Inception Report – Action plan – Athens, Greece, 2025 – 2028
- Action Plan: Action plan – Athens, Greece, 2025 – 2028
Overview
Name of Evaluator
Charalampos Bratsas | Open Knowledge Foundation Greece
Member Name
Athens, Greece
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 – Athens, Greece, 2025 – 2028
Section 1.
Compliance with
co-creation requirements
1.1 Does a forum exist?
Yes
Provide a brief explanation of your answer:
In November 2024, the Municipality of Athens created its OGP Local working group. It consisted of elected officials, municipal executives, and representatives of Civil Society. In February 2025, after multiple consultations, the members of the working group decided by vote to participate in the OGP Local with the WeOpenGov forum. The WeOpenGov Forum develops a fully functional multi-stakeholder network that co-designs actions based on the principles and practices of Open Government and, most importantly, creates a culture of participation that is valuable for the effective implementation of the National Action Plans for Open Government (e.g., National Action Plan for the Fight against Corruption).
Provide references here (e.g., interviews):
1.2 Is the forum multi-stakeholder?
Yes
Provide a brief explanation of your answer:
The WeOpenGov: Civil Society Network – Public Bodies for Open Government is implemented within the framework of the Active Citizens Fund program, with 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 International Greece as the implementing agency and partners the National Network for Technology and Research Infrastructures – EDYTE S.A. (GRNET) and the National and Kapodistrian University of Athens / Digital Media for Participation Research Group (EKPA dmPart).
WeOpenGov is a multi-stakeholder forumRegular dialogue between government and civil society is a core element of OGP participation. It builds trust, promotes joint problem-solving, and empowers civil society to influence the design, imple... and a participatory space for the development, implementation, and review of the action plan. It is a permanent advisory body that brings together public officials and non-governmental stakeholders. Additionally, it covers various needs, such as:
- The coordination between Civil Society Organizations on issues of 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..., transparency, and accountability
- The creation of permanent points of contact between the Government and Civil Society
- The acquisition of knowledge and educationAccountability within the public education system is key to improving outcomes and attainment, and accountability is nearly impossible without transparent policies and opportunities for participation ... by policy makers and Public Administration executives on the values of Civil Society participation throughout the planning of public policies, skills, and implementing them in a collaborative way
- The awareness of Civil Society on Open Government.
Overall, the forum has representatives from 20 entities.
Provide references here (e.g., interviews):
1.3 Does the forum hold at least one meeting with civil society and non-governmental stakeholders during the co-creation of the action plan?
Yes
Provide a brief explanation of your answer:
Based on the evidence found, there has been more than one meeting. In particular, WeOpenGov held a meeting in Athens in March 2025, titled “Strengthening Open Government in Greece”. This meeting brought together public bodies, civil society, academia, and the private sectorGovernments are working to open private sector practices as well — including through beneficial ownership transparency, open contracting, and regulating environmental standards. Technical specificat... More to discuss themes that include the role of Municipalities in co-shaping multi-stakeholder actions. Its aim was to promote transparency, accountability, and active participation of citizens in decision-making processes (Evidence 1)
As a result, the ground was laid for the co-creation processCollaboration between government, civil society and other stakeholders (e.g., citizens, academics, private sector) is at the heart of the OGP process. Participating governments must ensure that a dive... to begin. Afterward and for the next two months (April and May 2025), public consultations between all interested parties took place, via a dedicated platform (See more below in Section 2.2). Acknowledging the dynamics of public consultations, the OGP Local working group decided to extend the consultations for a short time period. For this reason, in mid-May 2025, an event was organized with four thematic workshops. In each workshop, citizens, representatives of institutions, and elected officials met and talked about:
- EnergyEnsuring universal access to sustainable, dependable, and affordable energy is critical to every aspect of prosperity. Increasing public oversight and transparency in the energy sector can help to ens... More Democracy and Vulnerability (workshop video)
- Housing and Sustainable Development (workshop video)
- Universal Accessibility at Physical and Digital Levels (workshop video)
- Transparency, Accountability and Participatory Budgeting (workshop video)
In total, 20 meetings took place throughout the co-creation process of the Action Plan. (Evidence 2)
Provide references here (e.g. interviews):
1.4 Has the action plan been endorsed by the stakeholders of the forum or steering committeeThe Steering Committee is OGP’s executive decision-making body. Its role is to develop, promote and safeguard OGP’s values, principles and interests; establish OGP’s core ideas, policies, and ru.../group?
Yes
Provide a brief explanation of your answer:
In July 2025, the Council of the Municipality of Athens approved the Action Plan and the Strategic Vision for its participation in the OGP Local. Athens thus became the first and only municipality in Greece to actively adopt the principles of open governance at the local level, promoting transparency, accountability, and 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 the formulation and implementation of public policies. The Action Plan 2025-2028 was developed through extensive co-formulation with civil society, the academic community, and social actors. Their cooperation resulted in key “milestones” such as the public consultations and the four thematic workshops, which facilitated the open dialogue between elected officials, citizens, and scientists. The Action Plan includes commitments for universal accessibility, energy democracy, a participatory housing matching platform, as well as strengthening transparency and 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. The Strategic Vision of the Municipality focuses on creating a participatory, transparent, and inclusive city, where citizens become equal partners in policymaking.
Provide references here (e.g., interviews):
Section 2.
Recommended practices
in co-creation
2.1 Does the government maintain a Local OGP website or webpage on a government website where information on the OGP Local process (co-creation and implementation) is proactively published?
Yes
Provide a brief explanation of your answer:
The Municipality of Athens maintains a webpage dedicated to its OGP Local participation. The page is online and can be easily found.
Provide references here (e.g. interviews):
2.2 Did the government provide information to stakeholders in advance to facilitate informed and prepared participation in the co-creation process?
Yes
Provide a brief explanation of your answer:
All the issues up for discussion and public consultation were accompanied by additional information that was publicly available. The data from the public consultations was also available to all via a dedicated platform. Ultimately, all this information served as the basis for the construction of the action plan.
Provide references here (e.g. interviews):
2.3 Did the government ensure that any interested member of the public could make inputs into the action plan and observe or have access to decision-making documentation?
Yes
Provide a brief explanation of your answer:
In order to ensure that any interested member of the public could make inputs into the action plan and observe or have access to decision-making documentation, the OGP Local working group created the aforementioned public consultation platform, allowing the information to circulate freely, and invited the public to participate via announcements on social media networks and official websites. Via this platform, all interested members were able to participate in two ways.
Firstly, by a “Short submission of opinion via Pol.is: For each thematic section, a special vote was set up in the participatory analysis tool Pol.is – an innovative digital platform that allows the collection and grouping of opinions through short statements (poll statements). Participants could declare agreement, disagreement, or neutrality with each proposal, add their own, and dynamically see how common positions are recorded between groups of citizens. The use of Pol.is contributed to the mapping of trends and convergences in public opinion.
Secondly, by a “detailed proposal via comment on the consultation page”. Participants had the opportunity to submit an extensive comment or detailed proposal in the corresponding thematic section of the consultation, describing in their own words ideas, observations, or good practices.
Provide references here (e.g. interviews):
2.4 Did the government proactively report back or provide written feedback to stakeholders on how their contributions were considered during the creation of the action plan?
Yes
Provide a brief explanation of your answer:
The Municipality of Athens, via its dedicated OGP Local participation website, provided detailed feedback to all interested parties via announcements of all public consultation proceedings. Worth mentioning is the extensive presentation and analysis of each contributor’s position that helped shape the content of the Action Plan.
Provide references here (e.g. interviews):
2.5 Was there an iterative dialogue and shared ownership between government and non-governmental stakeholders during the decision making process, including setting the agenda?
Yes
Provide a brief explanation of your answer:
The dialogue between all participating bodies was realized in multiple instances and lasted for almost 4 months. The OGP Local Working Group functioned as a permanent “meeting point” – with regular meetings (over 13) and collaboration with other thematic groups and bodies, ensuring continuity in the participatory process. The combined use of online consultations, thematic workshops, and continuous activations offered a comprehensive and multidimensional framework for cooperation between the Municipality and civil society. The results of their close collaboration were depicted in the detailed action plan consisted of all the discussions, the proposals, and commitments.
Provide references here (e.g. interviews):
Evidence: Action Plan pages 40-41
2.6 Would you consider the forum to be inclusive and diverse?
Very
Provide a brief explanation of your answer:
To ensure diversity and inclusionOGP participating governments are working to create governments that truly serve all people. Commitments in this area may address persons with disabilities, women and girls, lesbian, gay, bisexual, tr... More, the Municipality of Athens took a series of measures to enhance the participation of vulnerable or marginalized groups in co-creation spaces. In thematic workshops, the possibility of remote monitoring via live streaming was provided, while in some of the workshops, there was simultaneous interpretation in sign language, facilitating access for people with hearing impairments. At the same time, thematic targeting was sought in areas of social priority (such as accessibility, energy poverty, housing), with an active invitation to bodies representing vulnerable groups, such as E.S.A.meA., the Greek Network for the Right to Housing and Residence, etc. Furthermore, the cross-sectoral composition of the Working Group for OGP Local, with the participation of elected officials and bodies with experience in inclusion issues, constituted an additional guarantee for the formation of an open and inclusive framework for participation
The thematic workshops were attended by organizations active in fields such as transparency and accountability, digital and social rights, open technology, accessibility, energy poverty, social housing, and youthRecognizing that investing in youth means investing in a better future, OGP participating governments are creating meaningful opportunities for youth to participate in government processes. Technical ... More participation. Indicatively, participating bodies included Homo Digitalis (digital rights), the Institute for Regulatory Policy Research (institutional transparency), members of energy communities (energy vulnerability), social bodies such as the United Initiative against Auctions, as well as members of the academic and research community.
Overall, the participation of 35 different types of organizations, from grassroots collectives to research institutes, allowed for the integration of diverse experiences and needs in the formulation of the Action Plan.
Provide references here (e.g. interviews):
Evidence: Action Plan pages 41-42
Section 3.
Initial evaluation
of commitments
1 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... :
Energy Democracy and Vulnerability
1.1 Is the commitment verifiable?
Yes
Provide a brief explanation of your answer:
The commitment is verifiable because it is clearly presented and coherent with the actions proposed for its development.
Evidence: Action Plan pages 48-52
1.2 Does the commitment language/activities clearly justify relevanceAccording to the OGP Articles of Governance, OGP commitments should include a clear open government lens. Specifically, they should advance at least one of the OGP values: transparency, citizen partic... to OGP values?
Yes
Provide a brief explanation of your answer:
The commitment clearly justifies relevance to the following OGP values:
- Access to information: The commitment promotes awareness and education on energy efficiency and renewable energy sources, ensuring that citizens – especially vulnerable groups – have access to verified information on energy saving practices, available support programs, and ways to participate in energy communities.
- Technology and Innovation for Transparency and Accountability: The implementation includes digital tools, data sharing, and public dashboards regarding energy issues, while the commitment leverages technology to enhance transparency on energy use, resource allocation, and impact of interventions with the aim of gaining citizen trust.
- Citizen participation: By encouraging citizen participation in thematic communities and decision-making processes, the commitment empowers individuals and communities to co-create and influence energy-related initiatives, ensuring that solutions are shaped by those directly affected.
Evidence: Action Plan page 51
1.3 Please select one option that best describes the commitment:
a continuation of ongoing practice in line with existing legislationCreating and passing legislation is one of the most effective ways of ensuring open government reforms have long-lasting effects on government practices. Technical specifications: Act of creating or r..., policies, or requirements.
Provide a brief explanation of your answer:
The commitment, in the way it is presented in the action plan, appears to be a continuation and/or advancement of existing practices and initiatives. In detail, the Action Plan’s implementation will:
- Strengthen the Municipality’s “Office for Combating Energy Poverty” through the development of a digital platform, which will gather self-assessment tools and information on energy saving interventions and participation in energy communities.
- Exploit already existing financial tools and awareness campaigns to enhance citizens’ access to renewable energy sources and affordable energy.
- Utilize the PHAETHON Energy Community and the Athens Energy Alliance to expand the production of clean energy with a social significance.
Evidence: Action Plan page 49
1.4 Please select one option that best describes the commitment:
will result in a change of the rules, practices, or policies that govern a policy area, public sector and/or relationship between citizens, and is binding or institutionalized across government or specific institution(s).
Provide a brief explanation of your answer:
It is considered that the commitment could produce fundamental changes, due to the build-up of previous acts and the constant planning ahead.
Evidence: Action Plan page 50
1.5 Are there any recommended changes to the design of the commitment to help improve its implementation?
Not at this point.
2 Commitment :
Housing and Sustainable Development
2.1 Is the commitment verifiable?
Yes
Provide a brief explanation of your answer:
The commitment is verifiable because it is clearly presented and coherent with the actions proposed for its development.
Evidence: Action Plan pages 53-57
2.2 Does the commitment language/activities clearly justify relevance to OGP values?
Yes
Provide a brief explanation of your answer:
The commitment clearly justifies its relevance to the following OGP values:
- Access to information via a digital platform that will collect and publish aggregated, anonymous data on the real housing needs of citizens and the availability of real estate.
- Technology and Innovation for Transparency and Accountability via the use of an advanced digital matchmaking system (demand-supply matching algorithm, geospatial data, API for interoperability).
- Citizen participation via the active involvement of citizens, on an individual basis but also through bodies that represent them, both in recording housing needs and in monitoring the operation of the platform.
Evidence: Action Plan pages 56-57
2.3 Please select one option that best describes the commitment:
a new regulationGovernment reformers are developing regulations that enshrine values of transparency, participation, and accountability in government practices. Technical specifications: Act of creating or reforming ..., policy, practice or requirement.
Provide a brief explanation of your answer:
The commitment, in the way it is presented in the action plan, appears to be a newborn initiative. In detail, the Action Plan’s implementation will develop a digital matchmaking platform that will record citizens’ housing requests and owners’ available homes in an organized manner. Through this, the Municipality will obtain a comprehensive picture of demand and supply, while facilitating the connection of the two sides in collaboration with NGOs and social organizations.
Evidence: Action Plan page 54
2.4 Please select one option that best describes the commitment:
will result in a change of the rules, practices or policies that govern a policy area, public sector and/or relationship between citizens and is binding or institutionalized across government or specific institution(s).
Provide a brief explanation of your answer:
The development of the digital platform will contribute to solving the public problem by unifying and organizing housing demand and supply data, allowing the Municipality to have a clear view in real time of the exact needs of citizens and available properties. Through matchmaking, waiting time is reduced, transparency in leasing is enhanced, and trust between owners and tenants is strengthened. The comprehensive registration allows the design of targeted social housing policies and the optimal utilization of empty apartments, limiting unjustified rent increases and social exclusion.
Evidence: Action Plan page 55
2.5 Are there any recommended changes to the design of the commitment to help improve its implementation?
Not at this point.
3 Commitment :
Universal Accessibility and Digital InclusionPrioritizing digital inclusion — such as by expanding broadband access to remote areas or removing barriers to affordable internet — helps ensure all citizens have the opportunity to participate. ... More
3.1 Is the commitment verifiable?
Yes
Provide a brief explanation of your answer:
The commitment is verifiable because it is presented step by step, allowing the monitoring of its implementation and the results achieved.
Evidence: Action Plan pages 58-62
3.2 Does the commitment language/activities clearly justify relevance to OGP values?
Yes
Provide a brief explanation of your answer:
Among the OGP’s values, the commitment’s objectives clearly justify its relevance. Very briefly:
- The “Access to information” value is justified via the training of the Municipality’s executives and legal entities, and by extension, the compliance of municipal websites with digital accessibility standards that ensure all citizens, regardless of physical limitations, can be informed and use the Municipality’s services.
- The “Public Accountability” value is justified via all the Municipality’s departments’ obligation to comply with and oversee the implementation of the measures promised.
- The “Technology and Innovation for Transparency and Accountability” value is justified via the use of technology for the digital upgrade of services and the use of tools to monitor the progress of projects.
- The “Citizen participation” value is justified via the Municipality’s focus on improving accessibility so more people actively participate in the social, economic, and cultural life of the city.
Evidence: Action Plan page 61
3.3 Please select one option that best describes the commitment:
a continuation of ongoing practice in line with existing legislation, policies or requirements.
Provide a brief explanation of your answer:
The Municipality of Athens has recognized accessibility as a cross-sectoral priority and has established a Working Group on Accessibility and Inclusion. Actions such as the “Seven Accessible Routes” and awareness-raising campaigns have been implemented, while the Urban Accessibility Plan is underway. At the same time, interventions have been launched in schools and cultural spaces, as well as pilot projects for smart crossings.
Evidence: Action Plan page 58
3.4 Please select one option that best describes the commitment:
will result in a change of the rules, practices or policies that govern a policy area, public sector and/or relationship between citizens and is binding or institutionalized across government or specific institution(s).
Provide a brief explanation of your answer:
The commitment will substantially contribute to reducing the obstacles that vulnerable groups face in their daily lives, enhancing both their autonomy and their access to critical services. The “I Reach Out” program will offer practical and psychosocial support to people with disabilitiesA government is not open unless it is accessible to all, and governments are working to ensure people with disabilities are afforded equitable services and opportunities to participate. Technical spec... and digitally excluded citizens, facilitating their movement and contact with municipal structures, cultural and sports venues, and more generally with the concept of “entertainment”.
Evidence: Action Plan page 59
3.5 Are there any recommended changes to the design of the commitment to help improve its implementation?
Not at this point.
4 Commitment :
Transparency, Accountability, and Participatory Budgeting
4.1 Is the commitment verifiable?
Yes
Provide a brief explanation of your answer:
The commitment is verifiable, as it presents specific actions that enable the development of measurable criteria.
Evidence: Action Plan pages 63-66
4.2 Does the commitment language/activities clearly justify relevance to OGP values?
Yes
Provide a brief explanation of your answer:
The commitment is aligned with the OGP values in terms of:
- “Access to information” due to the creation of a single digital platform for MDP applications and the regular posting of asset declarations by elected officials removes obstacles to citizens’ information, ensuring timely and comprehensive access to public documents.
- “Public Accountability” due to the disclosure of municipal officials’ meetings with representatives and the various budgeting processes.
- “Technology and Innovation for Transparency and Accountability” due to the utilization of digital tools that simplify access, publication, and control of municipal records.
Evidence: Action Plan pages 65-66
4.3 Please select one option that best describes the commitment:
a new regulation, policy, practice or requirement.
Provide a brief explanation of your answer:
The commitment’s purpose is to create an operational and unified Transparency Platform in the Municipality of Athens, which will gather municipal decisions, contracts, financial data, and asset declarations, in open machine-readable data and a public 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... registry with meetings of the Mayor and Deputy Mayors (name, date, purpose, topics). The aim is to eliminate fragmentation, ensure transparency and accountability, and encourage citizens to use data.
Evidence: Action Plan page 64
4.4 Please select one option that best describes the commitment:
will result in a change of the rules, practices or policies that govern a policy area, public sector and/or relationship between citizens and is binding or institutionalized across government or specific institution(s).
Provide a brief explanation of your answer:
The expected results are the reduction of barriers to accessing information, the strengthening of citizen trust, and the cultivation of a culture of open dataBy opening up data and making it sharable and reusable, governments can enable informed debate, better decision making, and the development of innovative new services. Technical specifications: Polici..., leading to an era of collaborative governance where citizens become active partners in decision-making. In the long term, the Municipality of Athens wishes to establish itself as a model of open governance, where transparency, accountability, and citizen participation are fundamental values and daily practice.
Evidence: Action Plan page 64
4.5 Are there any recommended changes to the design of the commitment to help improve its implementation?
Not at this point.
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