Problems and Purpose

The Participatory Budgeting (PB) of Palmela, the first in Portugal, was implemented in 2002 with the aim of involving citizens in local governance. Popular participation was consultative in nature and open to the entire population, focusing on all aspects of local management and taking place annually in all localities of the municipality. The specific objectives defined by the Municipality of Palmela were associated with a logic of accountability. They aimed to establish a direct channel through which the population could present criticisms and suggestions to elected officials, as well as submit proposals to be integrated into the Grandes Opções do Plano, a structure of economic and social planning. It was also a space for sharing information, particularly about ongoing work in the various localities and the definition of priorities in the decision-making process. The expectation was that this would improve the exchange of information between parties and increase knowledge about the needs and expectations of the population [1].

After seven editions, and due to the economic and financial context experienced in the country and worldwide, the PB went on hiatus, returning in 2014 after reformulation [2]. Currently, the PB - renamed “Eu Participo Municípess” (I Participate Citizens) - continues to be described as a participatory democracy mechanism of a consultative nature. It is part of an extensive citizen participation program in the municipality of Palmela, and aims to stimulate the active involvement of the population in defining priority investments and actions to be carried out. It also allows citizens to express their opinions and needs on a wide variety of issues [3].

Background History and Context

The Municipality of Palmela is the largest in the Lisbon metropolitan area, with an area of ​​465 km2. Today, it is one of the fastest-growing municipalities in the country in terms of population. The 2021 Census recorded a population of approximately 69,000 inhabitants, while in 2001 the number was just over 53,000. In 2002, the year the PB was implemented, the municipality had five parishes, which, with the administrative reorganization, became four: Palmela, Pinhal Novo, Poceirão and Marateca, and Quinta do Anjo. The territory is marked by great heterogeneity, spreading between rural and urban areas, revealing challenges in terms of demographic dispersion and access to social and local facilities.

The Municipality of Palmela, led since the establishment of democracy by the Unitary Democratic Coalition (CDU), has popular participation in public management as one of its banners. The year 1998 proved to be a key moment for this paradigm. The new executive aimed for participatory management for the municipality, structured in two aspects: one individual, through decentralized meetings and a Participated Budgeting; and another organized, through the promotion of associativism and local councils. The Participated Budgeting consisted of five meetings in 1998, one for each parish, in which citizens interacted directly with elected officials, expressing their investment needs. An internal evaluation resulted in the recognition of methodological limitations, and the initiative was discontinued [1].

The PB re-emerged in 2002, the year in which the municipality created the Secretariat for Participation and Local Development, demonstrating an interest in overcoming experimental participation and institutionalizing a coherent model integrated into public management. In this sense, a Technical Commission for Participatory Budgeting was established to coordinate the monitoring of the project. The PB thus became one of the municipality's priorities, inserted in a broader objective of stimulating the active participation of the population in local life.

After seven editions of the PB in Palmela, the economic and financial crisis of 2008 resulted in a period of pause in the program. This was used to reformulate it, returning in 2014 with a reinforcement of the information provided and a more detailed sharing of results, with several levels of analysis to support it. The PB returns at a time when participation has already consolidated itself as a privileged methodology of work in the municipality of Palmela, whose democratic strengthening and local power, and shared management are priorities. The PB is part of a broader range of participatory processes for various audiences, such as the "Eu Participo Crianças e Jovens/ Agir pelos Direitos/ Poder Local" programs, aimed at children and young people, the "(A)gentes do Bairro", or the “Semanas das Freguesias”.. PB stands out for the thematic scope of the decisions and direct impact on local daily life.

With the current designation of “Eu Participo Munícipes”, PB is part of the overall citizen participation program of the municipality of Palmela “Eu Participo”, including various initiatives, among which are "Eu Participo Crianças" or "Eu Participo Trabalhadoras/es", aimed at specific audiences.

Organizing, Supporting, and Funding Entities

The PB is promoted and funded by the Palmela Municipal Council. There is no defined budget limit, and the winning proposals are integrated into the Municipality's Plan and Budget, subject to budgetary availability.

Participant Recruitment and Selection

In its initial phase, the PB of Palmela was universal, meaning it was open to the entire population of the municipality. Currently, it is open to all citizens over 18 years of age who are residents, students, and workers in the municipality of Palmela.

Methods and Tools Used

In its initial phase, the PB was structured in 6 stages: i) preparation of the basic proposal for the Grandes Opções do Plano, involving all municipal services; ii) debate with the population, municipal bodies, and entities; iii) research with the population residing in the municipality of Palmela; iv) preparation of the final proposal of the documents, headed by the executives and technicians of the City Council; v) approval of the documents by the elected officials; vi) monitoring and evaluation of the process. During this period, the PB was essentially limited to collecting proposals from the population [1].

In its most recent version, the PB also follows a set of 6 stages: i) cycle of public sessions to initiate the participation process; ii) period for submitting proposals; iii) technical analysis; iv) new cycle of public sessions for presenting the proposals for voting; v) voting period; vi) announcement of the winning proposals. The population over 18 years of age has the opportunity to submit proposals, which are subject to technical analysis and, after selection, put to a vote. The proposals must focus on the five parishes of the municipality, and the one with the most votes in each of these will be included in the Municipal Investment/Activities Plan. However, the City Council emphasizes that, depending on budgetary availability, other proposals may be implemented, even if they are not the winning ones.

What Went On: Process, Interaction, and Participation

In the first decade of the millennium, public participation consisted of contributing to the Municipality’s definition of municipal investment priorities. Involvement was done through public meetings and a survey. The results of participation did not emerge from a deliberative process and were not binding, with only a commitment to consider them.

In the most recent cycles of the PB, the population has the opportunity to present concrete proposals. Each person can submit a maximum of one for each parish, in different formats and at different times. They can be submitted on the PB website, on paper, at municipal facilities and Parish Councils, or at public participation sessions, held in all parishes. After technical analysis of the proposals and fulfillment of the eligibility criteria, they are put to a vote, which can be done online, by SMS, on paper, or at public sessions.

Influence, Outcomes, and Effects

Through the PB of Palmela, the population gained a channel for, firstly, communicating with elected officials and municipal technicians, and, secondly, an instrument for direct participation in decision-making, contributing decisively to the definition of municipal policies and strategies.

Internally, the PB proved to be an important step towards shared management of local life, as well as the institutionalization of a participatory culture in the municipality. Currently, the Municipality of Palmela has a global citizen participation program, with various aspects - destinataries and themes- and participatory methodologies.

The PB of Palmela also had a contagious effect on local government politics throughout Portugal. Being the first of its kind in the country, PB quickly spread to other municipalities, also with a consultative character. Currently, there are more than 200 PBs promoted by Portuguese municipalities, which have also incorporated a deliberative aspect. Furthermore, Portugal was the first country to promote a national PB, in addition to numerous others developed by parishes, schools, universities, regions, and others.

References

[1] Granado, C. (2010). Democracia e participação ao nível local: O poder político e o orçamento participativo: O caso de Belo Horizonte e Palmela [Tese de doutoramento, Iscte - Instituto Universitário de Lisboa]. Repositório Iscte. http://hdl.handle.net/10071/4419

[2] Câmara Municipal de Palmela. (2014). Orçamento Participativo 2014: Resultados - Compromissos - Debates. Available at https://www.cm-palmela.pt/cmpalmela/uploads/writer_file/document/1277/caderno_op.pdf

[3] Câmara Municipal de Palmela. (2025). Eu Participo Munícipes 2025: conheça o guia de funcionamento. https://epm.cm-palmela.pt/PageGen.aspx?WMCM_PaginaId=29892&noticiaId=30378

External Links

https://epm.cm-palmela.pt/PageGen.aspx?WMCM_PaginaId=27511

https://associacaoportuguesasociologia.pt/cms/docs_prv/docs/DPR460eb04d5f381_1.pdf