Brief Description

Green Seal's participatory budget cycle in Lisbon 2018/19, led by the Lisbon government. The Green Seal PB has made an important contribution to Lisbon's urban governance, and the application of democratic goods in political life has also provided a platform for citizens to speak freely. In this process, residents proposed projects and participated in voting for them, were to help reduce the impact of the city's carbon use.

Problems and Purpose

The Lisbon government has budgeted public projects of interest to citizens on a participatory basis, making the process more open and democratic and providing a platform for residents to have their voices heard. The projects in the Lisbon Participatory Budget cycle for 2018-2019 include the Green Seal PB[1]. Green Seal PB is organized around the environment, green structures, climate, and energy as an environmentally friendly participatory budget issue. Through this project, Lisbon will select suitable green participatory budget projects for the 2018/19 participatory budget cycle, motivate residents to participate, and contribute to the development and improvement of the city's environment.

Background History

Budget cuts over the past decades, particularly as a result of the financial crisis of 2008, have prompted Lisbon policymakers to seek new changes in participatory governance mechanisms. The development of participatory budgeting in Lisbon grew rapidly during the period 2008-2009, marking the realisation of the first city-wide participatory budget and the introduction of a model of direct citizen participation in a European capital[2]. This development of direct citizen participatory budgeting laid the foundation for the green participatory budget in Lisbon until 2019 when the impact of Covid-19 had a significant impact on the implementation of participatory budgeting.

In recent years, Portuguese citizens have been increasingly exposed to the multiple impacts of climate change and are therefore becoming more sensitive to climate issues[3]. One of the reasons for this increased awareness was the sudden fire in 2018, which burned nearly 40,000 hectares of land and killed many people, and started Lisbon's rapid development of a green PB.

Context

Since 2008, Lisbon has had a multi-sectoral PB, which means that eligible projects can come from any of the 14 thematic areas covered by the existing City Council, including a range of 'green' PB proposals and votes, such as Environment and Green Open Spaces[4]. The Green Seal PB acts as a mechanism or process whereby citizens have the actual power to decide part of the budget by submitting proposals through the PB and voting on the items to be included in next year's budget[5]. In 2018-2019 Lisbon introduced the concept of the Green Seal or Green Label which gradually led to the Green Seal PB. From the early forms of PB to the Green Seal PB, Lisbon has integrated local political culture into the current development of the Green Seal and the combination of the two can better help Lisbon to develop the Green Seal PB, the change in the form of PB reflects the inclusive character of democratic goods.

The Green Seal PB as an agent of change helps to change the attitude of local governments and citizens towards climate change, and this change in attitude is essential. In the Green Seal PB, these government projects are awarded the Green Seal logo, for example on environmental, green energy and environmental projects. These awards do not bring any specific economic benefits and are not a priority development project, and the projects in question follow the same rules as projects in other sectors. The Lisbon Participatory Budget received 2,073 proposals from citizens between 2008 and 2018, and the Lisbon Participatory Budget has become one of the longest-running participatory budgets in Portugal[6]. In 2019 Lisbon first pioneered a participatory budgeting experiment in schools through a partnership with European institutions to encourage young people to participate in projects with a green and sustainable outlook, the success of this experiment has inspired more citizens to participate in budget proposals and every PB project that has been funded since 2008 has been scrutinised and identified as projects worthy of the Green Seal. The Green Seal PB is also being developed as part of Lisbon's traditional participatory budgeting, following the same citizen participatory process, encouraging more citizen participation in the Green Seal PB through offline voting and online participation mechanisms.

Organizing, Supporting, and Funding Entities

Lisbon's participatory budget has been heavily reliant on the municipal budget. By drawing on the experience of other levels of government, EIT(European Institute of Innovation and Technology) Climate is working with KIC（Knowledge and Innovation Community）to seek additional resources to enhance its capacity within the framework of the climate participatory budget, which could effectively address the issue of financing Lisbon's green participatory budget.

The development of Lisbon's green participatory budgeting system has been achieved through the consolidation of external funding or the use of co-financing funds from the private sector or other sectors for proposed green development projects. The charter of principles for participatory budgeting in the city of Lisbon, approved in 2008, states that "each year the municipality determines a portion of the budget be allocated to the joint decision-making process" The amount is determined annually and is €5 million in 2019[7].The Green Participatory Budgeting is one of the forms of citizen participation in the governance of Lisbon, which citizens and private companies can achieve in the form of proposals to the municipality on the climate and environment of Lisbon. Democratic participation is achieved through popular control, with the public voting on the implementation of the Green Seal PB project.

The participation cycle of the Lisbon Green Seal PB project is at least 9 months, with the participatory budgeting project staff commenting on the project followed by citizens' comments on the project and an extended team within the Lisbon PB to professionally respond and answer the suggestions[8]. The Participatory Budgeting team is made up of the municipal offices and municipal organisations and territorial units, with a total of 70 member partners, six of whom are Green Seal staff. Five members of the PB team can communicate citizen suggestions to the municipality or relevant departments, and government personnel can explain in detail to citizens the feasibility and limitations of the project in question. In the past, the governmental staff of Lisbon and the staff in charge of the remaining 24 districts and municipalities have not always cooperated[9].

The Green Seal PB budget is earmarked by the Lisbon City Councillors in the municipal budget, thus securing the budget for the following year and disbursing the funds in tranches based on an assessment of the spending capacity of the participatory budgeting scheme, with the city allocating reasonable funds to different green development projects according to the budget. The new Green PB, a new variant of the Lisbon government's commitment to the climate of its inhabitants, is gradually increasing in value in the development process, from $250 in 2019 to $500 in 2020, through the help of different funding organisations to achieve a Green Participatory Budget for Lisbon, which differs from the traditional Citizen Participatory Budget in that Supporters can set or propose achievable climate mitigation or adaptation goals and targets based on the needs of the community[10].

The City Council worked to fulfil its political commitment to shift the thematic focus of urban planning towards sustainable urban development by incorporating the European Green Accord into the 2021 edition of the Lisbon Plan[11]. The Lisbon Urban Finance Lab, launched in 2018, focuses 2018-2019 on investing in low-carbon, resilient and sustainable urban projects in the city and helping to develop various green participatory budgeting projects in Lisbon. The establishment of the Lab ensures the city's continued annual investment in the low-carbon transition of Lisbon's environment and climate, effectively contributing to the development of a green participatory budget for Lisbon.

Participant Recruitment and Selection

Lisbon's participatory budget was open to all at the beginning of its establishment. According to the data in 2018, 55% of the participants of the Green Seal PB are local residents, 31% are people working in Lisbon, 10% are people studying in Lisbon, 1.5% are tourists[12]. All 24 districts of Lisbon have participatory budgets. Residents over the age of 16 in the city have the right to participate and vote, as do foreigners and tourists. In order to expand the number and quality of the Green Seal PB participants, the Lisbon Municipal Government has taken several measures. The first measure is to arrange face-to-face interviews. The second measure is to de-digitize the green Seal PB process. In view of the equipment or physical obstacles of the elderly, the disabled, teenagers and other vulnerable groups, the Lisbon green Seal PB team has established a variety of PB participation methods to complete more voting. SMS, voting box, combined with online platform voting, have replaced the single online voting method. One measure of the inclusive indicators of democratic goods is the extent to which "ordinary" citizens have successfully reached the ideal voting threshold[13]. In Lisbon green Seal PB, there are few restrictions on voters, and almost all adults can complete the voting.

The Green Seal PB team in Lisbon extensively participated in social practice activities, seeking people or teams who can make suggestions for Lisbon in terms of "green". One of the moves was that Lisbon participated in the urban finance laboratory, discussed "green" and urban governance issues with experts or civil service teams around the world during the activity[14], found more resonance on how the Green Seal PB can obtain political support, and absorbed more experts into the Lisbon Green Seal PB team. The Lisbon Green Seal PB consists of 5 member PB teams, with 65 partners in total. The level of cooperation includes administrative units at all levels, 8 level 1 partners [City Hall Office], 33 level 2 partners [municipal organizations and regional units], and 24 district municipal partners[15].

As shown in the table, in the cycle of the Green Seal PB from 2018 to 2019, the participants were divided into various types according to different classification criteria. On the whole, the participants were aged 18-49, with the majority receiving secondary and higher education, but there was no significant difference between men and women. Therefore, in terms of participant selection, the Lisbon Green Seal PB mainly selected young and middle-aged people, and most participants were well educated.

Age        Proportion

18-29  34%

30-49  31.5%

50-65  13.5%

over 65        15%

Unknown     6%

Gender.   Proportion

Male      51.6%

Female          44%

Unknown       4.4%

Education level          Proportion

Elementary education      4%

Secondary education        42%

Higher Education        48%

Unknown                 6%

(source[16]:Lisboa Participa (2019)

Methods and Tools Used

The Green Seal PB has always been committed to combining de-gitalization and face -to-face, so as to facilitate citizens to participate in it and feel a better digital governance experience. In the Green Seal PB cycle starting in 2018, Lisbon mainly relied on the Lisboa Participa portal , which included a variety of tools, such as Fix My Street App, open data portal, and public consultation platform named Lisbon in Debate[17].

The Green Seal PB cycle in Lisbon included two stages, the first stage was the budget decision-making cycle, and the second stage was the budget implementation cycle. In the first stage, the Lisbon municipal government had made an overall budget for this PB, including all fields and administrative units. Then the Green Seal PB team in Lisbon had arranged detailed rules, schedules and personnel for the PB, and communicate and coordinate with the public and private sectors involved in advance[18]. In this process, the PB team had put the complete rules or definitions on the Lisboa Participa website, and citizens could consult on green related issues. In this way, the transparency of the Green Seal PB has been significantly improved, because citizens' understanding of the rules of the Green Seal PB was the basis for the legalization of democratic action. The consultation could be conducted by telephone, online or face-to-face meetings. The staff of the Green Seal PB team was responsible for answering the public consultation[19]. Next, citizens could participate in it through multiple channels and put forward their own ideas. In Lisbon, citizens can submit tenders face to face or submit electronic tenders on Lisboa Participa website. Some groups with special reasons could contact the Green Seal PB team for assistance. From October 29 to December 14, 2018, face-to-face service was provided in Rua Nova do Almada Building 2 (downtown Lisbon), every working day, between 11am and 4pm. In 2018-2019, there were 539 proposals in total, 316 online and 223 offline (participatory meetings and other face-to-face street actions)[20]. In particular, Lisbon encouraged citizens with similar ideas or proposals to carry out face-to-face seminars to jointly build projects, and the Green Seal PB team members will help them to do so, because face-to-face meetings may be conductive to the integration and optimization of ideas and improve participation and votes. In addition, the Lisbon Green Seal PB allowed citizens to reorganize inappropriate projects and submit them again in the current period or next year, which was also a way to expand the popularity of PB. Next, administrative departments at all levels in Lisbon conducted technical analysis on the proposals. The technical analysis stage lasted from December 18, 2018 to February 7, 2019, filtering inappropriate proposals. The next stage was for citizens to vote on the proposals, and gave different numbers of "green Seals" according to their satisfaction with the proposals. The proposals without "green Seals" would be eliminated directly.

What Went On: Process, Interaction, and Participation

The Green Seal PB was consists of two primary cycles, the budget decision cycle and the budget implementation cycle[21]. The budget decision-making cycle has six employees from the organization coordinating the team. At the same time, the Lisbon government took the lead, with eight city staff and 33 people from city organizations and agencies. The Lisbon government and the Green Seal PB team collected and reviewed participatory budget proposals from residents by engaging them in the budget cycle and voting online and offline.The organisers were want every resident to be involved in this participatory budgeting process, which encourages mass control of the democratic goods in the process.

In the budget decision-making cycle of the Green Seal PB project in Lisbon started in July 2018, with The Green Seal PB team and the government conducting the operational cycle and planning for the budget. It began on 29 October 2018 with residents making proposals and uploading them to the website, a process that took only ten minutes. In the first cycle, proposals/projects are presented, analyzed in technical terms, and put to the vote.This process is led by the municipality[22]. It gives citizens all ample opportunity to participate and have their say through an online platform, which also reduces the workload of staff to a certain extent. Of course, Lisbon has focused on going digital in all aspects of resident engagement to increase participation, adding ways and means of face-to-face communication. The second step started on 8 December, when The Green Seal PB team and the government worked together to analyze the projects, screen, and further review them, and published a provisional list of projects on 11 February. The project staff actively communicate with the residents, share their recommendations, and fully explain the limitations and possibilities of the green Seal to the residents. During this process, members of the organization screen out proposals that do not meet the Green Seal participatory budget requirements or that need more specific options and single them out. Next, between 11 February and 18 February, participants can appeal against the publication of cases that do not meet the requirements by adding details of the proposal: for example, pictures or information about the survey[23]. The staff of the Green Seal PB can thus be fairer and consider the proposals deeply. Furthermore, between 19 February and 26 February, the organization's staff responded to citizens' complaints. However, due to the short complaint cycle time, some complaints might not be fully resolved, resulting in not all citizens being satisfied with the response to their complaints.

Following this process, the approved projects were published on the Lisbon PB website on 1 March, and a referendum was held between March and 21 April, where Lisbon also focused on going digital, for example, allowing participants who are less comfortable voting online to do so by easy means such as Short Message Service. Finally, in April 2019, the winning projects were announced, and the number of projects voted for in 2018/19 was [2,079], while the number of projects selected was [139][24]. If the project fell into more than one category, the proposal to initially award one, two, three, or four, 'green leaves'as a marker for pb tissue judging of the project. Three green Seal projects were finally selected, namely the implementation of public and spiritual gardens to adapt existing parks to children with disabilities. The three projects would be implemented by the Lisbon Municipality in the areas of environment, green structures, climate, and energy[25].

It is worth noting that the PB staff in Lisbon have been actively involved from the beginning[26]. The staff in charge of the various municipalities in Lisbon worked with the team of the green Seal, who were professional staff working on technical and theoretical issues, while the rest of the participants could help to organize the citizens' demands and provide feedback accordingly, which could be achieved by mobilizing more public resources and co-financing sources.The whole participatory budgeting process was transparent and democratic, and Lisbon's Green Seal PB ended up being successful in improving Lisbon's urban environment, among other aspects.

Influence, Outcomes, and Effects

Lisbons citizen participation in public decision-making had helped policymakers and planners complete institutional design and green urban transformation. However, due to covid-19, the project had yet to be fully completed. At first, the organizers hoped to reduce their carbon footprint and adapt to climate change through the Green Seal PB. Unfortunately, the project ran into financial difficulties. Sufficient financial resources are needed to support the PB project, and the financial resources that can be allocated to Green Seal PB are limited. The high input costs make it impossible for some proposals to continue. However, it is worth noting that the Green Seal Participatory Budgeting project has made significant progress in conveying information and building together. The proposal shows more residents' shared vision for the community, and the government had less intervention and control. The organizers simultaneously used online and offline methods and paid more attention to some social groups, making information dissemination smoother. The positive effect of the 'de-digitalize' on participatory budgeting has brought valuable experience to the organizers, which achieved democratic innovations.

For Lisbon local governments, PB is conducive to establishing a clean and transparent government, which helps to establish a good relationship of trust with citizens and enhances citizens' sense of belonging in the place. However, the reality is that ordinary citizens are less active in participating in political life unless they believe those decisions will lead to positive, tangible changes in their lives[27]. During 2018-2019, The Green Seal Participatory Budgeting collected numerous preliminary ideas from city dwellers, but over time, the proposals started to get fewer. However, many of these ideas cannot be implemented in Pb, some are beyond the municipal jurisdiction, and some are too expensive to be completed. These negative factors may cause citizens to lose interest in the PB process and reduce participation. The information about the Green Seal PB was challenging to disseminate at first and difficult for some residents to understand. Through the application of 'de-digitalize,' more citizens participated in PB. This PB mainly focuses on proposals and deliberations on the municipal environment, climate and energy. In general, the Green Seal PB has stimulated the vitality of citizens' political participation and more democratic forms of participation and endowed citizens with more rights and responsibilities. 

Analysis and Lessons Learned

For measuring democracy in the Green Seal PB, we evaluated four key factors: inclusiveness, popular control, judgement, and transparency[28].The Green Seal PB has made an important contribution to Lisbon's democratic goods in political life has also provided a platform for citizens to speak freely.

First of all, the representatives of the participants covered the majority of residents as much as possible. They adopted a targeted method of adopting opinions for minority groups, which ensured the right of residents to express their opinions. The project is open to everyone, and any proposal can be put forward with high inclusiveness. However, this also adds uncertainty to the project because residents are often not professional enough in knowledge and experience. In order to help the proposal pass, the PB team will provide residents with ideas and assistance. The PB team still has the possibility of judging whether the project is suitable due to personal preferences, and the government department is in the role of decision-making. Therefore, the PB team is the largest non-power group in the proposal stage, and whether it has a tendency to choose the theme remains to be investigated.

Second, popular control refers to whether the will of the people can be upon to the government[29]. In the proposal stage, citizens can submit preliminary ideas and get feedback from the staff members. This step strengthens the professionalism of the proposal and the possibility of implementation, but it inevitably increases the will of the government, because the members of the PB team come from expert experiments Offices, civil servants, and government partners, often led within the team by a government leader. In the implementation phase, lack of funding is probably the most important reason for the decline in proposals, which are difficult to implement without the will of the citizens. Therefore, in the PB process, popular control is often weakened due to various factors. There is no guarantee that popular control can play an important role in the process.

In the Green Seal PB, the team will make considered judgments on the evaluation and selection of proposals based on the environmentally friendly perspective and operational feasibility. Provide targeted guidance on proposals in the early stage to help citizens think about and improve proposals from multiple perspectives. The team will convey citizen suggestions to relevant government departments. Most of the participants in PB are educated young and middle-aged people, and the improvement of education level makes the proposal more rigorous. In addition, the organizers also consider the choice of proposals from an economic point of view. The complete process of a PB project is long, the time is uncertain, and the result is also uncertain, which means that PB has inevitable sunk costs. PB requires high capital investment to maintain operations and cost maintenance.

Finally, the Green Seal PB has high transparency. Citizens' proposals can be submitted through the network, from project approval to implementation, with clear procedures and records, the voting process is open and transparent, and the PB team also gives professional guidance. However, many problems within the team are worthy of reflection, such as the uneven distribution of funds and the low level of cooperation between regional leaders. These problems lead to regional differences in PB projects. The inclination of public resources has reduced participation in some areas, and more importantly, citizens have a crisis of confidence in PB.

Overall, the Green Seal PB is successful. It has contributed to the sustainable development of the city, mobilized the enthusiasm of citizens to participate in politics, and enhanced their democratic consciousness. However, in the implementation process, there were still many factors interfering, making it impossible to exert the will of the citizens fully. Among them, many PBs cannot be implemented because of the uneven distribution of financial budgets. Although there are many difficulties and challenges in the practice process, this analysis summarized from this case will help Lisbon to consider the PB mechanism more carefully and protect the voice of marginalized groups in the future. At the same time, suitable proposal review methods should be adopted to improve transparency and better play the democratic role of PB.

See Also

https://participedia.net/case/5813

References

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[29]Miller, W.L., White, S. and Heywood, P. (1998). Popular Control: Direct or Representative Democracy? Values and Political Change in Postcommunist Europe, pp.159–176. doi:10.1057/9780230377448_10.