End of Commitment Report – Organization and implementation of open, transparent and participatory public discussions

Name of Evaluator

Anahit Gharibyan

Email

anagharibyan@gmail.com

Member Name

Yerevan, Armenia

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 – Yerevan, Armenia, 2023 – 2024

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...

Organization and implementation of open, transparent, and participatory public discussions

Action

The main goal of the proposal is to ensure a participatory decision-making process among residents and young people in the fields of community management and democratic processes. The proposal also aims to support the formation of human-centered policies, raise the level of awareness among citizens, and support accountable public administration through enhanced community-resident dialogue. Yerevan Municipality will apply behavioral science tools in all 12 administrative districts, which will stimulate citizens’ interest and promote active participation. Develop the conceptual foundations of communication and information policy, modernize the functional system of institutional management, and introduce innovative models of communication, public awareness, and information addressing process at public discussions organized by the municipality through planning and implementation of the communication. It is planned to introduce additional mechanisms, in addition to the use of awareness measures defined by the law so far, to increase the interest in participating in discussions and to apply more flexible methods of awareness.

Problem

To promote publicity, participation, awareness, and 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 in the process of organizing and implementing public discussions in the local self-government system by introducing a new public and transparent notification system (pilot version). To ensure the transparency of public hearings in the Yerevan Municipality, before they are held, announcements are posted to the official website e-draft.am, yerevan.am, as well as in the daily newspapers. Regular public discussions and open hearings are held in Yerevan Municipality regarding the consideration of the municipal budget, development plans, drafts of local fees, and taxPlacing transparency, accountability, and participation at the center of tax policy can ensure that burdens are distributed equitably across society. Technical specifications: Commitments related to c... rates. The purpose of cooperation with the OGP is to expand the scope of awareness of the citizens through addressed messages and behavioral interventions.

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

Substantial

Provide a brief explanation of your answer:

Throughout most of the interviews, it was observed that the progress in implementing the commitments was greatly influenced by the responsible personnel who were highly motivated to collaborate with CSOs and ensured that the commitments were implemented to a high standard, consistently advocating for the local OGP.
Despite modest outcomes and impact, the efforts to alter the operational approach of the municipality proved successful in advancing this initial phase of the local OGP. The main progress is that, despite the municipality’s previous unsuccessful and ineffective collaboration with CSOs, efforts are underway to involve them or make them active participants in the process of addressing city problems. In this regard, there are already representatives from CSOs involved in implementing joint programs aimed at achieving commitments. Overall, conducting public hearings in various administrative regions of Yerevan marks significant progress.

Provide evidence that supports and justifies your answer:

References: In-depth interviews

1. Meri Harutyunyan- Yerevan Municipality/ Deputy Head of the Department of Development and Investment Programs
2. Ani Harutyunyan- Armavir Development Center NGO
3. Mane Madoyan-Freedom of Information Center NGO
4. Lilya Afrikyan- OGP Secretary of the RA Prime Minister’s Office/Armenian contact person
5. Tigran Mughnetsyan – Transparency International Antricorruption Center
6. Nvard Minasyan – Transparency International Antricorruption Center
7. Levon Barseghyan – Journalists Club Asparez NGO
8. Marina Mkhitaryan – AGBU Armenia Executive Director
9. Inga Zarafyan – “EcoLur” Informational NGO president
10. Viktorya Burnazyan – “EcoLur” Informational NGO
11. Nune Saqanyan – “Women in Climate and Energy”
12. Syuzanna Soghomonyan – Program Coordinator at the Armenian Lawyers Association

Links

• Organizing a meeting-discussion to join the “Open Government Partnership” initiative.
• On December 26, 2022, a discussion of the draft action plan for Yerevan 2023-2024 took place at Yerevan City Hall as part of the Local OGP initiative.
• For the development of the action plan for Yerevan 2023-2024, CSOs, NGOs, and other engaged citizens submitted several sectoral recommendations to be incorporated into the plan. To discuss these suggestions, a meeting was held at Yerevan City Hall on August 31, 2022, involving CSOs, NGO representatives, and other active citizens who had submitted recommendations.
• A public hearing on the annual budget, fee rates, and development plans.
• The staff of the Avan administrative district head in Yerevan expressed a negative opinion on the construction project of the metal smelting site.
• Evaluation of Transparency and Accountability of Yerevan Municipality.

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

Throughout the commitment implementation, both external and internal factors significantly influenced its effectiveness. In general, external factors affecting its implementation primarily include tensions at the country’s borders, ethnic cleansing, and displacement of the population in Artsakh, the low morale and psychological state of the population within the country, Yerevan city council electionsImproving transparency in elections and maintaining the independence of electoral commissions is vital for promoting trust in the electoral system, preventing electoral fraud, and upholding the democr... More, the municipality’s historically closed working style, the lack of public trust in the municipality, and the need for capacity development for CSOs, among others. Specifically, security issues led to a decrease in civil society’s interest and passive 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 in municipality discussions. Additionally, the results of the mayoral elections show a notable decline in citizens’ trust in current authorities and political processes. Under the influence of external factors, the implementation of this commitment has not only slowed down but also at times lost its effectiveness. According to the interviewees, it is challenging to clearly identify which of the aforementioned external factors influenced citizen participation. However, their presence correlated with noticeable passiveness in citizens’ involvement in public discussions within the framework of the OGP.
Regarding internal factors, the primary concern is frequent personnel changes and new appointments, which diminish program stability and create challenges in ensuring continuity in the implemented measures. The low level of visibility of the commitment also affected the results, as CSO representatives complained about the scarcity of information sources, and many people were not informed about it. From the standpoint of commitment implementation, it was problematic that, senior officials were often uninformed about such commitments due to elections or official changes. However, middle-tier officials were highly active and proactive in their work. Nevertheless, they lacked support from the higher echelons.

1.3 Was the commitment implemented as originally planned?

Most of the commitment milestones were implemented as planned

Provide a brief explanation of your answer:

The task was mainly carried out according to pre-planned actions, resulting in a certain level of participation from CSOs and citizens in public discussions and events held in the municipality. However, according to the CSOs involved in the evaluation, programs implemented jointly with CSOs represent overall positive progress. Nevertheless, there has been a lack of instruments to clearly measure participation, hindering the evaluation of participation activity from both citizens and CSOs. Furthermore, there is no clear criterion to determine whether 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 any event can be considered complete; even the participation of one or two individuals may be accepted as sufficient. Although the components of the commitment related to public awareness and dissemination of information about events held in the municipality were evaluated satisfactorily by CSOs, the frequency of these events and discussions did not ensure consistency and was perceived as situational for some CSOs.

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.

Almost all representatives of CSOs expressed their belief that the municipality generally provides a proper response to any written information request, especially if it pertains to factual data and figures and is correctly formulated. However, inquiries labeled as opinion surveys, which delve into the reasons behind decisions and their implementation, often go unanswered due to their subjective nature.
TIAC conducted a monitoring study on this issue, evaluating most of the responses to official inquiries sent to the municipality as exhaustive (16 out of 25, 64%, TIAC monitoring report, on page 26) in its report.
The municipality provides access to information for wide groups of the public through Facebook and Instagram pages created within the framework of the project. Additionally, the Active Citizen platform was launched to facilitate communication with the municipality.
Furthermore, the Call Center’s operations were revamped, and employees underwent training to ensure more courteous communication with citizens. The Hotline and “One Window Principle” typically enable citizens to report city problems and track the progress of their complaints through official notifications.
In response to feedback and recommendations, the municipality initiated efforts to upgrade its official website and enrich existing information. This aims to make information more accessible to citizens and other interested parties. However, experts note that despite changes to the website, there has been no improvement in the quality or targeting of information. “In other words, significant efforts are needed here because there’s a gap between the municipality and the public. The decision-making process or the formation of the council of elders’ agenda is not clear to the citizens of Yerevan. Therefore, additional efforts and work are needed,” stated the expert.

During the assessment, the majority of respondents believed that creating a single information system for collecting and presenting information would prevent information loss due to various official and personnel changes. “Let’s not lose information and memory with the departure of an individual; let’s not lose skills,” remarked Nune Saqanyan.

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:

Major

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

To ensure the participation of CSOs and citizens, the municipality disseminated information through all available channels, according to interviewed CSO representatives. Citizens’ involvement in discussions and public hearings provided them with the opportunity to collectively address issues of public concern, focusing on matters that promote more open, transparent, and accountable governance mechanisms. Some CSO representatives noted that such meetings had never been organized before by the Yerevan Municipality. Despite the participation of only a small number of individuals, these gatherings are fostering a culture of active dialogue with civil society and the public. The rapid development of mechanisms enabling citizen and CSO participation within a short timeframe was also seen as encouraging.
For instance, according to the information obtained by the Municipality, 7 meetings were organized, with 47 citizens registering to participate. However, only 24 citizens (half of those registered) actually attended the meetings, of whom 10 subsequently provided feedback to the municipality. Additionally, CSOs were involved in this process.
Consequently, there were a total of 15 meetings/discussions in which CSOs had the opportunity to participate, including online sessions. 10 (ten) CSOs were pre-registered to participate, but only 6 (six) actually did so. 7 (seven) CSOs provided feedback from the discussions with the municipality.
As part of the commitment, the municipality launched Instagram and Facebook pages, facilitating the rapid dissemination of information to the public. This approach is more citizen-centric. Additionally, the Yerevan Municipality is becoming more interactive and participatory, maintaining fresh content on its pages, according to CSO representatives and experts interviewed.
However, pessimistic views prevail among both CSOs and individual experts, who believe that these commitments represent small measures toward achieving open governance. “These are elements intended to gradually promote open governance. Yet, even the commitments undertaken by the municipality do not immediately lead to radical transparency, accountability, and participation. While there are some elements of participation, which are perhaps the most significant aspect of OGP, there isn’t as much progress in terms of accountability and transparency” stated the expert.

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

Yes

Degree of result:

Marginal

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

Overall, civil society representatives commend the municipality’s initial efforts to provide a platform for discussing public issues with citizens. Despite concerns about the effectiveness of these discussions and participation levels, given the existing obstacles, it presents an opportunity to change institutional approaches and involve citizens in decision-making processes, thus enhancing participation in discussions.
Many CSOs express their belief that despite the positive progress made within the commitment framework, there remains a prevalent perception in society that the municipality conducts many processes behind closed doors, without public discussions. Reference is made to recent municipal decisions regarding red lines, university tennis court rulings, etc., which lacked extensive public discussion. Additionally, a recommendation is made to issue press releases in a timely and targeted manner, focusing initially on construction permits and urban development works, areas where public confidence in municipal decisions is vital.
CSO representatives also stress the importance of political will from city authorities to adopt more open and transparent practices. Specifically, concerns are raised about the lack of political will enabling citizen and CSO participation in Council of Elders meetings, despite them being broadcasted. Consequently, individuals in high positions are perceived as insufficiently transparent and accountable to the public in their decision-making processes.
On the other hand, the absence of public reports on expenses compensated by Yerevan city councils is also problematic. While councils mainly receive compensation as a royalty, there’s no public accountabilityAccording to OGP’s Articles of Governance, public accountability occurs when ”rules, regulations, and mechanisms in place call upon government actors to justify their actions, act upon criticisms ... More regarding the use of these funds. According to civil society representatives, although there have been a few exceptions, this lack of financial transparency is systematic.
Furthermore, CSO representatives note that OGP principles have yet to become a priority for high-level municipal officials, hindering advocacy efforts for change based on these principles.
Experts also highlight the need for regular meetings with CSOs. Currently, there’s a lack of systematic quarterly meetings with CSOs, which hampers collaboration. To address this, a proposal is made to establish a working group or involve other partners to hold regular online meetings and fulfill commitments more effectively.

2.1.4 Other Results

Not Applicable

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:

Most CSO representatives affirmed that the commitment addresses a critical public policy problem. CSOs participating in the research emphasize that citizen participation at the local level can be more impactful than at the national level because it directly affects their daily lives and activities within communities. Therefore, intensifying the participation of CSO representatives and citizens in community and municipal decision-making processes is crucial within this commitment to foster a more open, transparent, and accountable environment. CSO representatives highlight the importance of promoting public participation, particularly concerning the Yerevan Municipality, given its historical traditions and limited accessibility for the public, as acknowledged by its employees.
Furthermore, the commitment serves as a key tool for implementing direct democracy, which holds significant importance for Yerevan, given its over-centralization and high population density as the capital.

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.

To enhance the effectiveness of OGP commitments, a suggestion was made to appoint OGP officers in all administrative areas of Yerevan or allocate specific time periods for employees to focus solely on OGP matters. This approach aims to mitigate the risk of losing momentum if the responsible person changes and to prevent physical overload for one individual handling all OGP actions.
Since citizen engagement at the community level is more tangible and active, they play a more direct role in participation. Therefore, it’s crucial to tailor citizen participation initiatives to specific target groups. For instance, distributing information through Facebook or Instagram may engage the younger population, while SMS messages or postal letters may reach a more passive population. Similarly, event formats should be adapted to suit the characteristics of the target audience, such as round-table discussions for middle-aged individuals and more interactive online or hackathon formats for young people.
Within the OGP commitment framework, there have been shifts in citizen behavior and increased motivation, as citizens now have a platform to discuss and address longstanding issues with the municipality. Many people have found working with the OGP toolkit beneficial, as it facilitates dialogue and problem-solving that was previously lacking.
Several discussions organized during the previous year were deemed effective for this initial stage by participants. Additionally, there is a call for the municipality to conduct larger-scale meetings with CSOs to address all public problems comprehensively. Many interviewed CSO representatives believe that lobbyingLobbying transparency allows the public to ensure that there is diversity of participation and contribution to public decision-making. Technical specifications: Policies and actions affecting lobbying... and advocacy efforts are essential to bolstering OGP ideas within the municipality.
Suggestions have been put forward regarding Council of Elders meetings to make them not only public but also participatory. This would involve citizens and civil society organizations in raising issues that concern them.