RESULTS
FROM
ONLINE PILOTING OF ALGORITHM AND ADAPTED PROCEDURE FOR CITIZEN ENGAGEMENT IN DECISION-MAKING IN EMERGENCY SITUATIONS
REPORT
Sofia, 2023
INTRODUCTION
This report presents the implementation process and the achieved results of the online piloting of Recommendations, an algorithm and an adapted procedure for engaging citizens in decision-making in emergency situations, carried out in implementation of Activity 4 of the Project „Effective engagement of stakeholders in the decision-making process solutions in emergency situations“, financed under the Operational Program „Good Governance“, co-financed by the European Union through the European Social Fund.
The first part of the activity involves targeting representatives of the administration at the local level to create a network that aims to implement the Citizen Engagement Algorithm in Emergency Situations, thus ensuring the provision of fast and reliable feedback to decision makers at the central level .
Stakeholder targeting to create a network at the local level to stimulate citizen participation in decision-making processes was entirely targeted at the target group of administration structures and included establishing contact with elected administrations and broadcasting their representative. In this activity, the support of the Institute for Public Administration was extremely key.
The second part of the activity was that of conducting the actual online testing in real conditions of the Algorithm with the pre-selected representatives of the key stakeholders. The piloting of the Algorithm was directed, on the one hand, to the administrations selected for participation in the network, as well as to NGOs and their employees and the general public in the respective local communities. In addition to following the prescriptions of the materials developed in the project framework, it was also fully aligned with best practices for stakeholder engagement. During the online pilot, some of the methodological guidelines and innovative solutions developed by the project were tested for the first time.
The activity was entirely practical, including experimental in nature and contributed to the achievement of all the set goals of the project. On the one hand, how the analytical products produced by the previous activities of the project work in real conditions were tested in order to identify and subsequently clear their potential shortcomings. On the other hand, the activity also had a strong informational character, related to a wide presentation of the Algorithm to the interested parties, as it aimed to create the necessary contacts between the members of the constructed network, so that it could function in the future.
The third component of the activity was conducting a survey with the pilot participants to obtain their impressions and evaluations regarding the way the Algorithm worked, the problems and difficulties encountered, the recommendations for improving the developed tools and their opinion as to how well they meet their real needs.
PART ONE. IDENTIFYING KEY STAKEHOLDERS
At the beginning of the implementation of the activity, the participants, representatives of the key stakeholders, were identified in order to create a future network at the local level to stimulate the participation of citizens in decision-making processes, aimed entirely at the target group of administration structures. It was carried out by establishing a relationship with the elected administrations and broadcasting their representative. Once identified, the specific representatives of institutions were treated as a special target group, to whom the materials developed within the project were sent for an opinion. In this way, both the practical applicability of the project’s analytical developments and the openness of local level services to such an initiative were tested. The additional goal pursued by this first part of the activity was the achievement of a higher level of preparedness of the selected participants for the future timely systematization of relevant data at the local level, their analysis and the generation of recommendations to be regularly sent to the authorities taking decisions at the national level.
Thus, on the one hand, enough guarantees were created at the local level that even in an extreme situation (such as the one our society fell into during the acute stages of the COVID-19 pandemic), where the expediency of decision-making is of crucially, central authorities have the necessary information about public attitudes. On the other hand, conditions were provided for significantly better dialogue between the state and its citizens, insofar as an effective opportunity to maintain „current“ and „subsequent“ relationship with the interested parties is provided.
In this way, the state acquires the opportunity to receive feedback on how certain measures work in practice and how they can be optimized, and in this way it can exercise a kind of ongoing control of its specific policy. In addition, the necessary prerequisites were also provided for the persons from the administration to receive real-time information about the effects on the affected parties caused by their decisions in an urgent manner.
PART TWO. REAL ONLINE PILOTING
Online piloting of the Algorithm was a form of testing it in real conditions, conducted on the occasion of real measures in the field of healthcare and education. The goal was to test how the Algorithm works in practice. Pre-targeted participants received the first version of the Algorithm and the adapted procedure for engaging citizens in emergency decision-making and were asked, following the instructions and recommendations contained therein, to share their opinion on how the measures were implemented to address the crisis caused by COVID-19. Testing was carried out using a short questionnaire (Appendix 1) sent to key stakeholders.
In mid-August 2023, secretaries of municipalities, directors of „Administrative-legal service“ directorates, directors of „Territorial organization, European projects, planning and local development“ directorates and heads of „Center for administrative service“ departments were sent the project materials and the questionnaire.
Stakeholders involved in the pilot were asked to respond to the following questions presented below.
Question 1. Have you been consulted on the measures being put in place to address the COVID-19 crisis?
More than half of the respondents answered that the orders issued by the Ministry of Health were not consulted with them. At the local level, in some places a headquarters was formed with representatives from the various institutions, for example in the Municipality of Sliven, where the situation was discussed and the necessary measures were taken. The same municipality, on the basis of the orders of the MoH and RZI, has issued its own orders for the internal organization of its structures. The regional RZI also sent its orders without discussing them with the municipalities in advance.
The regional administrations were late and only occasionally sent orders of the Ministry of Health to the municipalities, which is why this channel for information could not be relied upon. At the same time, they were the only institutions that thought of including representatives of the municipalities in the regional crisis headquarters.
For timely information, the representatives of the local government relied only on themselves, they followed the online broadcasts, press conferences and statements of the national headquarters. They checked the Ministry of Health website hourly for new orders.
The representatives of the local civil organizations first learned the information about the new restrictive measures from the press releases and the distributed orders of the mayors.
Question 2. Do you think that the measures would be more adequate and workable if you and local communities were consulted?
All municipalities are unanimous that, certainly, as the main „ambassador“ of local measures, they should have participated in making national decisions regarding the pandemic. As the main negative, they point out that in the first months the restrictive orders of the Ministry of Health were published around 4:30 p.m. on Friday, with a short deadline for introducing and publicizing the measures, which further created confusion and uncertainty in this already tense situation. As an example, they point to the measures with checkpoints and the possibility to pass them if you cultivate land – insane; people en masse declared their current addresses in the municipality and carried out their intentions, despite the harsh measures.
Due to phenomena such as that of working establishments but closed schools, the respondents indicate that they insisted on the unification of the measures, by means of the rule either both branches work or they do not work. According to them, there is no way to stop the spread of the infection, since visiting such mass places as restaurants, whether for pleasure or work, created prerequisites for the free exchange of all kinds of viruses. The closure of schools and kindergartens with operating businesses has posed a huge challenge to the municipal population, as someone had to take care of all those children while their parents were at work. Here, the municipalities, applying the test algorithm developed under the project, in their answers insist on a more precise weighing of the benefits and difficulties of this measure.
In a similar way, the participants in the piloting also perceive the ban on using sports facilities and parks, i.e. it’s the same as using public transport, going to the bank or the store, with the small difference that it’s outdoors and safer. Most of the municipalities, which marked the places with signs and restricted access with signal strips, tried to direct human resources to control access, which only led to the creation of tension. People with a labile psyche began to experience even more serious concerns, those who did not follow the rules created conflicts and used the „forbidden“ areas at other times.
Here, the municipalities, piloting the algorithm developed by the project, insist that in the future the real danger of visiting the various closed and open places be reconsidered, since, according to them, with regard to the ban on parks, according to them, a general impression has been created among the population that only places that are not part of a profitable business are restricted, simply because no one seriously lobbies for them, such as schools, community centers, parks, etc.
The reasons for the „up to 20 people per funeral or wedding“ rule are the same. Half of the respondents believe that if the measures had been consulted with the municipal administrations, they would have been more adequate regarding inspections of food establishments and shops on the territory of municipalities, as well as disinfection inspections in city buses. They also claim that they did not receive timely information from the RZI about the quarantined and sick people and that they did not strictly observe the quarantine deadlines for the individuals.
The same number of respondents were of the opinion that the situation was dynamic, rapidly changing and there was a need for a quick and competent decision. And the discussion, the consultation would have deepened and delayed the process of applying adequate measures.
Another prominent negative is that the administration is located in several buildings. In some, there was no restricted access regime, and even a visit to the WC led to a mixing of streams with colleagues from other administrations and citizens.
Information about the work and measures in specialized transport for persons with reduced mobility was spread „by word of mouth“. The measures themselves were not consulted with consumers.
Only one municipality answered that the measures taken at the national level were adequate and working.
Question 3. What were the main positive and negative effects for citizens and businesses on the territory of your municipality from the measures introduced to limit the spread of COVID-19?
Nearly 85% answered that the negative effects were for both citizens and businesses. All structures of the municipality had to radically change their activities and work process during the pandemic.
The main negatives according to businesses and citizens are the following:
1. restaurateurs and hoteliers immediately felt the effects;
2. over time, productions have massively reduced their export volumes;
3. many small shops and restaurants ceased their activities;
4. the long quarantine caused a shock in the work processes, even in the administration;
5. 5. it was difficult for working parents to take care of their children during the time when schools and kindergartens were closed;
6. there was a significant division in society in relation to mandatory vaccination, as well as prohibitions on visiting certain places or performing certain work, which often led to serious tensions.
Additional negative effects experienced by citizens and businesses are:
1. economic impact: measures put in place to limit the spread of COVID-19, such as closures of businesses, businesses and establishments, travel restrictions and reduced consumer spending, have had a serious impact on local businesses, leading to job losses, reduced incomes and economic decline;
2. mental health challenges: the pandemic and related measures have affected the mental well-being of citizens, leading to increased stress, anxiety and depression;
3. social isolation: restrictions on gatherings and social interactions led to increased social isolation, especially for vulnerable groups, such as the elderly and people living alone;
4. Education disruption: school closures and the shift to distance learning have disrupted the education system, affecting student learning outcomes and creating challenges for parents and teachers.
Additional negatives have been related to the fact that the pandemic has led to:
1. impoverishment of the population and a drastic increase in unemployment, as well as stress;
2. suffered economic life, both state and municipal, as well as private companies and enterprises, which affected both year-round and seasonal activities;
3. deteriorated quality of health care and the general condition of the population.
The main positives, according to businesses and citizens, were as follows:
1. wearing a mask indoors and providing hand sanitizer in all public places has been a good practice for limiting the spread of all respiratory viruses, which has been more successful than a „flu vacation“ going forward;
2. the experience of working in home-office mode was positive for the business. Entrepreneurs and administrations have realized which activities can be performed in this mode of operation, for how long and in what way. This flexibility in the organization of work processes has also benefited the workers themselves;
3. although the effect of the measures was not direct, interest in sports and mountain tourism has definitely increased in some municipalities, and in some of them, several new gyms have been opened after the strictest measures to date have been lifted, several new training halls for various types of sports have been equipped. In the last year, new coaches have been appointed with groups formed for different types of sports activities and usually they did not reach the places because of the many applicants. Somewhere, new, additional facilities for street fitness were placed, which were constantly occupied during non-working hours, and the sportsmen sent signals to the municipality that there was a need to procure more of them;
4. Lodgers from the lodges in the area have shared about a constantly increasing influx of tourists even during the restrictive measures of the pandemic. This was also seen with the „naked eye“ along the parking lots at the exit points for the routes, which were full of cars, from where people started on the mountain trails.
The additional positive effects for citizens and businesses have been expressed in:
1. rallying people from business;
2. awareness of a large part of the population how a pandemic can turn your life 360 degrees and lead to prioritizing the important things in life;
3. reduction of traffic, improvement of cleanliness and personal hygiene, without epidemics of respiratory diseases;
4. increasing the use of remote application and receipt of administrative services.
However, measures such as social distancing, wearing masks and lockdowns have helped reduce the transmission of the virus, protecting citizens from becoming infected. By implementing measures such as testing, contact tracing and quarantine protocols, municipalities have been able to effectively identify and isolate infected individuals, thereby reducing the death rate. Limiting the spread of the virus has prevented the health system from being overwhelmed by ensuring that medical facilities have sufficient capacity to treat patients and provide the necessary care. The pandemic has brought communities together, with citizens supporting each other through various initiatives – food distribution, volunteer work and emotional support.
Question 4. During the COVID-19 crisis, were specific measures taken towards vulnerable population groups (disadvantaged people)? Please specify:
During the COVID-19 crisis, the Municipality of Sliven sets an example by creating a food bank, through which food packages were provided to people under quarantine, including essential foods. The municipality has taken action by providing telephones for contact with psychologists and consultations for citizens. Free COVID-19 tests, protective equipment and disinfection materials were provided to all units, structures and social services. Mobile vaccination offices were equipped. A staff of volunteers was also formed, with the help of which all internal and external public areas were disinfected.
The Municipality of Chavdar published on its Facebook page and on the official website a telephone number for contacting citizens who needed to buy groceries. Municipal administration employees accepted phone requests from isolated or sick citizens due to COVID-19 to buy food and other necessary products, and then the municipality driver delivered the purchased products to the citizens against a receipt to justify the expenses and the citizens to pay for the spent sum.
Most of the municipalities and social services in the city led an active policy and support not only for people in a disadvantaged position, but for all those in need, as well as for many foreign citizens. Social services functioned online, provided delivery of goods and services to homes, extended the validity period of expiring documents.
Question 5. What do you think are the most important lessons learned from the COVID-19 crisis that should be used to more effectively deal with a possible next crisis? Please specify:
Most of the respondents answered that adequate and timely communication between the institutions has already been established, procedures have been developed for actions during a pandemic, which would contribute to a better handling of such a situation.
According to them, a communication network is needed, including representatives of the municipalities when making decisions concerning the entire population of the state. Misinformation creates tension rather than preventing stress and turmoil. All national, regional and municipal headquarters have a statutory obligation to develop action plans and conduct staff drills for various cases. Expert support is needed so that these requirements do not remain only on paper. At the same time, however, the population does not get involved in these processes, which is a prerequisite for the emergence of commotion when an unknown event occurs.
The importance of early response cannot be overstated. Rapid action, including early detection, testing, contact tracing and implementing preventive measures, is critical to preventing the spread of the virus and minimizing its impact.
The pandemic has highlighted the need for robust preparedness and resilience plans at all levels, including national, regional and local. Adequate stockpiling of essential medical supplies, establishment of emergency response teams, and availability of adaptive health care systems are essential to effectively manage future crises.
The COVID-19 crisis, according to respondents, has highlighted the importance of global cooperation and information sharing between countries, authorities and organizations. Sharing data, research and best practices can help develop effective strategies, treatments and vaccines and prevent the rapid spread of infections and other risks in future crises.
Strengthening public health infrastructure, including health systems, testing capabilities, and surveillance systems, is critical to effectively responding to future crises. Investing in health infrastructure and ensuring its capacity and flexibility can enable a more coordinated response by health authorities.
Clear, timely and transparent communication from authorities is vital to effective crisis management. Providing accurate information, addressing concerns and promoting public trust are essential to ensure compliance with preventative measures and to minimize panic and misinformation.
Future crisis management plans should include comprehensive socio-economic support measures for citizens and businesses. Providing access to health care, financial assistance and social safety nets can help mitigate the negative impact on vulnerable populations and support economic recovery.
Future crisis management plans should be flexible, taking into account the changing nature of the crisis and the effectiveness of the measures implemented.
Overall, lessons learned from the COVID-19 crisis highlight the importance of preparedness, collaboration, communication and resilience for effective crisis management and response.
The most important lesson is the need for unity, more humanity and kindness in all.
The coordination between institutions, advisory bodies and the real sector have increased the knowledge of the public regarding the work of the administration at the local level.
PART THREE. ONLINE SURVEY FOR ASSESSMENT OF RECOMMENDATIONS, ALGORITHM AND ADAPTED PROCEDURE FOR ENGAGEMENT OF CITIZENS IN DECISION-MAKING IN EMERGENCY SITUATIONS
The online survey was conducted in September 2023. It was announced on the website of the applicant and the project partner as an online survey to evaluate the Recommendations, Algorithm and the Adapted Procedure for Citizen Engagement developed and piloted by the project decision-making in emergency situations and was carried out with the help of Google Forms.
The questionnaire used is very short with only five questions, each of which has a closed and an open part, the latter giving the right to free expression of opinion. More than one answer was allowed for all questions. The last of the five questions gives the participants the opportunity to freely share their other views and opinions on the topic, other than the questions asked.
1. What, in your opinion, are the key problems facing effective public consultations in the development of public policies, strategic documents and legal acts in Bulgaria?
For more than half of those who took part in the survey, the lack of a built work culture in the administration for broad consultation is the most key problem in front of the effectiveness of public consultations in the development of public policies, strategic documents and legal acts in our country (50.8%).
In second place in terms of importance, the respondents put the lack of conviction in the beneficial effect of counseling on the part of society and the state (47.5%).
The third key problem facing the effectiveness of public consultation in our country, according to the results of the survey, is the lack of capacity among citizens and NGOs to participate in consultations (37.3%).
The outdated concept and the lack of modern approaches to counseling is a problem that is indicated as key by just over 1/3 of the participants (35.6%).
Lastly, the lack of public consultations in the National Assembly, where legislation is currently being enacted most violently, is indicated as a significant problem with regard to the effectiveness of public consultations in the processes of making the most important political (policy), strategic and rule-making decisions (28.8 %).
The answers of the respondents, ranked in order of importance, point to perceptions that are completely opposite to the understandings of persons working closely and for many years in the field of public consultation, especially in relation to the rule-making process. For the latter, the key problem with the highest degree of significance leading to the inefficiency of public consultations is the lack of public consultations in the National Assembly (NA). This is a fundamental problem, firstly because the National Assembly, almost eight years after the start of the regulatory reform in our country, refuses to fulfill the requirements of the Law on Normative Acts and thus sets an extremely negative example for all other citizens to follow. Secondly, this lack has led to an anomalous shift in the intensity of the legislative initiative from the Council of Ministers to the National Assembly, with the share of submitted draft laws of the National Assembly reaching 70% of all bills, at the expense of 30% of the Council of Ministers. Thirdly, the failure to conduct public consultations, where legislation is being enacted most violently, undermines the whole idea of consultation and leads to discouragement of the public, distrust in the state, disrespect for the institutions and their acts, and hence a low level of effectiveness of law enforcement.
2. What, in your opinion, would contribute the most to mass public consultations and a significant increase in their effectiveness?
The largest percentage of respondents to the survey believe that the introduction of a mechanism for active prior information of the public would contribute the most to the mass holding of public consultations and to a significant increase in their effectiveness (61%).
More than half of the respondents believe that the most important for promoting public consultation is the wide use of new technologies in consultation (54.2%).
In third place, the respondents ranked the adoption by the administration of a mandatory proactive approach to the interested parties in the consultation as a guarantee for a more comprehensive and successful survey (39%).
Finally, the respondents indicate the adoption of internal rules for public consultations by all policy-making structures of the administration as a guarantee for stimulating public consultations (13.6%).
3. What do you think would best ensure that, in the event of future crises like the one related to COVID-19, the state does not again fail to consult with stakeholders when implementing emergency measures and regulations?
The largest percentage of those who answered that it is necessary to create an informal network of external experts in thematic areas in advance (23.7%).
It is followed by a view on the need to envisage an independent protocol, including adapted algorithms and procedures for conducting consultations in crises (22%).
Close to the above percentage is the opinion for pre-formed panels of the interested parties for consultations (18.6%).
The opinion regarding the necessity of creating a preliminary formal network of experts internal to the administration received 11.9%, and the preliminary creation of a formal network for the participation of municipalities – 10.2%.
Finally, the presence of previously formed groups from the administration for consultations is not unimportant to the respondents (8.5%).
The rest of the answers go like this:
1. the nature of extraordinary circumstances and crises does not imply consultation;
2. emancipation of the state from WHO guidelines is necessary;
3. risk assessment and adaptation to the conditions, folk psychology, economic and social realities of the Bulgarian society, etc. must be done.
Most of the respondents believe that the presented Recommendations, algorithm and adapted procedure for engaging citizens in decision-making in emergency situations are appropriate and would contribute to more effective public consultations in our country.
CONCLUSION
The activity was equally aimed at both administrations and citizens and their organizations. It also contributed to the creation of conditions for an open and responsible management of the administration, carried out in the conditions of partnership and active inclusion of citizens in decision-making processes.
The activity resulted in the satisfaction of the needs of the target groups, having a strong motivational charge, encouraging citizens and non-profit organizations to actively participate in the processes of policy making and regulation.
Insofar as the Algorithm is essentially a model of best practices for proactive stakeholder engagement adapted to the conditions of an emergency, another immediate effect of its approval was the increase of citizen participation in the processes of implementation and monitoring of policies and legislation.
The activity included making specific recommendations to the administration to improve the processes of making, implementing and monitoring public decisions, providing services and creating a better regulatory environment.
The Project „Effective engagement of stakeholders in the decision-making process in emergency situations“, funded by Operational Program „Good Governance“, co-funded by the European Union through the European Social Fund