End of Commitment Report – Implementation of an E-Service for Participatory Budgeting

Name of Evaluator

Mendeš, Obrt za usluge, vl. Ivona Mendeš Levak

Email

[email protected]

Member Name

Zagreb, Croatia

Action PlanAction plans are at the core of a government’s participation in OGP. They are the product of a co-creation process in which government and civil society jointly develop commitments to open governmen... Title

Action plan – Zagreb, Croatia, 2024 – 2025

CommitmentOGP commitments are promises for reform co-created by governments and civil society and submitted as part of an action plan. Commitments typically include a description of the problem, concrete action...

Implementation of an E-Service for Participatory Budgeting

Title

Implementation of an E-Service for Participatory Budgeting

Action

This commitment involves developing and launching an electronic service platform that allows Zagreb citizens to participate directly in the municipal budgeting process. Implementing e-service participatory budgeting in Zagreb aims to boost citizen engagement by encouraging active participation in proposing and voting on budget priorities, enhancing transparencyAccording to OGP’s Articles of Governance, transparency occurs when “government-held information (including on activities and decisions) is open, comprehensive, timely, freely available to the pub... More, and ensuring equitable fund distribution aligned with community needs to foster stronger local governance trust.The overall objective of this commitment is to empower Zagreb’s citizens by providing them with a direct role in the budgeting process. By implementing an e-service for participatory budgeting, the city aims to create a more transparent, inclusive, and democratic system for allocating public funds, ensuring that the community’s voice is heard and its needs are met. This initiative seeks to build a stronger, more engaged civic community and enhance the efficiency and responsiveness of municipal governance.

Problem

This commitment seeks to resolve the issue of inadequate citizen engagement and transparency in the budget allocation process. Currently, many residents of Zagreb feel disconnected from how public funds are distributed and utilized, leading to a perception of misallocation and a lack of trust in local government. By implementing an e-service for participatory budgeting, this initiative aims to empower citizens to have a direct say in budgetary decisions, ensuring funds are allocated according to community needs and priorities. This will enhance transparency, accountability, and public trust in the municipal budgeting process.

1.1 What was the overall level of progress in the commitment implementation at the time of this assessment?

complete

Provide a brief explanation of your answer:

The activity was fully completed during the commitment implementation period. The main objective – enhancing public participationGiving citizens opportunities to provide input into government decision-making leads to more effective governance, improved public service delivery, and more equitable outcomes. Technical specificatio... in budgeting process by developing an e-service platform – had to be completed during the local budgetary planning process (Sept.-Dec. 2024). In that time, the platform was developed, 16 citizen meetings were conducted to ensure it met community needs and priorities, alongside pilot testing the e-service’s functionality and effectiveness through its launch and integration into the existing budgeting process in 4 out of 17 city districts. 593 citizens decided on the allocation of about 6% of their city district’s budget (ranging from €60.000-103.000 in total) by using the new e-participation tool and participating in workshops/citizen meetings. The final budget was adopted on 5 Dec. 2024 by City Assembly, completing the technical portion of the commitment, with implementation of 16 projects chosen to take place during 2025, 3 of which are already implemented.

Provide evidence that supports and justifies your answer:

• The City of Zagreb’s e-Participatory Budgeting website
• Reports on evaluated project proposals, project proposal approved for voting, priority lists and lists of chosen project proposals per city district (Peščenica – Žitnjak, Podsused – Vrapče, Trešnjevka – jug and Trnje)
• Proračun Grada Zagreba za 2025. i projekcije za 2026. i 2027. godinu [Budget of the City of Zagreb for 2025 and projections for 2026 and 2027] (Official Gazette of the City of Zagreb, 42/24)
• Zagreb Action Plan 2024-2025
• 7 stakeholder interviews conducted from 27 Feb. – 12 Mar. 2025

Evidence HRZAG0002

1.2 Describe the main external or internal factors that impacted implementation of this commitment and how they were addressed (or not).

• A tight development timeline (Jun.-Dec. 2024) with little prior digital infrastructure or experience on this scale: parallel pilot testing and integration into the budget process, with real-time systematic stakeholder feedback and quick adjustments to improve the functionality and user experience. Post-project evaluation indicates a need for further technical and visual enhancements
• Voluntary district participation (4 out of 17 elected to participate in pilot): districts received direct outreach and support from the City, the voluntary approach allowed for focused troubleshooting but limited the overall reach of the initiative. After launch, citizens from non-participating districts expressed disappointment at being excluded, highlighting the need for future expansion
• Challenges in mobilizing and informing citizens: district led outreach campaigns (social media, press, website, posters, bulletin boards, etc.), 4 moderated citizen meetings were held in each district, covering local governance, participatory budgeting principles, proposal voting, and results, with feedback actively gathered and used to refine the process. High engagement was achieved: 90% of citizens submitting proposals also participated in voting, indicating strong ownership and interest
• Transparency and trust: the historically present lack of transparency and low public trust was addressed by publishing all key documents on the e-participatory budgeting website; the evaluation process was transparent (clear criteria and public reporting at every stage); the final budget was formally adopted by the City Assembly, reinforcing institutional accountability
• Budgetary constraints and allocation: although only 6% of each district’s budget was allocated, budget limits and rules were clearly communicated, setting realistic expectations. In some districts, a single large project consumed the entire allocation, highlighting the need for future guidance to encourage broader distribution of funds.

1.3 Was the commitment implemented as originally planned?

All of the commitment milestones were implemented as planned

Provide a brief explanation of your answer:

The commitment was implemented in line with its original design, objectives and timeline, successfully establishing a foundation for broader participatory budgeting. The e-platform was developed, tested and launched on schedule, with citizen meetings conducted across city districts to ensure input and transparency. 593 citizens proposed 252 projects, 73 were voted on via the platform, selecting 16 initiatives for funding. The city budget, including these projects, was formally adopted on 5 Dec. 2024. All stages were documented publicly, and feedback loops were integrated to refine the process. While participation was limited to voluntary districts, this aligned with the phased approach. Stakeholder feedback highlighted areas for improvement (enhanced promotion, technical upgrades) but these were post-implementation lessons, not deviations from the original plan. The core objectives of launching the tool, enabling citizen-driven budgeting, and ensuring transparency were fully achieved.

Provide evidence for your answer:

• The City of Zagreb’s e-Participatory Budgeting website
• Reports on evaluated project proposals, project proposal approved for voting, priority lists and lists of chosen project proposals per city district (Peščenica – Žitnjak, Podsused – Vrapče, Trešnjevka – jug and Trnje)
• Proračun Grada Zagreba za 2025. i projekcije za 2026. i 2027. godinu [Budget of the City of Zagreb for 2025 and projections for 2026 and 2027] (Official Gazette of the City of Zagreb, 42/24)
• Zagreb Action Plan 2024-2025
• 7 stakeholder interviews conducted from 27 Feb. – 12 Mar. 2025

2.1.1. – Did the government disclose more information; improve the quality of the information (new or existing); improve the value of the information; improve the channels to disclose or request information or improve accessibility to information?

Yes

Degree of result:

Major

Explanation: In narrative form, what has been the impact on people or practice.

The commitment increased the amount and quality of information disclosed and made it more accessible, valuable, and actionable for citizens, marking a substantial improvement in government transparency and public engagement across all key dimensions of information openness:

• Disclosing more information: all stages of the participatory budgeting process (project proposals, evaluation criteria, voting results, final allocations) were systematically published online, going beyond previous, usually top-down practices
• Improving information quality: the information provided was more extensive, detailed and timely. Citizens could track each step of the process, ensuring data was relevant and actionable
• Enhancing information value by linking information directly to participatory decision-making, allowing citizens to see their input shaping outcomes. This fosters a sense of ownership and trust, with hopefully tangible effects after implementation
• Improving channels for disclosure and requests: the new e-service itself constituted a major improvement in the channels available for accessing and submitting information. Also, in-person meetings and outreach campaigns further diversified how information was shared and collected
• Boosting accessibility: information was made accessible through a user-friendly digital interface and supplemented by public meetings with local representatives. This included the less digitally literate and ensured key documents were available to all.

Provide evidence for your answer:

• The City of Zagreb’s e-Participatory Budgeting website
• Reports on evaluated project proposals, project proposal approved for voting, priority lists and lists of chosen project proposals per city district (Peščenica – Žitnjak, Podsused – Vrapče, Trešnjevka – jug and Trnje)
• Proračun Grada Zagreba za 2025. i projekcije za 2026. i 2027. godinu [Budget of the City of Zagreb for 2025 and projections for 2026 and 2027] (Official Gazette of the City of Zagreb, 42/24)
• Zagreb Action Plan 2024-2025
• 7 stakeholder interviews conducted from 27 Feb. – 12 Mar. 2025

2.1.2. – Did the government create new opportunities to seek feedback from citizens/enable participation inform or influence decisions; improve existing channels or spaces to seek feedback from citizens/enable participation/ inform or influence decisions; create or improve capabilities in the government or the public aimed to improve how the government seeks feedback from citizens/enables participation/ or allows for the public to inform or influence decisions?

Yes

Degree of result:

Outstanding

Explanation: In narrative form, what has been the impact on people or practice.

The government of Zagreb made significant advances in all 3 areas, by both creating and improving opportunities and channels for citizen participationAccording to OGP’s Articles of Governance, citizen participation occurs when “governments seek to mobilize citizens to engage in public debate, provide input, and make contributions that lead to m... More and feedback, and building new capabilities in participatory governance:

• Creating new opportunities for feedback and participation: the e-participatory budgeting platform was a pioneering initiative, establishing the first formal, digital channel for citizens to propose, discuss, and vote on local budget priorities, complemented by 16 public meetings across 4 districts, providing additional offline spaces for dialogue and feedback
• Improvement of existing channels or spaces: existing engagement spaces, i.e. ZgForum, district offices, were used to promote broader, more structured participation, combining digital tools with traditional community meetings, and integrating feedback mechanisms at every stage
• Building government and public capabilities: it fostered new skills among city officials, district representatives and moderators, who gained experience in facilitating participatory processes and managing digital engagement, and among citizens improved digital and fiscal literacy and understanding of local governance.

Provide evidence for your answer:

• The City of Zagreb’s e-Participatory Budgeting website
• Reports on evaluated project proposals, project proposal approved for voting, priority lists and lists of chosen project proposals per city district (Peščenica – Žitnjak, Podsused – Vrapče, Trešnjevka – jug and Trnje)
• Proračun Grada Zagreba za 2025. i projekcije za 2026. i 2027. godinu [Budget of the City of Zagreb for 2025 and projections for 2026 and 2027] (Official Gazette of the City of Zagreb, 42/24)
• Zagreb Action Plan 2024-2025
• 7 stakeholder interviews conducted from 27 Feb. – 12 Mar. 2025

2.1.3 Did the government create or improve channels, opportunities or capabilities to hold officials answerable to their actions?

Yes

Degree of result:

Major

Explanation: In narrative form, what has been the impact on people or practice.

The government created and improved channels, opportunities, and capabilities for holding officials answerable to their actions through the e-participatory budgeting pilot. The introduction of the e-platform established a new, transparent channel for citizens to propose, discuss, and vote on local budget priorities. This process required city officials and district representatives to publicly document each stage of the budgeting process, including the evaluation of citizen proposals, voting results, and final budget allocations, on the official platform. All key decisions and outcomes were made accessible online, allowing citizens to scrutinize how their input was considered and how funds were ultimately allocated.
Additionally, the process included 16 public meetings across 4 districts, where moderators facilitated direct dialogue between citizens and local authorities. Feedback mechanisms were built in, enabling citizens to provide input and receive explanations regarding accepted or rejected proposals. City officials were thus required to justify their decisions both publicly and to the participants, fostering a culture of accountability.
Although the pilot was limited in scale, it set a precedent for transparent, participatory governance and created a replicable model for broader implementation. By institutionalizing citizen oversight and requiring public reporting at every step, the government meaningfully enhanced its accountability to the public in the budget process.

Provide evidence for your answer:

• The City of Zagreb’s e-Participatory Budgeting website
• Reports on evaluated project proposals, project proposal approved for voting, priority lists and lists of chosen project proposals per city district (Peščenica – Žitnjak, Podsused – Vrapče, Trešnjevka – jug and Trnje)
• Proračun Grada Zagreba za 2025. i projekcije za 2026. i 2027. godinu [Budget of the City of Zagreb for 2025 and projections for 2026 and 2027] (Official Gazette of the City of Zagreb, 42/24)
• Zagreb Action Plan 2024-2025
• 7 stakeholder interviews conducted from 27 Feb. – 12 Mar. 2025

2.1.4 Other Results

Yes

Degree of result:

Major

Explanation: In narrative form, what has been the impact on people or practice.

Several relevant results extend beyond the standard assessment categories:

• Capacity buildingEnhancing the skills, abilities, and processes of public servants, civil society, and citizens is essential to achieving long-lasting results in opening government. Technical specifications: Set of ac... and digital literacy: the project improved citizens’ digital skills, many gained practical experience with digital participationMany governments are creating online mechanisms for citizens to petition, call for action, and participate in making decisions on issues they care about.  Technical specifications: Refers to public p... More, which can have lasting benefits for future civic engagement
• Feedback-driven implementation: suggestions were actively and iteratively collected and analyzed, leading to immediate improvements and demonstrating a commitment to responsiveness
• Community awareness and demand: despite not funding its promotion and dissemination, the pilot generated notable interest and demand from citizens in non-participating districts, which is a positive signal for scaling up and institutionalizing the model citywide or even to other local units, as expressed by the interviewed Association of Cities in Croatia
• Institutional learning: City officials and district representatives gained valuable experience in facilitating participatory processes, managing digital tools, and communicating transparently, fostering a culture of openness within local government
• Foundation for broader reform: a replicable model was established that can be expanded to other districts and potentially adapted for other areas of public decision-making, i.e. urban planning or service delivery
• Trust building: early evidence suggests that the transparent, inclusive process has begun to rebuild trust between citizens and local government, a critical step for long-term democratic renewal.

Provide evidence for your answer:

• The City of Zagreb’s e-Participatory Budgeting website
• Reports on evaluated project proposals, project proposal approved for voting, priority lists and lists of chosen project proposals per city district (Peščenica – Žitnjak, Podsused – Vrapče, Trešnjevka – jug and Trnje)
• Proračun Grada Zagreba za 2025. i projekcije za 2026. i 2027. godinu [Budget of the City of Zagreb for 2025 and projections for 2026 and 2027] (Official Gazette of the City of Zagreb, 42/24)
• Zagreb Action Plan 2024-2025
• 7 stakeholder interviews conducted from 27 Feb. – 12 Mar. 2025

2.2 Did the commitment address the public policy problem that it intended to address as described in the action plan?

Yes

Provide a brief explanation of your answer:

The commitment successfully addressed its core public policy problem of inadequate citizen engagement and transparency in Zagreb’s budget allocation process, though with limitations inherent to its pilot phase. By developing a functional e-service platform and integrating it into the budgetary workflows of four districts, the initiative created a structured mechanism for direct citizen input, marking a shift from the previous top-down decision-making model. While the voluntary district participation (4/17) limited geographic equity, the pilot demonstrated successful fund distribution aligned with local priorities, from skate parks to community centers.
The commitment advanced Zagreb’s long-term open government goals by establishing a replicable model for participatory governance. While not yet transformative citywide, it created infrastructure and procedural precedents for equitable resource allocation and is a foundational step toward systemic change.

Provide evidence for your answer:

• The City of Zagreb’s e-Participatory Budgeting website
• Reports on evaluated project proposals, project proposal approved for voting, priority lists and lists of chosen project proposals per city district (Peščenica – Žitnjak, Podsused – Vrapče, Trešnjevka – jug and Trnje)
• Proračun Grada Zagreba za 2025. i projekcije za 2026. i 2027. godinu [Budget of the City of Zagreb for 2025 and projections for 2026 and 2027] (Official Gazette of the City of Zagreb, 42/24)
• Zagreb Action Plan 2024-2025
• 7 stakeholder interviews conducted from 27 Feb. – 12 Mar. 2025

3. Provide at least one lesson or reflection relating to the implementation of this commitment. It can be the identification of key barriers to implementation, an unexpected help/hindrance, recommendations for future commitments, or if the commitment should be taken forward to the next action plan.

The commitment established a sound foundation for expanding participatory budgeting citywide, with clear pathways for technical, organizational, and outreach improvements in future cycles. This represents a major step toward openness, laying groundwork for systemic change, but requires expansion to transform “business as usual” across all city districts.

Key lessons and recommendations:

• Promotion: Future cycles should invest more in targeted outreach and communication to maximize citizen awareness and participation. This means allocating a budget towards a broader campaign.
• Technical Improvements: The platform should be further refined for usability and visual appeal. It could also be adapted to other issues, increasing citizen participation in.
• Up-scaling: The model is ready to be expanded to all city districts and potentially adapted for other participatory processes in domains such as human rightsAn essential part of open government includes protecting the sacred freedoms and rights of all citizens, including the most vulnerable groups, and holding those who violate human rights accountable. T..., urban planning or service delivery, increasing its social impact and inclusiveness. The model and acquired know-how could also be applied to other local self-government units, in cooperation with stakeholders such as the Association of Cities in Croatia.