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Develop co-creation processes at the local government level (EE0057)



Action Plan: Estonia Action Plan 2020-2022

Action Plan Cycle: 2020

Status: Active


Lead Institution: Ministry of the Interior

Support Institution(s): State actors involved Ministry of Finance, Ministry of Culture, Ministry of Rural Affairs Other Actors Involved Association of Estonian Cities and Rural Municipalities, Estonian Cooperation Assembly

Policy Areas

Public Participation, Subnational

IRM Review

IRM Report: Pending IRM Review

Starred: Pending IRM Review

Early Results: Pending IRM Review

Design i

Verifiable: Pending IRM Review

Relevant to OGP Values: Pending IRM Review

Potential Impact: Pending IRM Review

Implementation i

Completion: Pending IRM Review


What is the public problem that the commitment will address? One of the key issues in open government is the involvement of members of the public and civic associations in the decision-making processes. A 2018 survey of non-profit associations revealed that co-operation between local governments and non-governmental organizations has stalled (40% of associations have permanent co-operation relations with local governments).12 Involvement projects and a central training program are working, and satisfaction with them is high; however, the number of activities intended for local governments in particular must be increased. Within many local governments, there is a lack of perception concerning the importance of community involvement, and there is no overview of the communities in their area. Thus, over the last three election cycles, the rate of participation in local government council elections has decreased from 60.6% to 53.3%. Many citizens’ initiatives take place in communities and neighbourhoods, among peer groups and acquaintances. Communities have a major role to play in people-to-people contacts, debate and joint action, and in shaping an environment that supports health, at both the local and the national level. The development of policy can only be co-creative if, in addition to the representative organizations of civil society, communities also participate in these processes. As opposed to the activities described above (2.1), this activity focuses more narrowly on community involvement.

What is the commitment? To implement a co-creative policy development program with the participation of at least five local governments. As part of the programme, local governments – in co-operation with residents and, if necessary, also with Kodukant, the Estonian Village Movement – determine and identify their communities, and existing co-operation methods are collected, analysed and methodically described. A co-creation development program will then be implemented for at least five local governments and, in cooperation with representatives from the 12 Tallinn University, Estonian Business School, Turu-uuringute AS. Interim evaluation of the Civil Society Development Plan (2019). 17 communities a model for involving local residents will be developed which, keeping in mind the best practices, could be used in the future to involve communities more actively in the decision-making process of local governments. In order to evaluate the activity, a satisfaction survey will be conducted among the participants (of the participating local government units and the communities).

How will the commitment contribute to solving the public problem? A systemic approach allows for the exchange of experiences and increases the openness of governance. Contributing to communities helps to create a good living environment, where people want to live and start a family.

Why is this commitment relevant to OGP values? Transparency Civic participation

Additional information The activities support the achievement of the strategic goals of ‘Estonia 2035’ ‘Smart, active and healthy people living in Estonia’ and ‘Estonian society is caring, cooperative and open’. Also the objectives of the ‘Development Plan for Population and Cohesive Society until 2030’ (under preparation) are supported.

Milestone Activity Result Start date End date Collection and analysis of co-creation methods (including surveys and interviews with the representatives of local governments and communities) At least five local governments and five communities have given input. 08.2020 12.2020 Description of the collected co-creation methods in cooperation with local governments and community representatives At least five methods are described. 01.2021 06.2021 Implementation of a co-creative policy development program for at least five local governments Five local governments have participated in the development programme. 01.2021 12.2021 Development of a concept model supporting an increase in the contribution by the community, in cooperation with local governments and community representatives The concept is ready on time. 01.2021 06.2021 Testing the concept of a model supporting an increase in contributions by communities The model has been tested in five local governments. 07.2021 12.2021 Improving the model supporting an increase in input by communities and agreeing on further development and administration Follow-up activities have been agreed upon. 01.2022 06.2022 18 Commitment 3: Increasing the transparency of policy-maki


  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

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