Skip Navigation

Increase of the Engagement Capacity of State Authorities and Participation Capacity of Nongovernmental Organisations in Policy-Making (EE0044)



Action Plan: Estonia’s Third OGP Action Plan 2016-2018

Action Plan Cycle: 2016

Status: Inactive


Lead Institution: Government Office

Support Institution(s): Ministries; Non-governmental organisations

Policy Areas

Capacity Building, Legislation & Regulation, Public Participation, Regulatory Governance

IRM Review

IRM Report: Estonia End-of-Term Report 2016-2018, Estonia Mid-Term Report 2016-2018

Starred: No

Early Results: Marginal

Design i

Verifiable: No

Relevant to OGP Values: Civic Participation

Potential Impact:

Implementation i



Description of the current situation or problem resolved through the commitment Good practice of engagement has been developed to support engagement; the importance of transparency and predictability of law-making is emphasised by the Rules for Good Legislative Practice and Legislative Drafting. Engagement practice varies and it needs strengthening to ensure that policy-making is more transparent and that the interests of various parties are taken into account in a balanced manner. Main aim The aim of the activity is to improve the quality of policy-making by way of the fact that engagement has become systematic because the necessary conditions have been created for it; non-governmental organisations have improved capacity to participate in this process. For this, engagement projects are undertaken that will assist in the achievement of this aim. Short description of the commitment (max 140 characters) Improve the quality of policy-making by supporting the increase in the engagement capacity of state authorities and participation capacity of nongovernmental partners in policy-making. The testing of new engagementrelated solutions, the development of the state’s engagement policy, and the development of the capacity of non-governmental organisations to participate in policy-making are supported.

IRM End of Term Status Summary

Commitment 6: Increase of the engagement capacity of state authorities and participation capacity of non-governmental organizations in policy-making

Commitment Text:

Improve the quality of policy-making by supporting the increase in the engagement capacity of state authorities and participation capacity of non-governmental partners in policy-making. The testing of new engagement-related solutions, the development of the state’s engagement policy, and the development of the capacity of non-governmental organizations to participate in policy-making are supported.


6.1. Planning and implementing projects

Responsible Institution: Government Office

Supporting Institutions: Ministries, non-governmental organizations

Start Date: 1 July 2016       

End Date: 30 June 2018

Commitment Aim

This commitment sought to support the engagement of CSOs in the policy-making process by providing funding to three types of projects: 1) the testing of new engagement solutions, 2) the development of the state’s engagement policy, and 3) the development of CSO participation capacity. Government institutions and civil CSOs were invited to propose their project ideas to the Government Office in any of the three categories.


Midterm: Limited

During the first year of the action plan, the project selection committee at the Government Office (composed during the previous action plan and involving an equal number of governmental and non-governmental experts) approved three project proposals. A European Structural Funds financing scheme managed by the Government Office was used for funding the three projects.

By the midterm, two projects had been completed, one was ongoing, and four proposals were under consideration. The completed projects included the technical developments of the Information System of Draft Acts (EIS), which supported the implementation of Commitment 4 in the current action plan, and a project of the Ministry of the Environment supporting public engagement in the development of a climate policy strategy for 2050. The Estonian Network of Nonprofit Organizations (NENO) and Policy Centre Praxis (a non-governmental think tank) had implemented the ongoing project “CSO Development Program – Advocacy Lab” and aimed to train civil society leaders and counsel 25 CSOs to increase their policy advocacy capacity.

End of Term: Complete

By the end of the action plan, the CSO advocacy lab project had been completed, and the Estonian National Youth Council and the Estonian Social Enterprise Network had fully implemented one more project – an analysis of the social impact of youth organizations. This project evaluated the institutional capacity of Estonian youth organizations to represent the interests of youth and to participate in public decision-making processes, mapped these organizations’ needs, and proposed a model for a systematic evaluation of the role and influence of youth organizations.[Note 45: See the final evaluation report: ] At the time of the writing of the end-of-term report, the Ministry of Rural Affairs had started an additional project that aims to engage stakeholders in the development of a policy strategy for 2030 in the field of agriculture and fisheries. To this end, the ministry is engaging stakeholders and experts through the strategy steering committee, thematic working groups, and public information events throughout 2018 and 2019[Note 46: More information on the strategy process and participation opportunities can be found on the ministry’s website: ]. Finally, the project selection committee has approved one more project idea for funding. The Ministry of Internal Affairs proposed this project, which aims to increase the strategic partnership capacity of public sector organizations and non-governmental partners. As the project is currently in preparation, the project’s exact activities and details are yet to be specified.

Altogether, four projects supporting civic engagement and participation were fully implemented during the action plan period.[Note 47: A full list of the funded projects and project reports are available on the Government Office’s website: ] As the commitment text included no verifiable quantitative or qualitative indicators other than the goal of funding and implementing projects, the commitment can be considered completed.

Did It Open Government?

Civic Participation: Marginal

This commitment aimed to address the discrepancy between actual policy-making practices and the existing principles and guidelines for public participation in policy-making processes specified in documents, such as the Rules for Good Legislative Practice and Legislative Drafting and the Good Practice of Involvement. The objective of funding projects in the area of public participation was to make civic engagement and participation a systematic part of policy-making processes, thereby increasing the quality of public decisions.

According to the project reports available online, the government’s end-of-term self-assessment report, the views of the organizations involved in implementing the projects expressed in the IRM Progress Report, and interviews conducted for the IRM end-of-term report, the projects have had some positive effects on civic participation. For example, the public engagement project in the climate policy strategy is viewed as clearly having improved the public engagement practices of the Ministry of Environment.[Note 48: This view was expressed by Kairi Toiger (Ministry of Environment) in the IRM Progress Report] The project report states that the initiative involved representatives of more than 80 interest groups designing the national climate policy strategy for 2050 through the work of five thematic working groups, 22 meetings, and active email communication.[Note 49: See ] The Ministry of Environment had not previously conducted stakeholder involvement processes of that scale.[Note 50: Minutes of the project selection committee meeting, 11 March 2015: ] In addition to holding civic engagement activities, the ministry hired a civic engagement consultant to train, advise, and support the ministry’s officials in the planning and implementation of civic engagement activities. The project thus gave the ministry an important experience in stakeholder engagement and contributed to the ministry’s capacity to undertake similar initiatives in the future.

However, due to the small scale of the projects funded and completed under Commitment 6, the overall impact of this commitment on the government’s public engagement practices remains limited. For example, based on the assessment of Commitment 4 above (more inclusive policy-making on a central government level), the upgrading of the Information System of Draft Acts (EIS) has likely had no effect in terms of opening government. At the same time, Alari Rammo from NENO sees the CSO advocacy lab project as having slightly increased the non-governmental organizations’ policy advocacy capacity.[Note 51: Alari Rammo (Network of Estonian Nonprofit Organizations), interview by IRM researcher, 7 November 2018] The project’s final report states that the project’s expected quantitative and qualitative results were achieved and the CSOs that participated reported improving their knowledge and skills of policy advocacy and participation in public decision-making processes.[Note 52: See the final report of the project: ] Although Rammo is skeptical about the possibility to substantially change policy-making practices within a two-year period, he does highlight the importance of positive collaboration and partnership experiences in changing civic participation practices in the long term. This points to the value of funding projects such as those implemented in the field of climate policy and agriculture and fisheries wherein public sector organizations design and implement large-scale stakeholder engagement processes to gain hands-on experience and learn from the process. According to the Government Office, the government plans to take the outcomes and suggestions developed in these projects into account in future activities. [Note 53: The IRM received this information from the Government Office during the pre-publication review period. The comment was received by email on 25 February 2019.] Hence, the actual impact of this commitment will likely only be seen in the coming years.

Carried Forward?

This commitment has been carried forward to Estonia’s fourth action plan (Commitment 2 – “Shaping a policy-making process that is inclusive, knowledge-based, and citizen-centred, and developing skills”). In the next action plan, citizen participation and engagement in policy-making processes will be supported through a dedicated module in a civil service training program that is targeted to public officials, including top managers and public engagement coordinators in ministries, along with CSOs. The trainings aim to increase public officials’ skills in engaging citizens, designing citizen-centric policies, and assessing the social impact of policies. The commitment seeks to enhance the engagement and participation skills of 700 officials and civil society activists by the end of the action plan period.


  1. Develop online public co-creation workspace

    EE0054, 2020, E-Government

  2. Pilot new co-creation methodologies and tools

    EE0055, 2020, Capacity Building

  3. Conduct open government workshops for local governments

    EE0056, 2020, Capacity Building

  4. Develop co-creation processes at the local government level

    EE0057, 2020, Public Participation

  5. Create guidelines to prevent unethical lobbying practices and conflicts of interest

    EE0058, 2020, Anti-Corruption

  6. Establish and train operators of confidential whistleblower hotline

    EE0059, 2020, Anti-Corruption

  7. Transparent and Inclusive Policy Making

    EE0048, 2018, E-Government

  8. Inclusive Policy-Making

    EE0049, 2018, Capacity Building

  9. Riigikogu Transparency

    EE0050, 2018, Access to Information

  10. National and Local Government Action Plans

    EE0051, 2018, Public Participation

  11. Presentation of Local Public Services

    EE0052, 2018, Access to Information

  12. Participatiory Democracy Capacity-Building

    EE0053, 2018, Capacity Building

  13. e-Tax and Customs Board 2020

    EE0039, 2016, E-Government

  14. Reducing Bureaucracy and a Simpler State – the Zero Bureaucracy Project

    EE0040, 2016, Capacity Building

  15. Implementation of the Principles of Open Governance at Local Level as a Result of the Administrative Reform

    EE0041, 2016, Capacity Building

  16. More Inclusive Policy-Making on a Central Government Level

    EE0042, 2016, E-Government

  17. More Open and Transparent Law-Making

    EE0043, 2016, Anti-Corruption

  18. Increase of the Engagement Capacity of State Authorities and Participation Capacity of Nongovernmental Organisations in Policy-Making

    EE0044, 2016, Capacity Building

  19. Intensify Participatory Budgeting on a Local Level

    EE0045, 2016, E-Government

  20. Increasing the Transparency of the Funding of Non-Governmental Organisations

    EE0046, 2016, Anti-Corruption

  21. Defining Participatory Democracy and Development of Digital Competence in School Education

    EE0047, 2016, Capacity Building

  22. Visualisation of the Policy Making Process

    EE0016, 2014, Public Participation

  23. Upgrading Participation Channels

    EE0017, 2014, E-Government

  24. Improving Government Website

    EE0018, 2014, E-Government

  25. Standard for Information Requests

    EE0019, 2014, E-Government

  26. Early Notice on Policy-Making Processes

    EE0020, 2014, Public Participation

  27. Participation in Early Stage Policy-Making

    EE0021, 2014, Public Participation

  28. Early Access to Tax Policy Decisions

    EE0022, 2014, Fiscal Openness

  29. Better Feedback Mechanism

    EE0023, 2014, Public Participation

  30. Selecting and Funding Participation Projects

    EE0024, 2014, Civic Space

  31. Web Tool for Submission of Collective Memoranda

    EE0025, 2014, E-Government

  32. Civil Servant Guidelines for Participation

    EE0026, 2014, Capacity Building

  33. Training Civil Society Organizations (CSOs)

    EE0027, 2014, Capacity Building

  34. Central Government Transactions

    EE0028, 2014, E-Government

  35. Local Authorities' Transactions with Private Entities

    EE0029, 2014, Civic Space

  36. Public Spending for Non-Profits

    EE0030, 2014, Civic Space

  37. Guidelines for Citizen Budgeting

    EE0031, 2014, Capacity Building

  38. Guidelines for Redesigning Public Services

    EE0032, 2014, E-Government

  39. Registry of Public Services

    EE0033, 2014, Access to Information

  40. User-Centric Public Services

    EE0034, 2014, E-Government

  41. Access to e-Services for Non-Residents

    EE0035, 2014, Citizenship & Immigration

  42. Open Data Portal

    EE0036, 2014, Access to Information

  43. Opening Data

    EE0037, 2014, Access to Information

  44. Supporting Nongovernmental Open Data Use

    EE0038, 2014, Access to Information

  45. Drawing up a Green Paper on Organisation of Public Services

    EE0001, 2012,

  46. Implementation of the Eesti.Ee Action Plan

    EE0002, 2012, E-Government

  47. Drawing up a Green Paper on Making Public Data Available in a Machine-Readable Form

    EE0003, 2012, E-Government

  48. Creating a Repository of Public Data

    EE0004, 2012, E-Government

  49. Launching Pilot Projects of Public Data Services Based on the Cloud Technology

    EE0005, 2012, E-Government

  50. Interactive Guidelines and Training in Implementation of the Good Practice of Public Engagement

    EE0006, 2012, Public Participation

  51. Launch of the Impact Assessment System

    EE0007, 2012, Legislation & Regulation

  52. Overview of Ministries’ Work Processes

    EE0008, 2012, Capacity Building

  53. Integration of Impact Assessment Into the Process of Public Engagement

    EE0009, 2012, Legislation & Regulation

  54. Creation of a Database of Declarations of Economic Interests

    EE0010, 2012, Anti-Corruption

  55. Adjustment of the System of Funding Non-Profit Associations and Establishment of a Disclosure System

    EE0011, 2012, Private Sector

  56. Starred commitment Drawing up a Proposal for Drawing up an Anti-Corruption Strategy

    EE0012, 2012, Anti-Corruption

  57. Draft Anti-Corruption Act

    EE0013, 2012, Anti-Corruption

  58. Establishment of the Public Ethics Council

    EE0014, 2012, Anti-Corruption

  59. Organisation of Ethics Training for Employees of Various Public Sector Organisations (Incl. Public Servants)

    EE0015, 2012, Capacity Building

Do NOT follow this link or you will be banned from the site!