad – and phrased so that they do not suggest a “right” answer. 6. Hold the groups in a comfortable setting. Use a table for everyone to sit around. Provide pencil and paper and refreshments. You may hold the Focus Groups in a local government conference room or in a building away from the local government office. 7. Develop a way that a record of discussion is kept either by audio- or videotaping or by recording in writing on a flip chart. If the recording will be done in writing, use at least two people to record the content. Always get permission from each member of the group before audioor videotaping. 8. Provide a final summary report of the groups'discussion: the themes heard, areas of agreement, and areas where differing points of view were expressed. Confidentiality of the discussion may be an issue for some participants and the final report should always be written without mentioning individuals. 9. Share the results with your staff and the local government council and use the data to steer decisions, planning and service improvements. 10.Publish your results so the citizens can see that you based your decisions on their input. This helps your credibility and builds support for the local government decisions. You might hold a press conference to announce these results and the actions that are planned based on the citizen input. [Refer to the Press Conference tool.] 11.Send a letter to the group participants thanking them for their input and contributions. The group participants will appreciate receiving a copy of the report along with your letter of thanks. POTENTIAL COSTS

Expenses: • Supplies (flip chart paper, notepads, pens and pencils) • Refreshments • Cost of consultant Administrative Costs: • Staff time to prepare the meeting

TOOL

WHEN TO USE

FEEDBACK CHANNELS • • •

DESCRIPTION

When there is low level of citizen participation or comment on local government activities When citizens do not respond sufficiently using current feedback channels If the content of comments from citizens is inadequate or not useful.

Feedback channels are a set of different simple tools, which facilitate citizen communication back to the local government. In order to create good communication between citizens and local government, a variety of channels can, and should, be utilized: o Letters o Phone calls from citizens (e.g. establishing toll-free phone line) o Comments boxes in public places o E-mail addresses specifically for comments, etc. The most important issue is to properly manage the comments received by citizens. Some type of acknowledgement to the citizen feedback should always be provided, such as a return message or a card to acknowledge the receipt of the comment. The local government should report in the media or other public source on the type of comments received and actions undertaken to address the comments.

STEPS

POTENTIAL COSTS

1. Chose the most appropriate feedback channels to be used in your community (possibly based on analysis of the preferable way of communication). 2. Prepare implementation of chosen feedback channels (tools) by developing design, implementation action plan, etc. 3. Implement the feedback channels: e.g. establish toll-free telephone line, place comments box at the entrance to the local government office. (If you choose to use a comments box, it should be big enough and placed in a visible place, accompanied by a sign containing information on the purpose of the comments box). 4. Advertise established feedback channels through local media or leaflets. 5. After receiving comments, acknowledge them and make an effort to utilize comments provided in the decision-making process. The best marketing is when respondents know that their comments are valued – it makes feedback channels meaningful and effective. Expenses: • Preparation of Comments box (very few resources) • Hiring a toll-free line (unless a local telecommunication service provider can sponsor it)

â&#x20AC;˘

Establishing the necessary infrastructure for feedback, acknowledgement, and analysis Administrative Costs: â&#x20AC;˘ Time of a local government employee to manage the comments EXAMPLE

Complaint Receipt Letter from City of Augusta, USA

TOOL WHEN TO USE

CITIZEN RESPONSE CARD

• •

DESCRIPTION

To gather feedback or specific information about a community issue, improvement of public services, city budget, etc. If the information is needed to make an important decision

Citizen Response Cards is a method for collecting and recording citizen comments about municipal services and other local government issues. It is important to recognize that if you are going to collect these comments, you will need a system to register and respond to the comments. Citizen Response Cards are usually small cards that are made available at department offices, citizen information centers, the Mayor’s office or other public places such as libraries, markets or schools. The Card may ask a specific question such as “Would you be interested to recycle your garbage to reduce amount of your garbage, if the cost of garbage service would decrease?” Or, it may simply ask the citizen to comment on city services in general.

STEPS

1. Decide what you want to know. Do you want to ask a specific question about a specific service? Perhaps you want to have separate cards for each basic local government service. Or you may want to have a generic card on which citizens can record their complaints and positive comments. 2. If you decide to ask questions, make sure that the card asks no more than one or two. You might ask one question this month and a different question next month. 3. Decide whom you want to ask. If you are asking a question about the schools, do you want to ask teachers? Parents? Schoolchildren? You may want to ask all of these people, but you probably do not need to ask the whole population. The group that you focus on is your target group. 4. Decide where you will place the cards. It needs to be a place that your target group often goes to. If you are asking a question about social assistance, place your cards at the office of social assistance. 5. Place a collection box at the same places that you have placed the cards. The important thing is to make the cards easily available to the customers of your service and just as easily given back to you. 6. Make sure that all of the cards go to a specific individual who is responsible for distributing the cards to those who can best respond to the question or comment on the card. This person needs to keep a copy of the card so he can follow up with the individual who is responding. 7. Decide how the local government will respond to the complaints, questions and comments and who will make this response. If citizens use the cards to complain and you do not respond, you risk losing their confidence in your ability and willingness to act on information from citizens to address their problems. You can

respond directly to the individual making the comment or complaint (your card will need to ask how you can contact them) or you could include information about complaints and responses in the newsletter, for example. [Refer to the Newsletter tool.] 8. Keep a record of the complaints and comments. This can help the government to see what problems are repeated and can be the basis for suggestions for priorities in decision-making. 9. Appoint a specific person to receive the reports and the responses to citizens. Share the reports with the staff and discuss ways to improve the responses to citizen service. POTENTIAL COSTS

Possible Expenses: â&#x20AC;˘ Printing of the Cards Administrative Costs: â&#x20AC;˘ Staff time to prepare, collect and review cards

EXAMPLE

Sound off Card, City of Cupertina, USA

TOOL

RADIO AND TV PROGRAM

WHEN TO USE

• • •

DESCRIPTION

A radio or TV program is designed to address a specific issue. Radio and TV are efficient ways to communicate what the local government is doing. They are useful for delivering specific messages and can also be used to facilitate public dialogue.

To communicate local government messages directly to the public. To solicit citizen opinions and encourage feedback. To foster a feeling of connection between citizens and local government staff.

These programs can be used to enable the Mayor or other local government staff to communicate directly with the public through speeches, interviews or call-in shows. Interacting with members of the public on TV or radio can be particularly effective since when listeners hear officials responding directly to citizens, they feel involved. The programs might be held once, weekly, biweekly or monthly. Each program should be focused on one specific issue to be discussed. For instance, this week the issue might be garbage collection and next week the local government staff could discuss the budget. The speakers should be as prepared as possible. Program formats can include the following: • Local government officials deliver a prepared message or speech • Local government officials are interviewed by a reporter • Local government officials discuss a topic with a community group, composed of representatives of different target audiences (audiences related to the issue under discussion) - Variation: A call-in show in which a telephone number is available for the public to call in with their questions - Variation: The studio group includes members of the political opposition STEPS

1. Decide on the topic(s) to be addressed. 2. Discuss the most effective format for a program. Will this be a onetime program, or should it be a regular program weekly, biweekly or monthly? 3. Talk to local media; advertise the programming schedule. Provide a copy of the material you will use during the program (script, copy of speech, etc.). 4. Agree on the payment, if required. Payment may not be necessary if, for example, a reporter interviews a local government official on a regularly scheduled news program. 5. Announce the speaker, topic, and time on TV/radio several days in advance. Depending on the format of the program, you may also want to make a public announcement to invite people to participate or attend. If there will be a series of programs, include the schedule

information in your Newsletter. [Refer to the Newsletter tool.] 6. If possible, decorate the studio with posters promoting the local government or providing local government information. If the program will present any statistics or other data, you should present simple charts or graphs. Make sure that the station knows in advance that you will be presenting this kind of information. 7. If you have a studio audience, keep a sign-in form to register the participants. 8. At the end of each program, evaluate the presentation and report to those involved on any improvements that could be made. POTENTIAL COSTS

Expenses: â&#x20AC;˘ Programming fee (if applicable) Administrative Costs: â&#x20AC;˘ Staff time to prepare the program

EXAMPLE

Talk Show Program Schedule, Rijeka

TOOL

WHEN TO USE

DESCRIPTION

PUBLIC HEARING • • • •

Before the passage of a new law or the budget During a Plan review (e.g. economic development strategic plan) Prior to implementation of new or increased fees Any time that an issue is clearly defined and action is imminent

A Public Hearing is usually an official meeting of the local government. There may be a local requirement (by adopted budget preparation process) to hold a formal public hearing, or one may be held voluntarily by the Council to present an issue and collect opinions. [Refer to the Transparent Budget Preparation Process tool.] This tool can be used to present local government’s proposed plans. Formal public hearings also provide an opportunity to receive comments from people or groups who may be affected by that decision. A formal public hearing is usually held when the issue or action is clearly defined and action is imminent.

STEPS

1. Post a public notice, including the information on date, time, location, topic of the meeting and brief description of purpose. State specifically who is invited, who will conduct the meeting, and who will be there to hear citizen opinions. Post the public notice in public places (offices, markets, coffee shops and schools). Additionally invitations can be issued to specific individuals. 2. Prepare a news release to the local media indicating the purpose of the meeting and, if applicable, what the local government plans to do with the information. [Refer to the Press Release tool.] 3. Prepare and share handouts in advance and during a meeting. Develop a fact sheet on the hearing topic. Be brief, clear, simple. Use charts and graphs for complex financial information. Include any copies of a plan or other documents. Include where to get more information, such as a copy of the draft budget or a map. 4. Prepare a brief description of the meeting procedures and rules; include speaking rules or other ground rules for the meeting. [Refer to the Successful Meeting tool.] 5. Assign a note-taker to record meeting minutes, particularly citizen feedback and suggestions. These notes are necessary to be able to use the suggestions later. 6. Set up the room in advance: • Place a sign-in sheet on a table near the entrance with sign saying “Sign In Here.” • Place handouts on another table also near the door. Label with sign saying “Information: Help Yourself.” • Place chairs (and tables, if necessary) for speakers, local government staff, etc. together where everyone can see them. Arrange audience seats as close to officials as possible. Stack extra chairs somewhere easily available to

handle a larger than expected crowd. If you are using audio/visual equipment or charts or signs, test them in advance and make certain they can be seen by everyone in the audience. • Include easels to handle site plans or other large materials (if necessary). • Reserve a “press area” with tables and chairs for news media. Place news releases and other handouts conveniently for the press at this table. 7. Have staff available to welcome citizens and to direct them to materials and seats. Make people comfortable. 8. Press Relations: Assign someone to help the press with any needs. 9. Distribute agenda to all attendees. [Refer to the Meeting Agenda tool.] Welcome the audience and make brief opening remarks (a statement of the hearing goals, expectations, and procedures). 10. Introduce participating elected officials, professional staff, and special guests. 11. State the ground rules for the meeting, including a time limit for how long each person may speak; one to five minutes is common. Suggest that everyone be allowed to speak once before anyone is given a second opportunity to speak. Ask the other participants to not talk while someone else is speaking. Assure them that everyone will have an opportunity to speak at the meeting. 12. Make a brief, clear presentation of the topic. The presenter might be the finance director in the case of a budget hearing, or the Mayor. Limit this presentation to 5 to 10 minutes. 13. At the end of the public hearing thank people for coming and for their comments. Tell them how you will be using their input. Give them information about any follow-up. •

POTENTIAL COSTS

Expenses: • Photocopies of handouts • Possible expense of hiring outside facilitator Administrative: • Staff time to prepare materials and participate in the event

EXAMPLE

Invitation to budget public hearing, Hum na Sutli

TOOL

WHEN TO USE

NEIGHBORHOOD MEETING • • •

DESCRIPTION

When there is a specific issue, possibly contentious, new, complicated, or newsworthy for other reasons, that requires faceto-face dialog between elected officials and their constituents If trust in council decisions is at a low point or citizens have commented on a lack of transparency in decision making When the local government has been approached by a group of citizens about a problem in their neighborhood

Neighborhood meetings are semi-formal or informal gatherings to discuss problems, issues or projects specific to a neighborhood. Although these could be held at the local government building, holding a meeting somewhere in the neighborhood concerned shows that the community leaders care enough to go to the citizens to discuss their specific interests. An important issue is to well organize the meeting using the methodology, ensuring effectiveness of the meeting in terms of citizen’s input and concrete results. Quite often the topics addressed in such meetings are difficult and/or controversial (e.g. to explain tradeoffs that elected officials must make, particularly in regard to employing scarce resources when demands upon those resources are many). Therefore, good organization and facilitation are even more important to making the meeting a success.

STEPS

1. Carefully define issues or projects to be discussed. The topics should be limited to those that specifically concern the residents of the neighborhood. 2. Identify the individual or individuals from the local government who will be responsible for organizing the meeting. 3. Prepare an agenda for the meeting, including making a list of topics for presentation and discussion. The agenda should include a specific amount of time for each item and be distributed in advance. 4. If neighborhood residents have initiated the meeting, provide time at the beginning of the meeting for them to present their problem, issues and proposed solutions. 5. Decide on who will make presentations about the topic for the local government. This might be an expert from the local government or consultants working on the project and public officials. 6. Prepare background information for the meeting participants. This should include a brief history of the project, graphics or maps where appropriate, as well as costs and other information that the citizens will need to better understand the issue and proposed solutions. 7. Arrange the space for the meeting in advance. [Refer to the Public Hearing tool.] 8. Start the meeting on time and assure the participants that all will have an opportunity to speak. State the ground rules for the meeting. 9. Assign someone to record meeting minutes, including all citizen comments in.

10. At the end of the meeting thank people for participating and for their comments. Tell them how you will be using their input. Give them information about any follow-up, such as another meeting, decision date, informational materials or who to call for a status report. POTENTIAL COSTS

Expenses: • Rental fee for meeting venue (if venue is not free) • Printing costs for fliers advertising the meeting • Refreshments (if possible) Administrative Costs: • Staff time to prepare materials for the meeting

EXAMPLE

Scenario of neighborhood community meeting, Rijeka

TOOL WHEN TO USE

SUCCESSFUL MEETING

â&#x20AC;˘ â&#x20AC;˘

When local government decides to improve effectiveness in all meetings, including both internal local government meetings and meeting with citizens. When local government wants to reduce the time wasted and frustrations associated with poorly prepared and disorganized meetings.

DESCRIPTION

Meetings are extremely important to building relationships and accomplishing tasks, but they can also be an enormous waste of time and very frustrating if not prepared for and conducted properly. Conducting a successful meeting requires several basic steps and skills from the person who is responsible for running the meeting. Several techniques have been successfully adopted to organize and conduct a meeting with citizens, but a lot still depends on the capacity of the person running the meeting to deal with people. Using the Successful Meeting tool should make for better, more effective meetings.

STEPS

1. Prepare an agenda that is not overly ambitious. It is important that it be possible to accomplish the agenda within the time allocated for the meeting. Spend the necessary time to set clear goals for the meeting. [Refer to the Agenda tool.] 2. Make sure that the person charged with conducting the meeting has certain skills. This person manages the discussion, ensures that the participants stick to the agenda, and that meeting participants understand the meetingâ&#x20AC;&#x2122;s ground rules. It is often better if the person conducting the meeting is not the main speaker, so that he can focus on managing the discussion productively rather than on participating in the meeting. This is especially important for large public meetings. 3. Designate a note taker who will prepare minutes and distribute them to the group afterwards. 4. Notify all participants of the meeting ahead of time and inform them of the goals of the meeting and the agenda. Schedule the meeting far enough in advance to give them time to prepare for the meeting. 5. Prepare the meeting room and all necessary materials. Small meetings of less than 15 people may be held in a conference room around a large table. Larger meetings will require a more formal setting. [Refer to the Public Hearing tool.] Running the Meeting: 6. Make sure that the meeting starts at the scheduled time. Meetings that start late or end late are discouraging and often unproductive. 7. Introduce yourself (as the meeting organizer) and any guests to the participants. Ask also participants to introduce themselves. 8. Begin the meeting with a statement of the item to be discussed. Allow all participants an opportunity to present their facts and information. Discuss the divergent facts and values. Keep the discussion relevant by letting the participants know when the discussion has drifted away from the topic. If this fails to bring it back on track, politely but firmly

steer it back. Cut off the discussion when it becomes repetitive by reviewing the overall issues and positions. 9. Make sure that the chair of the meeting is encouraging and listening for any points of agreement. If consensus seems to be emerging on an action item, try repeating what you think you are hearing from the group back to them. If there is enough agreement take a decision or action by vote or statement of consensus and move on to the next agenda item. If the discussion deteriorates to attacks on the facts or on individuals, either call for a decision or request a delay to a specific date when additional facts can be presented. Do not let the meeting move away from a positive discussion of the issue. 10. When the meeting ends, make sure everyone knows which follow-up tasks they have agreed to do. 11. Thank the participants for their time and input. 12. Have the note taker prepare minutes of the meeting and distribute them to the participants in a timely manner. [Refer to the Published Minutes tool.] POTENTIAL COSTS

Expenses: â&#x20AC;˘ Refreshments (of decided to be served) Administrative Costs: â&#x20AC;˘ Staff time to prepare and conduct the meeting

EXAMPLE

Ground Rules for the citizens meeting

TOOL WHEN TO USE

YOUTH CONTEST • • •

DESCRIPTION

To encourage youth to become more involved in their local community. To publicize new initiatives, via parental involvement in their children’s projects. To facilitate contribution from youth to planning processes.

A Youth Contest is most often used to support the community-based strategic planning process. Strategic plans outline a design for the future roles and activities of local government, which will be important to the current generation of young people. For this reason, they should be able to influence those plans. Also, young people have an important ability to think outside the box, and therefore may be able to propose creative and innovative solutions to problems that local government professionals have yet to solve. The contest also serves to convince young people that they are an important part of the local community and that their opinion is important.

STEPS

1. Develop regulations and deadlines of the contest and publish in the local media. 2. Consider sending contest information packages directly to the schools with possible follow up calls to encourage them to take part in the contest. 3. Select judging committee, ensuring that a variety of sectors will participate (e.g. members of task force, local government officials, youth NGOs, media). 4. Create a venue for all works to be exhibited (not only winning pieces). 5. Judge entries and award prizes for different categories of works. 6. Exhibit the works and organize award ceremony, ensuring participation of media.

POTENTIAL COSTS

Expenses: • Cost of awards (awards can also be donated by local businesses or private individuals) • Cost of publicity, if any Administrative Costs: • Staff time to prepare and conduct the contest

EXAMPLE

Youth Contest Guidelines, Rijeka Awarded Works from Hum na Sutli and Oroslavlje

TOOL

INTRANET - INTERNET SYSTEM 50

WHEN TO USE

• • •

DESCRIPTION

When larger local government wants to utilize information technology supporting complete working process When local government decides to reach higher standards in communication of all departments resulting in high quality and accuracy in service delivery, transparency of governance When local government decides to reduce administrative costs connected with traditional “paper office” work

An Intranet – Internet System is e-government system addressing internal and external communication. The System relies on a systematic evaluation of the information needs of a local government, followed by the application of modern tools for communication and sharing of information such as Local Area Network (LAN), email, and electronic conferencing. Most importantly, the model connects citizens to the local government electronically, to allow access to information on local government functions (processes), and communication with government officials, saving time and increasing citizen participation in local governance. An Intranet – Internet System enables efficient management of various daily tasks of local governments: • Integration of work system and optimization of work organization. Inclusion of all subsystems enables optimal usage of all work resources and allocation with efficiency of work as a goal. • Electronic provision of services and business with citizens from a distance. It is possible for all administration departments to communicate with users directly or indirectly, and perform their tasks, exchange documents, applications, etc. • Performing regular tasks and possibility of communication from a distance for members of the council and administration (access to databases, direct and indirect communication). The users who are dislocated or those who are occupied with other tasks are able to participate in the meetings or perform their tasks from distance. • Simplification and speeding up all internal communications, meetings from a distance and document exchange. • Citizen participation through online conference, surveys, etc. local government can use this medium to constantly monitor needs, ideas and projects proposed by citizens or defined through online surveys and means of interaction. • Instant transparency: all important outputs can be instantly published – budgets, projects, decisions, etc.

STEPS

1. Prepare a project proposal for the adoption by the City Board. Clearly define the objectives and benefits of the implementation of the System for overall improvements in local government efficiency and particularly for the citizen participation development. 2. Establish a task force responsible for the implementation. 3. Analyze existing organizational and communication network of the local government.

4. Analyze resources needed for the installation of the System: basic IT (information technology) equipment, software (Intranet – Internet System software and installation manual), and managerial skills of the employees as well as local network status and capability with the System. 5. Develop a plan for the additional education for all employees and volunteers in local community (Mjesni Odbor etc.) who will perform their duties and communicate with citizens through the System. 6. Appoint specialists for monitoring and control of the installation process. 7. Install Intranet – Internet System on a server. 8. Prepare a resolution for the Council with clearly defined decision for the System utilization in overall local government scope of work. 9. Organize media coverage and public presentations of the System. 10. Develop a plan for monitoring and control of the effective utilization of the system on daily basis. POTENTIAL COSTS

Expenses: • Adaptation of information technology system • Server and Internet connections • Consultant to prepare and implement project Administrative Costs: • Staff time to collect all information and prepare materials Note: Croatian local governments are eligible to receive basic software and design needed for the installation of IPP without charges. This is part of Information Management Model financed by USAID as a part of LGRP implemented by Urban Institute.

EXAMPLE

Intranet – Internet Systems of the City of Osijek, www.osijek.hr and Crikvenica www.crikvenica.hr

TOOL WHEN TO USE

INTERNET PRESENTATION PORTAL (IPP) • •

DESCRIPTION

When small local governments with limited human and financial recourses want to utilize information technology in citizen participation development When local government does not have capacity for installing and maintaining more sophisticated e-government system [Refer to the Intranet-Internet System tool.]

An Internet Presentation Portal (IPP) is a tool for the small local governments looking for the relatively simple solution to adjust their activities to information technology. IPP presents information on the local community to wider audience. It also enables simple interactive functionalities for the online communication between local government, citizens, private sector and people interested in business and living opportunities in the local community. The IPP has three components: 1. The local government identity card with basic information on geographic position; history; tourism (visit and accommodation, investment opportunities); sports and culture (heritage and current events); education (schools); social and health care; media and photo gallery 2. The economic profile of the local government: this section objective is to attract investments and to inform all the business stakeholders about the opportunities in the local community. Additional important objective is to express readiness for establishing public – private partnership on the local level. 3. Channel for interaction with citizens/visitors. The interactive channel supports conferences and communication of citizens and local government staff and officials. The process is managed by local government and addresses usual lack of contact between voters and elected citizens. The presentation portals are usually updated and adapted by web design specialists.

STEPS

1. Organize task force for collecting information from particular local government areas. 2. Develop a content plan according to the structure of the IPP (see description points 1 to 3). 3. Develop a plan of interactive functionalities on the site (forums, polls, conferences, questions and answers). 4. Appoint persons from the local government staff and from the task force to be responsible for the development of the each IPP section. Define deadlines for the finalization of each section 5. Organize public presentation of the Internet Presentation Portal and explain main objectives, functionalities and benefits.

Announce the event in local media. 6. Appoint the person responsible for the maintenance and for the new information upload on regular daily or weekly basis. 7. Take care that all questions related to local government services, policy and overall living conditions will get the response from the local government officials or experts. POTENTIAL COSTS

Expenses: • Internet connection • Portal graphic design or redesign according to specific information • Content development if ordered from experts Administrative Costs: • Staff time to collect information and prepare materials Note: Croatian local governments are eligible to receive basic software and design needed for the installation of IPP without charges. This is part of Information Management Model financed by USAID as a part of LGRP implemented by Urban Institute.

EXAMPLE

Internet Presentation Portal of Zagrebacka Zupanija

PARTNERSHIP TOOLS

What is the purpose of Partnership Tools?

Partnership tools target Public - Civic Partnerships, which is one of the most demanding objectives of the Citizen Participation. One can say Public-Civic Partnership is achieved when citizens and local government are able to work as partners on various community projects, and when these joint activities are accompanied by tangible results. Partnership tools promote hands on involvement of citizens in local government activities. The most meaningful activities are those in which citizens contribute their own resources to implement a project in collaboration or partnership with the local government. In fact, a good way to think about it is that in these cases, the local government assists citizens in implementing solutions by providing matching resources, not citizens “matching” local government activities or resources. So citizens are really “taking things into their hands”. This group of tools also contains various tools to involve citizens in the decision-making process, and to utilize their time, experience and expertise. Although this is not always in direct implementation of projects, it is a good example of tangible collaboration with citizens and contribution of citizen’s resources.

What is the selection of Partnership Tools:

The selection of Partnership Tools includes the following tools: • • • • • •

Local Partnership Program Planning for Public Spaces Local Festival Business Forum Citizen Advisory Group Task Force

TOOL WHEN TO USE

LOCAL PARTNERSHIP PROGRAM • • •

DESCRIPTION

If citizens are informed and communicating their opinion to local government, but they are passive about taking ”things into their own hands”. If citizens frequently demand services or resolution of issues, without offering suggestions, solutions, or resources of their own. When there are not adequate (financial, staff) resources to deal with all problems in the local government jurisdiction.

Local Partnership Programs promote the most meaningful type of citizen partnership, as well as democracy at the grass roots level. Partnership Programs are an important way to extend citizen participation in any community. Effective citizen participation requires more than the local government providing information to the public or to soliciting feedback. Furthermore, there is a practical reason for local governments to start partnership programs: local governments constantly operate under limited resources and cannot fulfill the expectations of every group and individual, all the time. Local Partnership Programs encourage individuals and groups to work together to solve some of their own problems. Through Partnership Programs local government can support local initiatives taken by informal citizen groups or NGOs. [Refer to Procedure for Financing Civic Initiatives tool.] Partnership Programs can be a good way to implement various local government policies. Partnership Programs also teach citizens to take responsibility for local issues and be proactive in finding solutions; this openness and creativity is an important skill that can transfer to how individuals deal with other issues in their life, such as openness to try new professions or even to start their own business. Partnership Programs can be designed and shaped around the policies the government is implementing. For example, if the issue were how to improve the attractiveness of a main street or business district, then the Partnership Program could take responsibility for small parks and other elements having impact on attractiveness near the street. The partnership programs often take the shape of a contest (spirit of competition is important) of initiatives/projects developed by neighborhood groups, focusing on ways to address a particular problem. This requires a clear description of rules, including the criteria for the competition and the evaluation of project proposals submitted by applicants. This is a good way to directly involve citizens in solving local problems by putting their own resources to use. Local government is then matching its resources with citizens’ resources. [Refer to the Planning for Public Space tool.]

STEPS

1. Choose the issues you want the Partnership Program to address. This, at least at the beginning, should include low risk, high reward projects such as playgrounds, public spaces for youth,

small parks, etc. 2. Develop clear regulations and procedures that define who are eligible, how to apply, what are the objectives to be addressed and criteria of evaluation of the projects, as well as who and how will be evaluating proposal. Centrally important as criteria is the commitment of private resources, including both in-kind and financial contributions. Define also how much financial resource the local government intends to provide for the projects identified through Partnership Program. 3. Launch the program using various channels for promoting it like media, direct invitations to potential participants (neighborhood groups), etc. 4. Organize the evaluation process (create an evaluation committee) and evaluate the project using the earlier defined criteria. 5. Celebrate the winners, which create a positive competitive spirit among other citizen groups. It also encourages a greater number of applicants for future programs. POTENTIAL COSTS

Expenses: â&#x20AC;˘ Financing of approved partnership projects (if the issue is simple, this does not need to be large). Administrative Costs: â&#x20AC;˘ Staff time to develop materials and manage the program.

EXAMPLE

Partnership program design and leaflet, Rijeka

TOOL

PLANNING FOR PUBLIC SPACES

WHEN TO USE

• When a designated public space is targeted for (re) development. • To meet the legal requirement for public hearings on urban development plans. • To create partnerships among citizens, experts, local government and business in creative use of public spaces. • To avoid citizen’s resistance often connected with non-transparent process in planning and development of the projects affecting public spaces.

DESCRIPTION

Planning for Public Spaces is a community based process to influence design of parks, markets, playgrounds and other public spaces. The typical approach to (re) developing public spaces in Croatia is projectdriven, top-down, and generally based on outdated and inflexible urban and spatial plans. Though there is a legal requirement to include citizen input in project and plan design, this typically does not go much beyond the initial planning phase. [Refer to the Neighborhood Meeting tool.] The result is often a project that causes traffic problems, pollution, a lack of green areas, decrepit and sometimes unsafe playgrounds, lack of waterfronts and recreational facilities, and lack of places created for/by youth. An alternative approach focuses on starting a dialogue with citizens in the early planning stages, and continuing this dialog throughout project implementation. Thus, the plan will be informed by and will incorporate citizens’ needs, visions and ideas, and the planning process will create partnerships among citizens, experts, local government and business. This results in creative uses of public space that often are more easily and well sustained. It also is important in empowering the community, encouraging healthy urban lifestyles, and finding sources of additional funding. It can also play an important role in local economic development, by promoting tourist and small business friendly spaces.

STEPS

1. Organize activities (seminars, presentations) to raise awareness among different groups (urban planners, architects, traffic engineers, as well as community groups and NGOs) of the new approach to planning. 2. If interest in the process is expressed, organize training to present the steps of the new approach and demonstrate its implementation at the local government level. 3. Launch a small pilot project, where a mixed group of representatives can evaluate one public space; find the short-term and long-term solutions (include the findings into the general urban plan). 4. Conduct a short public survey regarding a particular space and incorporate the results into the plan at an early stage of planning, not waiting until the plans have already been adopted. The key is

to raise awareness of the project and provide a way for citizens to give their input as early as possible. This will encourage the community to take ownership of the project, therefore creating an important motivation to participate. The more involvement from the community, the greater chance there is that the end result will be useful to the community, and therefore well maintained. POTENTIAL COSTS

Expenses: â&#x20AC;˘ Funding for preliminary survey/research. Administrative Costs: â&#x20AC;˘ Staff time to organize and conduct the process.

EXAMPLE

The public space evaluation tool designed by Project for Public Spaces www.pps.org

TOOL

LOCAL FESTIVAL

WHEN TO USE

â&#x20AC;˘ To improve awareness of and generate enthusiasm for community activities, particularly activities and services provided by local NGOs. â&#x20AC;˘ To promote community integration and improve identification with and within the community.

DESCRIPTION

A Local Festival is a great way to increase awareness of the diversity of groups and ongoing initiatives in any area. Because the idea is to have a committee composed of both local government staff and citizens that will organize the event, the very process of organizing this type of event, particularly if citizens and different groups are involved, is an important first step toward building a sense of oneness and community. The events are also a good opportunity to showcase activities of different citizens groups, like local NGOs, or perhaps specific neighborhoods or streets. Local festivals are also a great opportunity for citizens to meet and interact personally with local government staff and elected officials, in a non-work related environment. Building these personal relationships will not only be rewarding for the individuals, but also will encourage citizens to see government as an ally rather than a bureaucratic impediment to getting things done. Furthermore, this is an ideal opportunity to take a concrete step toward building official public-civic partnerships. [Refer to the Local Partnership Program tool.]

STEPS

1. Create a Task Force, which should involve local organizations and other community leaders. [Refer to the Task Force tool.] The task force should develop a detailed action plan. Organization and implementation of the event should involve as many partners as possible. 2. Build on a traditional event as a pretext for the Festival. If an appropriate local tradition does not yet exist, this could be an event that becomes a tradition. 3. Analyze and organize the resources needed to organize the Festival. The size and scope of the event depends on the availability of human and financial resources. Labor costs are usually very low, since most people organizing the event are happy to volunteer their time. However, equipment costs will still need to be covered. Though this can vary extensively, local festivals usually have a relatively large budget. 4. Organize marketing activities and publicity. In order to attract the public, something specific should be scheduled that will catch their interest. This could be something like a performance of a well-known singer, an art show, or a raffle giving away donated prizes. 5. Consider utilizing the Local Festival to make announcements that will affect a large portion of the community. For example, this is a good time to announce and distribute the Budget-in-Brief document.

POTENTIAL COSTS

Expenses: • Printing of promotional materials • Preparation of decorations • Guest of the Festival Administrative Costs: • Staff time to prepare and manage the Festival

EXAMPLE

Photographs of Varazdin “Spancir Fest”, September 2002

TOOL

BUSINESS FORUM

WHEN TO USE

• • • •

DESCRIPTION

To foster partnerships between business and local governments. As part of a strategy to promote local or regional economic development. To encourage public dialog on development priorities and practices. To demonstrate local government commitment to fostering growth in the private sector.

Local entrepreneurs play a central role in local economic development; they are responsible for a large share of new job creation and an increase in potential revenue to the local government (by growing the tax base). It is important to form strong partnerships with the private sector. In order for the partnership to be successful, both partners have to communicate and share development plans. Local government also has a responsibility to take private sector concerns and ideas into consideration when making long-term development plans. It is essential that the Mayor and other high-ranking officials participate in the Forum, because their participation is an important demonstration of the local government commitment to investing in the Forum and a validation of the topics discussed during the Forum meetings. Organizing a Business Forum is one step toward fostering a productive relationship between local government and business. The forum can be organized annually. At this time, an annual plan for cooperation between local government and business would be established. If the purpose of the forum is also to promote a regular exchange of information, meetings can be organized more frequently (e.g. bi-monthly). Topics to discus could include the private sector’s development plans, including infrastructure investments, information on local fiscal policy, local policies aimed at promoting investment (a particularly good area for cooperation), ways to market the municipality for tourism and other revenue generating activities, and local government plans to support private sector development (business incubator, business center, loan/guarantee fund, etc.). Business Forum can also serve as policy body to monitor, evaluate and make suggestions to local government policy on economic development. In this case there would be a limited number of representatives, which might be elected on joint meeting of all entrepreneurs.

STEPS

1. Prepare a comprehensive list of local businesses. Cooperation with the Chamber of Economy is recommended, both in preparing the list and in implementing the activity itself. 2. Investigate any similar local initiatives that may already be in place; in some jurisdictions, this type of activity may overstep the “territory” of the chamber; some chambers are very dynamic and innovative, while others are more conservative.

3. Focus on the positive. Organize the forum as an opportunity to address issues pertinent to all parties and to plan for the future. Avoid lamenting previous failures (but make a point to learn from past mistakes; address past problems in the context of learning experiences). 4. Stick to the topics on the agenda and stay on time. It is important to keep in mind that the entrepreneurs that will be targeted to participate in this forum tend to be task-oriented, and also may have limited time to participate in these meetings. [Refer to the Successful Meeting tool.] 5. Always close the meeting with a “next steps” agenda, encouraging participants to come to the next meeting. POTENTIAL COSTS

Expenses: • Refreshments for participants Administrative Costs: • Staff time to organize and conduct the meeting

EXAMPLE

Invitation to the Economic Council, Varazdin

TOOL WHEN TO USE

CITIZEN ADVISORY GROUP • •

DESCRIPTION

When the local government seeks advise on issues that benefit from citizen experience and opinions and that directly affect citizens’ lives and address their ongoing needs If the local government wants to utilize expertise and experience of its citizens to address particular issue

Citizen Advisory Groups are established to work usually over long periods of time. (This is the main way in which a Citizen Advisory Group differs from a Task Force, which is formed to achieve a specific and finite goal.) Members are volunteers who are interested in the welfare of the community. Each advisory group has a specific function and makes recommendations on this function to the Mayor and or the Council. Advisory groups only make recommendations. They do not have independent decision-making authority. Citizen Advisory Groups sometimes have a rotating membership and are appointed by the Mayor and/or the Council. These groups can assist the Mayor and the Council with routine tasks that require a great deal of time and research to make valid decisions. The advisory group reviews the issue, provides background, and makes recommendations to the Mayor and/or the Council. It helps ensure that citizens understand, contribute to, and generally agree with the decisions made by local government officials. Functions for Citizen Advisory Groups can include review of urban plans, annual cultural activities and planning, capital investment planning – anything that requires regular updating and review or decision. [Refer to the Successful Meeting tool.].

STEPS

1. Review and make a list of the issues that the Council regularly deliberates and that require a great deal of research and discussion. Analyze that, whether having background information on these issues, would help the Council to reach decisions more quickly. 2. Decide what you want the advisory group to do and what you do not want it to do. Each group should know the purpose of the job and its responsibility. Establish roles and parameters for the advisory group. This gives members of the group a clear purpose and function and an understanding of expectations. These parameters should be written and agreed to by the Council. 3. Choose members. Membership is usually limited to residents of the community. Sometimes advisory groups include other people for specific expertise. Although experts may and should be used in these groups, it is important to choose residents with a broad base of knowledge and experience as members of the group to ensure a variety of new ideas and solutions. Include as many interest groups and opinions as possible so that community residents feel they have been heard and that their opinions are important. Group members may be identified and appointed in many ways. Volunteers may be solicited from the community, but it must be made clear that not everyone who is interested may be asked to serve. Members may be recommended

by the Council or by municipal staff members. 4. Once the recommendations are made, decide who will appoint members. Typically the Mayor makes appointments, which the City Council approves. This ensures that both the Mayor and the Council have contributed to the process. Each member of the group should be notified of his or her appointment in writing and of the date and time of the first meeting. 5. Determine a time limit for every position. These periods can overlap with each other, so the committee will always have members with experience. For example, if all the members are appointed for three years, one third of them will be replaced every year. Re-appointments could be permitted, but many local governments limit the time for which the members should serve. 6. Plan the process. The Council should outline its expectations for the group’s processes. Make clear where and how often the group is expected to meet. The group may decide to meet more often in order to accomplish its work, but an initial meeting schedule should be established before appointments are made. 7. Elect or appoint someone to chair the group. If the Council is aware of the capabilities and expertise of each group member, it may choose a person it feels will best be able to facilitate the process and accomplish the task. The group can also elect a chair from among its members. 8. Establish deadlines to report decisions and recommendations. This should be established at the beginning within the operating rules that are passed by the Council for the advisory group. State how often the group is expected to report its findings and recommendations. 9. Submit all recommendations in writing to the Mayor and/or the Council. Recommendations should have the support of at least a majority of the members of the group. Often reasons and explanations for the recommendations are included. 10. Publish agenda, keep minutes of their meetings and make recommendations public. Consider meetings to be open to the public and include time for input from other citizens. This can ensure an even broader representation of opinion and input. POTENTIAL COSTS

Expenses: • Refreshments for the Citizen Advisory Group members Administrative Costs: • Staff time to prepare meetings

TOOL

TASK FORCE

WHEN TO USE

â&#x20AC;˘ â&#x20AC;˘ â&#x20AC;˘

DESCRIPTION

A Task Force tool can be utilized to work on a variety of local government activities, ranging from a specific issue (like the creation of an Citizen Participation Integrated Plan) to a cross cutting project idea (such as a development plan, including the design, regulations, funding requirements, and fundraising plan for a new sports complex).

To address new initiatives or important problems. To develop strategic or other plans. As a forum for community leaders, elected officials, business community to work on the solution to a common problem.

Task forces help gather opinions and provide a forum to incorporate expertise into the design and implementation of a variety of plans, thus enabling decision makers to make more informed and effective decisions. It is important to ensure that the political decision makers take task force ideas and analysis into consideration when creating budget and program priorities. Usually the work of task force results in development of a concrete product like strategic plan or action plan. STEPS

1. Define clearly goals and responsibilities before the Task Force is created. Reasonable expectations for what the Task Force can and should accomplish in a given amount of time should be set. 2. Recruit Task Force members from organizations that are central to the issue being discussed. Individuals with expertise relevant to the topic at hand should be encouraged to join. Key local leaders should also be included. 3. Organize Task Force meetings well and make incremental progress toward the overall goal at each meeting; there should be a tangible result or product produced at the end of each task force meeting. Task Force members are typically professionals who are volunteering their time to participate in the meetings; in order for them to continue to stay involved, they will need to feel that the meetings are a productive use of time and that incremental results are being achieved. This is why it is also quite important that the results of a task force deliberation be incorporated into public decision-making. 4. Run each meeting according to a predetermined agenda, distributed in advance. [Refer to the Agenda tool.] Ideally, a qualified or professional facilitator will facilitate meetings. To encourage participation, the meeting room should be arranged with chairs and tables either in a circle or U-shape. Use flip charts or other facilitation tools to solicit and record input. 5. Share the results with your staff and the Council and use the data to steer decisions, planning and service improvements. 6. Publish your results so the citizens can see that you based your

decisions on the task force results. POTENTIAL COSTS

EXAMPLE

Expenses: â&#x20AC;˘ Refreshments for members of the Task Force Administrative Costs: â&#x20AC;˘ Staff time to prepare and conduct the meetings

Invitation to task force meeting

ADMINISTRATIVE TOOLS What is the purpose of The administrative tools section outlines a group of specific Administrative Tools? interventions, which create a framework for implementation of various citizen participation tools. This category of tools provides suggestions for systematic changes in how local governments conduct their day-to-day activities, and therefore can lead to the most sustainable changes of any tools in the toolkit. Some of these tools contribute to the legislative environment, often enabling certain transparent procedures (for example transparent budget procedure, which requires implementation of budget preparation tools). Other interventions focus more on defining a specific policy, like a general policy on citizen participation in civic initiatives. Another group of tools provides detailed procedures for financing initiatives or addressing administrative services. One of the most comprehensive tools is the One Stop Shop, which on one hand provides easy and open access to information on local government services (mainly administrative), and on the other hand (which is more important) creates an atmosphere of openness and trust between citizens and local government. Implementation of this tool completely changes organizational structure of local government and the philosophy of providing services. It has a significant positive influence on the willingness of citizens to collaborate with local government officials and staff. Regardless of the tool implemented, it is important to treat citizens professionally at all times and with genuine respect; this creates a solid foundation for any potential citizen participation initiative. What is the selection of Administrative Tools:

The selection of Administrative Tools includes following tools: • Policy on Citizen Participation • NGO Charter • Procedure for Financing Civil Initiatives • Transparent Budget Preparations Process • One Stop Shop • Administrative Service Procedures • Youth Council • Citizen Participation Staff Specialist

TOOL

POLICY ON CITIZEN PARTICIPATION

WHEN TO USE

• •

To demonstrate the local government’s commitment to fostering citizen participation and define the ways in which citizens are encouraged to participate in government To identify the steps in the decision making process during which citizen participation will be solicited

DESCRIPTION

A Policy on Citizen Participation is a tool that lays the foundation for the implementation of all other tools by creating the environment and guidelines for citizen participation. A good way to do this is to develop a general citizen participation policy statement, addressing openness, transparency, partnership, etc. The policy can be a separate council resolution or a part of a local government statute. The lack of a clear policy on citizen participation can create ambiguity for citizens and citizens’ organizations; they often do not know to what extent local government authorities welcome and permit their involvement in activities. The creation of a policy will alleviate this ambiguity and will strengthen the working relationship between local government and citizens. Also, the policy will save time (and therefore money) for the local government, because it will not be necessary to debate the means and extent of citizen participation for each project.

STEPS

1. Create a Task Force to study this issue (referring to various samples from Croatia or abroad) and to prepare a set of initial key principles and general guidelines that will influence the formal policy. The Task Force should be composed of both local government staff members and citizens, and where possible, NGOs. [Refer to the Task Force tool.] 2. Facilitate the discussion by the Board and then by the Council on the principles and guidelines. Once the policy has reached the Council level, an open council meeting should be considered to solicit opinions from citizens. [Refer to the Open Council Meeting tool.] 3. Based on accepted principles and guidelines, prepare a formal document (resolution) that will become a binding policy document. 4. Facilitate implementation of the policy by making sure that all local government activities, decision-making processes, and procedures conform to the Policy on Citizen Participation.

POTENTIAL COSTS

Administrative costs: • Staff time to develop the materials.

EXAMPLE

City of Rijeka Statute (extract)

TOOL

NGO CHARTER

WHEN TO USE

• • •

DESCRIPTION

To define local government policy on civic initiatives, including NGOs To clarify the rules governing the use of local government budget funding to civic initiatives To emphasize the importance of cooperating with NGOs and the synergy that can develop from those relationships

An NGO Charter is a document that defines the local policy on civic initiatives, which is usually adopted as a council resolution. The charter might have a slightly different format from place to place. An NGO Charter should rather focus on an overall policy of the Council on civic initiatives (which is the best approach since the Council is responsible only for setting, but not implementing, policy). It lays the foundation for more detailed documents, including operational procedures and criteria for selecting projects (civic initiatives). Such detailed documents should be adopted by the Board, since the Board is responsible for implementing council policies. [Refer to the Procedure for Financing Civic Initiatives tool.] Sometimes local governments choose to develop a more detailed NGO Charter, which have both elements: policy and implementation details. While some Council members may feel that an overall policy document is too abstract, without concrete rules, procedures, and selection criteria, try to keep the document as simple and focused as possible. The NGO Charter is a very important policy document, as it represents an important commitment to supporting civic initiatives and provides an important approach to building and strengthening civil society. An important role of the charter is that it improves transparency in financing civic initiatives.

STEPS

1. Decide how detailed to make the policy: a more detailed policy including operational issues or general policy document adopted by the Council, which may be then followed up by regulations containing additional details. 2. Set up a Task Force to study the issue and propose a draft policy [Refer to the Task Force tool.] The task force should be composed of local government staff as well as representatives from local NGOs. 3. Through series of workshops, develop a draft NGO Charter document. Try to use clear and easily understandable language. When developing just a policy document try to show “a big picture” – that the policy will be followed by detailed regulations to be developed by the Board. 4. Conduct a public review process (mainly seeking opinion of all NGOs and neighborhood groups) before the Council approves the policy. 5. Present the NGO Charter to the Board and the Council for adoption. Make sure that presentation is clear and shows the bigger picture.

6. After adoption of the NGO Charter, organize the follow up process of developing detailed regulation. [Refer to the Procedure for Financing Civic Initiatives tool.] POTENTIAL COSTS

Administrative Costs: â&#x20AC;˘ Staff time to participate in task force workshops to develop the NGO Charter

EXAMPLE

NGO charter draft, Rijeka

TOOL WHEN TO USE

PROCEDURES FOR FINANCING CIVIC INITIATIVES • • •

To define the local government’s regulations to implement the policy on civic and NGO initiatives To provide clear criteria and procedures for involving NGO sector (or citizens groups) in implementing various projects To increase consistency in financing and budget decisions and to avoid criticism of inconsistency or favoritism

DESCRIPTION

After local government defines its policy on civic and NGO initiatives, it is necessary to define important details of how the policy will be implemented. Procedures for Financing Civic Initiatives governs the way NGOs and other groups propose projects for local government financing. The Procedures are particularly important if the NGO Charter is only a general policy document. Though it is best to first define and adopt an NGO Charter [Refer to the NGO Charter tool.], Procedures can be implemented as a separate tool. The Procedures provide detailed rules and project evaluation criteria for local government co-financing of civic (NGO) initiatives, which potential beneficiaries must follow in order to apply for financing.

STEPS

1. Based on the policy defined in the NGO Charter, prepare the format of procedures in cooperation with local government departments and NGO sector. Consider elements such as criteria, application process, evaluation process, accounting and reporting requirements, etc. 2. Allow each department to prepare proposition of their own regulations on financing civic initiatives in their area, but make sure that their documents have a similar form (provide a format). 3. Present the procedures to the Board for approval. Because it should be based on the NGO Charter, which has been approved by the Council, it should not be necessary to submit the Procedure to the Council. In some local governments, however, it may still be necessary to approach the Council. 4. Create a body (monitoring committee), which will be assigned to monitor the implementation of the procedures and propose changes.

POTENTIAL COSTS

Administrative Costs: • Staff time to prepare procedures

EXAMPLE

Grants procedure of Department of Culture, Rijeka

TOOL WHEN TO USE

DESCRIPTION

TRANSPARENT BUDGET PREPARATION PROCESS •

When local governments want to institutionalize transparency in annual budget preparation process

The budget preparation process is a policy set by each local government; therefore, it should be adopted as council resolution. Usually the existing budget preparation process does not require sufficient involvement of citizens, which leads to a situation in which citizens become disinterested in local government activities and often are more demanding and critical of their local government, and much less understanding of the challenges and restrictions faced by local governments. It is important to mention that there are some guidelines in the law about the budget process, but it does not mean that a particular local government cannot supplement the existing legal requirements with additional requirements of their own. For example, in addition to the legally required elements, the local budget preparation policy can define specific additional elements of the budget process, such as the Mayor’s Budget Message, Budget Public Hearing, Budget in Brief. The policy should also define the timeline for the process. [Refer to the Mayor’s Budget Message and Budget-in-Brief tools.] Though some staff members will protest that this produces more work for the local government staff, the transparent budget process has a valuable purpose and many advantages, and it is worth the additional time commitment. Thus local government staff must be educated and convinced of its worth.

STEPS

1. Draft a description of the transparent budget preparation process. 2. Prepare presentation for the Board, emphasizing benefits of introducing new procedure. 3. Discuss the draft outline of the process at the Board meeting and then submit to the Council for adoption. 4. Implement new policy, facilitating implementation of elements required by the new policy.

POTENTIAL COSTS

Administrative Costs: • Staff time to prepare the new policy

EXAMPLE

Resolution on transparent budget preparation process, Crikvenica

TOOL

ONE STOP SHOP

WHEN TO USE

• • •

DESCRIPTION

To decrease the amount of time required to access administrative services, both for clients and clerks To increase transparency and clarify procedures for administrative services To avoid excessive delays in dealing with administrative services

A One Stop Shop is a service center that provides the most commonly accessed administrative services in a single room or section of a local government office building. Ideally the service desks would all be located in one large room or long hall, similar to a service hall commonly found in many banks. This is an excellent way to increase efficiency and quality in delivering administrative services, because multiple administrative questions can be addressed in a visit to one office/ location. It is also important to address issues and make decisions in public view, as opposed to behind closed doors or in individual offices. This is also a good way to motivate local government employees to work diligently and not waste time or energy, because working directly in the view of the public increases their (individual) accountability. As a result, overall accountability and therefore productivity should increase. Another advantage of this system is that it increases transparency and breaks down an additional barrier between citizens/customers and local government staff members, which creates a better environment for citizen participation. It is important to mention that the number of administrative services (due to less competences) provided by Croatian local governments is relatively low, compared to local governments in many other countries. Therefore, there are potentially fewer services that could be provided through the One Stop Shop model. What is important is to conduct a thorough evaluation of what will be the most efficient and effective for your local government, and to adopt this tool accordingly. If you determine that it would not be either cost or time efficient to create a formal One Stop Shop, it is still useful to consider the principles behind this tool to develop streamlined procedures and leaflets such as those that are usually designed for a One Stop Shop. These procedures can be posted on the local government web page, displayed at the entrance of city hall, and distributed in leaflets at the Public Information Center. [Refer to the Administrative Service Procedures and Public Information Center tools.]

STEPS

1. Analyze the feasibility of creating a One Stop Shop, evaluating which services might be provided, analyzing staff skills, and the potential space available. 2. As it is a quite sophisticated tool and requires good “change management,” prepare a strategy to convince all local government authorities and employees that this will be a beneficial change and that in the long run, it will save both time and money for citizens and local government staff. Because local government employees are often accustomed to traditional work habits and ways of doing

5. 6.

things, they may be significantly opposed to implementing a new way of doing business. Thus, it is important to detail the advantages of the new approach and potential benefits of making employees’ work easier and less time consuming. Usually, a council or board resolution is required to establish a One Stop Shop. Assemble a team to develop the final design of the Shop (including location, types of services to provide, etc.) and associated operating procedures. This team will also be responsible for the design and production of any leaflets or additional information that will be distributed at the One Stop Shop. Prepare the venue, creating desks to serve different services, places to display written materials, and so on. Finalize editing, formatting and printing of all materials, using the same standards for all. Train staff to serve in the Shop, emphasizing understanding of procedures to deal with particular services and communication skills. Organize an opening ceremony. Invite citizens and media to visit the One Stop Shop facility. Ask media to publicize information about the One Stop Shop and its services. Utilize anything that draws attention to the services. Monitor performance of the One Stop Shop to make appropriate adjustments. You may find that once the Shop is up and running, it can easily add additional services to the original list.

POTENTIAL COSTS

Expenses: • Preparing infrastructure of the service hall or room that will house the services (phone and email lines, computer servers, desks or services counters not previously used in other offices, etc.) • Copying/printing leaflets on procedures. • Printing marketing materials that advertise the new system Administrative Costs: • Staff time to plan and organize the layout of the One Stop Shop both the physical layout and the staffing (this is a large task and staff time could be considerable)

EXAMPLE

Information from web page on One Stop Shop in Szczecin (Poland) www.szczecin.pl

TOOL WHEN TO USE

DESCRIPTION

ADMINISTRATIVE SERVICE PROCEDURE â&#x20AC;˘

If procedures for accessing various administrative services are not clearly defined

Establishing clear procedures is an important step toward improving the organization of the entire local government. The procedures should include step by step instructions to help citizens resolve issues or access services, including where to go, how long each step should take (if there is a waiting period), and a schedule of payments. There should also be information available on ways to monitor the status of requests, if the request cannot be resolved on the spot, and the procedure for registering comments or complaints. Procedures should be defined for a variety of administrative services, starting with those that are the most frequently accessed. It is important to establish and publicize these procedures because a procedure can be seen as a kind of promise on the part of the local government: if a customer provides required documents and pays required fees, the local government is responsible for providing a service or resolving his issue within a certain period of time. [Refer to the One Stop Shop tool.]

STEPS

1. Select a set of services for which procedures will be designed. It is likely that the local government is already aware of which services are the most frequently accessed. If not, consult department heads or perhaps conduct a staff survey to find out. 2. Carefully define each step of the procedure. Include where to go, who to contact, office hours, fees, supporting documentation that is required (if any), deadlines, and anything other important information pertaining to that specific service. Also list a web site or phone number to consult for questions or additional information. Preparation of procedures requires coordinated teamwork. Each department, and even each employee, should be involved in developing procedures. It is important to simplify procedures, whenever possible. 3. Once procedures have been designed and finalized test the procedures on a pilot basis. Do no commit to adopting a certain procedure until it has been tested. Make changes and adjustments as necessary, before the procedure becomes policy. 5. Publish a leaflet for each service procedure. The procedures can also be posted on the local government web page, information board, or highlighted in a newsletter. [Refer to the Leaflet tool.] 4. Monitor the use of procedures. Keep in mind that though it is important both for local governments and for citizens to follow the established procedures, the procedures are not set in stone. Rather than simply working around a procedure that is found to be inefficient, expensive, or overly complicated, change the procedure so it will work better for everyone involved. If the established procedure is seen as valuable both by those providing and receiving the services, then everyone will comply with the procedure and the benefits of having such procedures

in place will certainly be attained. POTENTIAL COSTS

Expenses: â&#x20AC;˘ Publication costs for leaflets (optional). Administrative Costs: â&#x20AC;˘ Staff time is necessary to design the procedures.

EXAMPLE

Leaflet on administrative procedure from, Szczecin (Poland)

TOOL

YOUTH COUNCIL

WHEN TO USE

• To increase involvement of youth in local government activities • To assist local government in identifying and addressing issues of interest to youth population • To establish institutional framework for youth to learn about the nature of the public work and democratic procedures in the local community through first hand involvement • To establish a platform for youth to collaborate with their peers • To stem out-migration of young people

DESCRIPTION

Youth Council is a good tool to involve young people in local government activities and to teach them about democracy and its values. More than that, it is an important way that the local government can reach out to a segment of the population who are not often consulted on their needs and opinions on important topics. Youth are often full of ideas and may provide innovative solutions to local or other problems that do not necessarily pertain specifically to them. By consulting youth on their needs and ideas for local government activities and services, the local government demonstrates an important commitment to the future of their community. Sharing responsibility for designing and implementing activities will also help build ownership to and identification with the local community, which in the long run may prevent out migration of motivated and talented youth from the immediate community.

STEPS

1. Create a Youth Council Task Force. Task Force membership should include representatives of the local government council, the mayor and a person/persons responsible to the Council for the implementation of the Youth Council. 2. Discuss and clearly define through Task Force work following issues: - Objectives of Youth Council development; - The main issues the Council will address; - The Youth Council’s Scope of Work; - Youth categories for the membership (age, schools, NGO’s and other youth associations); - Election procedure and mandate; - Frequency of meetings. 3. Consider allocating financial resources to the Youth Council to implement the initiatives they design. 4. Choose a mentor who can assist the Youth Council in their day-to-day activities (ideally it would be a Council member or local government staff person) 5. Make sure that The Council membership is managed democratically. This can be done through elections in schools (or other public elections) or perhaps with of teachers or NGOs working on youth issues. It is important that the selection process be open and transparent, to avoid potential allegations of favoritism or nepotism.

6. Keep in mind that composition of the Youth Council should not reflect the current proportion of the political power in the community. It is very important that all sections of the community are equally represented on the Council. POTENTIAL COSTS

Expenses: â&#x20AC;˘ Printing of promotional materials Administrative Costs: â&#x20AC;˘ Staff time to assist Youth Council activities

EXAMPLE

Board decision on creation of Youth Council, Hrvatska Kostjanica

TOOL WHEN TO USE

CITIZEN PARTICIPATION STAFF SPECIALIST â&#x20AC;˘ â&#x20AC;˘

DESCRIPTION

To consolidate and coordinate citizen participation activities, which insures greater compatibility of initiatives undertaken in various departments To demonstrate a commitment to citizen participation

Establishing a staff position to take charge of citizen participation issues is an important step in demonstrating local governmentâ&#x20AC;&#x2122;s commitment to fostering citizen participation. This person will be an important resource for and coordinator of all citizen participation activities. He will be also responsible for ensuring that all departments adhere to the same standards of citizen participation. Depending on the local needs, they could also act as a liaison with local NGOs and/or serve as public relations specialist. [Refer to the Press Release tool.] If positions such as these already exist in the local government, the citizen participation responsibility could be added to an existing position description. Another alternative, instead of an individual responsible for citizen participation across all local government departments, is to create an interdepartmental team to manage citizen participation throughout the local government.

STEPS

1. Define the Scope of Work for Citizen Participation Staff Specialist. 2. Analyze the organizational structure and Scope of Work of staff members. 3. If there is already a local government staff person in charge of public relations (PR), consider extending current responsibilities to citizen participation. The job of a PR specialist is to communicate with the public on behalf of the local government; often this is done with an important focus on working with the media. They already are responsible for community outreach and probably are aware of many additional avenues that could encourage citizen participation. 4. If there is not a PR position already established, consider creation of a new position to manage either citizen participation alone, or citizen participation plus public relations. Though public relations are the most natural fit for combining responsibilities with citizen participation, it is not the only alternative. Evaluate the responsibilities of local government staff, and determine if the citizen participation responsibility (and accompanying tasks) could easily be combined with another set of responsibilities. 5. Consider possibility to establish an inter-departmental committee to guide and manage citizen participation activities and initiatives. Regardless of the method chosen, it is essential that the person (or persons) working in this capacity truly understands the value of citizen participation, and is committed to it.

POTENTIAL COSTS

Expenses: • Additional resources to staffing the position (if new staff position is created) Administrative costs: • Staff time due to expanded scope of work

EXAMPLE

Scope of Work of CP specialist, Dukla (Poland)

CASE STUDY

Implementation of Citizen Participation Model in Rijeka. Background information. The City of Rijeka is a port city with 175,000 inhabitants. Rijeka is known in Croatia and abroad as a progressive and innovative city, undertaking many initiatives to improve living conditions for its citizens through promoting economic development and civil society. In 2001, Rijeka began working in close cooperation with USAID (United States Agency for International Development) and joined the LGRP (Local Government Reform Project) to improve local government management in a variety of ways. From the LGRP portfolio of technical resources, the city has chosen to focus on financial management, economic development and citizen participation. The choice of citizen participation was quite unique in the Croatian context, which indicates the city of Rijeka’s progressive understanding the importance of involving citizens in the affairs of the city. Choosing the right approach. The implementation of citizen participation techniques/activities, as part of Citizen Participation Model began with an initial evaluation of the citizen participation situation and discussion of possible ways to implement of the LGRP Citizen Participation Model. In consultation, with LGRP technical staff, the City decided to implement both the "Quick Results Approach” and the “Integrated Approach”. The reason to start with the “Quick Results Approach” was the need to achieve results as quickly as possible, partly to convince more people of the need to improve citizen participation, and partly to support other management models being implemented in the city. Implementation of Quick Results Approach. Under the “Quick Results Approach”, the City of Rijeka implemented the following tools: •

•

Community-based strategic planning process – a process finalized in the preparation of an economic development strategic plan for Rijeka (managed by Economic Development Team of LGRP – see Economic Development Manual). “My Vision of Rijeka” contest among young people to involve them in city activities and support the process of developing a local economic development strategic plan. The results of the contest were numerous 82

•

works: drawings, paintings, stories, etc. on the future of Rijeka (see the CP Tool kit). The award ceremony caught attention of media and was widely promoted. Members of the Economic Development task force could take into consideration, when planning a vision of Rijeka, ideas and opinions of young generation. Youth was convinced that their opinion about the future matters to decision makers. Model methodology of a citizens' meeting, implemented and practiced during a meeting with a neighborhood council in the area of a bankrupt paper mill. The meeting was designed to collect citizen opinions on possible future use of the bankrupt facilities and thus influence the decisions of bankruptcy manager and court. A general citizens'survey, which provided useful information on citizens' priorities, their knowledge of City activities, and information sources upon which they rely. The report on the survey results was made available to the media so that the results would be publicized. The results of the survey contributed also to Economic Development strategic planning process.

Implementation of Integrated Approach. In an Integrated Approach, the City of Rijeka organized, after an orientation seminar on citizen participation issues, a citizen participation task force of about 15 participants. They were participating in four workshops to develop citizen participation integrated plan. As a result of their work, the plan was developed including following elements: Summary of analyses of citizen participation situation in the City (in the form of a SWOT table), o o o o

Definition of goals: Citizens better informed and more frequently providing feedback to the city (“communication”). Higher level of citizens participating in budget preparation process (“budget preparation process”). Increased role and activity of the neighborhood councils (“neighborhood councils”). Increased quantity of civic initiatives that solve problems and needs of community (“civic initiatives”). Interventions addressing goals:

Communication: - City newsletter. - Brochure on city’s activities. - Talk shows in local TV. - Feedback channels. Budget preparation process: - Procedures defining open budget preparation process. - Mayor’s budget message. - Public hearings on draft budget. 83

Budget talk show in Canal RI. Budget in brief.

Neighborhood councils: Leaflets on Mjesni Odbor' s activities. Competition on Mjesni Odbor Day. Competition on Mjesni Odbor programs.

Civic initiatives. NGO-City charter. Transparent rules for competitions. Leaflet on civic initiatives.

The Plan was presented to the Board and to the Council and adopted as a policy document. After the adoption, the City of Rijeka began implementing citizen participation tools (after final evaluation of feasibility and decision on top priorities). Results of implementation. In order to address the “communication” goal, the city issued a newsletter distributed to citizens, conducted several talk shows on various important topics and improved communication channels, for example by implementing the project "e-munis", which provided sophisticated Internet platform for communication with citizens and neighborhood councils. The City also decided to broadcast part of the council sessions in local TV. After implementation of the those tools, citizens of Rijeka are better informed and are, due to improved feed back channels, communicating more often with the city. The “budget” goal was addressed by issuing “budget in brief” with elements of Mayor’s budget message, distributed among citizens. It allowed citizens to better understand the local budget, particularly revenues and expenditures. Based on that knowledge, they can better communicate with the city on budget issues. The “neighborhood council” goal was addressed by talk show on that subject and also by a partnership program to involve youth groups and neighborhood councils in developing public space for youth. In order to improve civic initiatives, the work focused on development of an NGO charter (in cooperation with local NGOs) to better facilitate collaboration between NGOs and the city. An important contribution to that goal was made during the, partnership program on youth public spaces. The program, called MU:V (“Mali uce velike”) has raised significant interest among youth. Close to 80 of their representatives participated in information seminar and then those who were directly interested took part in a series of workshops. Six final projects were submitted (October 2003) and will be evaluated by a commission. The best ones are planned to be co-financed by the city.

Due to the implementation of a variety of citizen participation tools, the situation in Rijeka has improved. As changes cannot happen overnight, the city is continuing to analyze the situation and undertake other appropriate actions. Generally, interventions have created a better atmosphere in the city and started a long process or improving trust and partnership in the city. Thanks to these efforts, Rijeka increased their awareness of its citizens and, apart of planned interventions, has implemented other activities supporting participation of citizens (e.g. youth council). The Economic Development Plan, based on a community planning process, has created a critical mass to address many important issues, such as facilities of bankrupt factories (Torpedo) or transportation. In Croatia, as well as internationally, Rijeka has been recognized as a leader in introducing modern local government management managerial methodologies promoting public-civic partnership in various areas of community life. These are important preconditions for the sustainable growth accompanied with improvements in overall quality of life for all citizens of Rijeka. The fact that Rijeka has received a World Bank loan for restructuring the harbor, for example, is certainly influenced by these visible results in the reform of local governance.

GLOSSARY TERMS Budget - a plan of financial activity for a specified period of time (fiscal year) indicating all planned revenues and expenses for the period. Brainstorming - a group technique for solving problems, generating ideas, stimulation, creative thinking, by unrestrained, spontaneous participation in discussion Citizen participation tools – instruments, methods or means for the implementation of the citizen’s active role in the public affairs in the community. Civil initiatives – citizens’ actions, plans or publicly expressed ideas, which are initiating changes in the community: improvements in governance, service provision and overall quality of life. Civic society – society perceived or organized with substantial concern on individual rights of the citizens and his/her opportunity to participate in public affairs. Sometimes used as synonym for the civil society. Civil society – a term sometimes used as synonym for the civic society but with a broader meaning, which includes not only individual interests and rights but also interests and rights of the group of the citizens and all of interests and activities that are not primary determined or regulated by state or business (the third sector). Community-based process - process, which involves entire community: representatives of public and private sector and civic organizations. Grassroots organization – lowest organizational level at local government community, mostly at the level of neighborhoods and smaller citizen groups. NGO – non-governmental organizations of citizens who are eligible to provide services, business, culture and other activities on professional or volunteering basis but which are not eligible to make profit or to sell their property. Informal group – group of citizens which is not organized and registered in any institutional form available such as NGO, state institutions, clubs, confessional associations. The fact that they are not institutionalized doesn’t mean that their activities and initiatives are not legitimate or legal. Informal initiatives – initiatives coming from informal groups of citizens. Public-civic partnership – joint activities/alliances of all of three sectors in the community (public sector, civil society sector and business). An instrument of co-operation between local government, citizens and private business. Tool - an instrument for making material changes on other objects. beings control and manipulate their physical environment. Also: means and methods for making changes in virtual objects (computer software features) and behavior (methodology for the successful meetings etc.) Also: an instrument for making changes in social environment: behavior, communication, procedures (See citizen participation tools).