Problems and Purpose

Inclusive policymaking and citizen participation are crucial for the success of the European Green Deal. However, people will only accept new regulations, policies, and solutions if they have been involved in creating them.

The initiative (participation case on food sustainability) was designed, implemented and analyzed by e-Governance Academy (eGA) which was part of the project consortium.

From the very beginning, eGA team’s approach was to identify and address a very concrete topic for the pilot, which is close to people's everyday lives. The green transition is often presented in broad and abstract terms, making it difficult for most people to relate to. Therefore, it is important to break the topic down into more “digestible pieces.” This approach proved to be justified.

The topic of food sustainability was defined as a priority during the research phase of the initiative when the team conducted territorial diagnostics (11 structured interviews and 12 web interviews with local environmental experts, administrators, and politicians, along with a desktop study). In the diagnosis phase, the team also conducted a web survey among Tartu residents to assess their readiness to change and their perceptions of climate change. A total of 327 Tartu citizens responded to the survey.

The survey revealed a significant gap, as with most environmental initiatives, respondents tended to be those already aware and actively participating in various projects. However, the challenge remained: how to engage those who typically do not take part? This became one of the key questions for defining the later engagement process.

As the Tartu region was in the process of developing a circular economy roadmap, where a sustainable food system was expected to play an important role, the team set the goal of integrating the pilot project into the roadmap's creation process.

Additionally, the topic of sustainable food was strongly linked to the European Capital of Culture Tartu 2024 program. See section Background History and Context.

However, even after identifying food sustainability as the focus topic, the issue remained too broad and complex. Therefore, the team narrowed it down to three subtopics – a) reducing food waste in households, b) reducing food waste in schools and kindergartens, and c) reducing food waste in supermarkets – and built the initiative around this.

Designing the further process and specifying these focus topics was the aim of the local stakeholders’ advisory board. This advisory body was formed with the key aim of co-designing participation models, stages, and tools to improve citizen participation and co-create solutions to address this issue.

To conclude, the goal of the Tartu Food Assembly was to raise awareness among Tartu residents and engage them in discussions on how to promote sustainable food consumption and reduce food waste. The team aimed to gain insights into citizens' attitudes, their level of awareness regarding food conservation, barriers preventing more sustainable behavior, and co-create proposals for the city and other members of the food network to handle food more sustainably.

It was agreed with the City and stakeholders that the results of the Food Assembly would serve as direct input for the city's Food Sustainability Action Plan, which is part of the Circular Economy Roadmap. The experience gained from conducting the Food Assembly will also guide the city in involving residents in future decision-making processes on key topics.

Background History and Context

Tartu has a record of great showcases of e-Governance and Democratic Innovation. The city has pioneered and experimented with many good initiatives for civic engagement (e.g., Participatory Budgeting). The city authorities have made a great start in creating a more coherent and resilient urban community, with urban planning identified as a priority area where citizen engagement would bring the biggest impact. This has involved the IT community, civil society organizations, and active individuals.

The Green Deal Plan for the City of Tartu, or SECAP (Sustainable Energy and Climate Action Plan), has set ambitious goals across various areas (energy, transportation, building efficiency, biodiversity protection, and ecological corridors). Various stakeholders have already contributed to this strategy, and public consultations are ongoing to finalize and update it.

In recent years, Tartu has been particularly active in experimenting with various green initiatives (e.g., the ‘Curated Biodiversity’ and Car-Free Avenue projects). Significant international events have also supported the city’s green transformation activities. The designation of Tartu as the European Capital of Culture 2024, with its dedicated stream "Tartu with Earth: Ecology Before Economy," has increased public awareness of the green transition and people’s readiness to engage with related issues.

The city previously experimented with its first Climate Assembly in April 2022, where residents discussed ways to make urban spaces safer and more attractive.

Considering the above, Tartu appeared to be a suitable location for piloting citizens’ engagement on climate topics in general and on food sustainability more specifically. Tartu aimed to enhance its engagement practices and explore new models for meaningful environmental participation. Focusing on food sustainability has also positioned Tartu as a pioneering role model for other Estonian cities addressing this important issue.

Food sustainability and reducing food waste have become increasingly important on the agendas of public authorities. For example, the Ministry of Climate launched the campaign “Respect Food Completely!” in 2024, which was well aligned with activities of the case described. In later phases, eGA team collaborated with the ministry and shared experiences of the case at a seminar on reducing food waste organized for municipalities. The team also closely collaborated with local food saving and redistribution movements.

Organizing, Supporting, and Funding Entities

The Tartu Food Assembly, a mini citizen assembly, was organized by the e-Governance Academy (eGA) team. The model for the Food Assembly initiative was co-designed by eGA in close collaboration with the stakeholder’s advisory board and the City administration.

The food sustainability topic, as part of the broader food security debate, has become increasingly important in Estonia. Saving food is crucial for reducing waste, conserving resources, and ensuring food security. The prominence of this topic in public discourse benefited the formation of stakeholders´ advisory board and planning of the case. For years, Tartu has been working on creating a healthy and sustainable food system in children's and educational institutions (schools, kindergartens) to ensure a healthy diet with a low environmental footprint for children and young people.

Beyond environmental aspects, the sustainability of the food system is also significant for overall security and crisis management. This explains why the city administration was supportive and collaborative from the beginning of the project, both at the administrative and political levels.

Participant Recruitment and Selection

For the Tartu Food Council, the eGA team adopted a mini citizens' assembly approach, inviting residents to engage in discussions on food sustainability. A cornerstone of this method is the random selection of participants, which enhances the representativeness and legitimacy of the council's proposals. Random selection adheres to the democratic principle that everyone has an equal opportunity to be chosen.

The goal was to recruit 30 Tartu residents to participate in the discussion day. Drawing from previous engagement experiences, the team planned to implement a two-step selection process as follows:

1. An invitation email to be sent to 13,200 Tartu residents, enabling them to express their interest and provide background information via an e-registration form.

2. From the pool of registered individuals, 30 participants and 30 alternates would be selected based on diversity criteria, ensuring the sample reflected the city's demographics.

This was the initial plan for recruiting participants to the Food Assembly. However, the team encountered several obstacles when attempting to apply this methodology.

Data access challenges

To proceed with the random selection, Tartu City Government submitted a request to the Information Technology and Development Centre of the Ministry of the Interior for access to the email addresses of 13,200 Tartu residents. The request outlined the legal basis for data access and the justified purpose of using the data.

However, the Ministry's IT Development Centre rejected the request, citing new guidelines from the Estonian Data Protection Inspectorate. According to the new position, the Local Government Act was no longer deemed a sufficient legal basis for processing such data. This decision came even though a similar request had been approved for the Climate Assembly in 2022.

Due to time constraints, the team had to shift to an open public call and campaign, inviting residents to register for the Food Council by filling out an online form: https://tartu.ee/en/toidukogu-registreerimine .

The registration form collected the following information:

1) Contact details (email, phone number)

2) Demographic information (gender, age, neighborhood, mother tongue, education level, household composition)

3) Household income range

4) Experience with reducing food waste

5) Motivation to reduce food waste

6) Perception of where food waste occurs most

7) Confirmation of availability on March 23rd, 2024, for the discussion day

Additionally, the form included sections on:

• Consent for data usage

• Declaration of no professional, political, or business interests related to the Food Council's outcomes

• Parental consent for participants under 18

Together with the city, the team launched an extensive campaign across all city communication channels, both online and offline, including traditional newspapers. As a result, more than 50 people registered. Based on diversity criteria and the information provided through the registration form, 30 participants and 5 backup candidates were selected for the Food Assembly. In total, 33 participants attended the Food Assembly.

The team utilized the city's official social media channels, collaborated with local media (including an article by Kristina Reinsalu in a newspaper introducing the aims of the Food Assembly and a call to action, along with radio interviews), and asked participants where they had heard about the pilot. The feedback confirmed that the diverse use of communication channels was effective, as each channel reached different target groups.

Methods and Tools Used

I Method to co-design the participation initiative

The participation model and the whole process was co-designed by stakeholders´ advisory body (including also city representatives) and eGA team.

To ensure the long-term sustainability of the network, the eGA team decided that the advisory board should include civic activists, researchers, and experts on environmental issues in general, or on food sustainability specifically. The core group ultimately consisted of 17-18 active members.

One of the aims of forming this advisory body was to create a sustainable network for the city to co-design also future initiatives related to food sustainability initiatives.

The advisory body met four times to co-design the methodology for the initiative and shape its process.

All meetings were designed, prepared and moderated by eGA team members.

The meetings

1. validated the final topic (food sustainability) for initiative with advisory board
2. set a clear aim and define narrower focus for engagement
3. designed methodology (engagement model) for the initiative
4. prepared and implemented pre-initiative diagnosis (online survey
5. designed the final mini-citizen assembly process and shared the roles for advisory board members. Some of the advisory board members were experts, facilitators and observers during the mini-citizen assembly.

Various engagement methods and tools were used by eGA experts to support co-creation process – brainstorming, group works, joint work on online-documents.

For detailing the questions for public participation also one public engagement action was included in co-design process. The online survey on food sustainability (food consumption habits and attitudes) was co-designed by an advisory board and conducted among citizens of Tartu (339 respondents).

Based on the survey results, the advisory body selected final sub-topics and formulated recommendations for the Food Assembly, and invited experts, prepared background materials on each sub-topic to educate participants ahead of the Food Assembly.

II The methodology for participation process – mini citizen-assembly on food sustainability (Tartu Food Assembly)

As an outcome of co-creation process the Tartu Food Assembly model was ready for enabling recruited participants to discuss, validate, and prioritize recommendations across three sub-topics of food sustainability.

While typical citizens' assemblies involve multiple days of deliberation, the final model for Tartu Food Assembly was adapted to fit budgetary, human resources, and time constraints, condensing the process into a single-day event. Although the team could not use random sampling, diversity in participant recruitment was prioritized, ensuring that the assembly remained inclusive and representative.

What Went On: Process, Interaction, and Participation

In Short

Tartu Food Assembly was a mini citizen assembly focusing on strategies to reduce food waste. The event brought together 33 Tartu residents from diverse backgrounds to share insights and ideas with experts on food waste in their community. Central to the discussion were expert-provided proposals on minimizing food waste across three domains: households, educational institutions, and supermarkets. Participants reviewed and expanded upon these proposals, ultimately prioritizing them for inclusion in Tartu's upcoming circular economy roadmap. This roadmap is crucial for the area's sustainable food efforts, aiming to encourage smart consumption and reduce the environmental impact of how we produce and consume goods.

In more detail

On March 23, 2024, Tartu Food Assembly took place at Tartu Nature House, where 33 participants of different ages and backgrounds, together with experts, discussed how to reduce food waste. The participants received expert proposals and background information beforehand in three categories:

1. Reducing food waste in households.
2. Reducing food waste in educational institutions.
3. Reducing food waste in stores.

During the discussions, participants ranked the proposals based on their importance.

Before ranking the proposals, the participants were divided into groups and discussed all three topics. The group discussions were led by experts. During those discussions some additional proposals were emerging and documented.

The top four most supported ideas in each category were presented to the developers of the Tartumaa Circular Economy Roadmap, which aims to promote sustainable food systems.

Most supported ideas

1. Households:
2. Establishing food-sharing cabinets and support systems.
3. New awareness campaigns and materials.
4. Teaching how to grow food at home.
5. Continuous monitoring of food waste.
6. Educational Institutions:
7. Making catering providers more aware of food waste issues.
8. Sharing best practices between institutions.
9. Developing a systematic feedback system.
10. Increasing teachers' readiness to promote food waste reduction.
11. Stores:
12. Better planning of stock and supplies.
13. Encouraging customers to buy discounted products close to expiration.
14. Reducing impulse buying opportunities.
15. Promoting positive role models through employees and customers.

All additional ideas from the discussions were also shared with Tartu Food Network stakeholders. Comprehensive information about the process, including all proposals and their prioritization, is available here.

Influence, Outcomes, and Effects

The City of Tartu has recognized that a sustainable food system is vital for achieving its long-term goal of reaching climate neutrality by no later than 2050. For years, Tartu has focused on promoting healthy and sustainable food systems in children's and educational institutions, ensuring a healthy diet with a low environmental footprint for children and young people. Besides environmental considerations, the sustainability of the food system is crucial for food security and crisis resilience.

Local food production, often hobby-based, also strengthens social cohesion and community activity - an important factor in an aging society. The City of Tartu acknowledged the Food Assembly's proposals as practical and well-founded, selecting the most impactful ideas for integration into the Tartu County Circular Economy Roadmap.

The Food Assembly's outcomes will guide Tartu's strategy toward a more sustainable food system. All ideas generated will be shared with key stakeholders in Tartu's food network, fostering a collective and community-driven approach to reducing food waste. This network is partly the existing institutional network of people and organizations engaged in Tartu Circular Economy Roadmap. However, the methodological approach what eGA team used for this case study - the formation of advisory body of stakeholders to co-design the engagement process) brings added value (and people) to this existing network. Some of the advisory board members and participants of Food Assembly have attended follow-up meetings organized by the city to transform food assembly ideas into more concrete actions for the Circular Economy Roadmap.

The Food Assembly serves as a vital case study demonstrating Tartu's commitment to environmental sustainability and participatory democracy. The city's proactive support, including professional media relations, highlights the collaborative effort in shaping Tartu's environmental future.

The city emphasized the innovative nature of both the advisory body and the mini citizen assembly model. The entire process—from idea to outcome—was carried out within a single engagement framework, integrating both operational and political levels. Participants felt valued and understood their role in influencing local life.

The city sees potential in applying this multi-stage engagement model to other policy areas, such as mobility, energy use, and sustainable consumption. The approach has proven effective in managing the entire process holistically—from defining tasks to proposing concrete actions.

The concrete outcome of the Tartu Food Assembly process for Tartu which benefits the wider publics was the extended network of stakeholders related to food sustainability topics empowered and ready to contribute and support city in food sustainability activities. It means that more community members feel connection to the topic which has got higher priority than it had before the process. There have been already some local follow-up activities taking place such as the Debate on Food Sustainability at the Tartu Democracy Festival (17-18 May in Tartu City Park).

Secondly, there were several public engagement moments during the process to raise awareness of the topic and engage (like online survey described earlier). The whole process was covered on dedicated web page here.

eGA experts wrote stories in the newspaper introducing the process and results, emphasizing how everyone can follow the advice provided, especially regarding reducing food waste in households (e.g. article by Kristina Reinsalu (in Estonian) here).

Key takeaways from the Phoenix project and pilot

1. Advisory board: The advisory board model can be applied to various policymaking, decision-making, and co-creation processes.

2. Network of activated citizens and stakeholders: The pilot activated citizens and stakeholders who are motivated to participate in future green transition initiatives. Follow-up activities, such as the Debate on Food Sustainability at the Tartu Democracy Festival, have already attracted participants from the pilot.

3. Concrete input to the Circular Economy Roadmap: The Food Assembly generated proposals that were integrated into the roadmap's activities, demonstrating how participatory processes can deliver tangible results.

Analysis and Lessons Learned

1. Impact on democratic goods

Inclusion and effective participation

The participatory process placed strong emphasis on inclusivity, aiming to involve a broad and diverse group of citizens in meaningful dialogue. Due to legislative restrictions and time constraints, random selection of participants was not possible. Instead, an open call was launched, with final selection based on socio-demographic diversity.

Citizens were invited to register for the Food Assembly via an online form that collected a range of information, including demographic details, household income, experiences and motivations related to food waste, and availability for the discussion day. The form also included consent for data use, declarations of neutrality, and parental consent for participants under 18.

This method, while not fully randomized, enabled the selection of participants based on socio-demographic diversity. Participants received written invitations indicating their selection status and requesting confirmation of their availability. If selected participants did not respond in time, eGA experts personally contacted them by phone to ensure their engagement and motivation to participate. This proactive approach helped to build trust between participants and organizers.

Although the approach ensured a relatively broad representation, some societal segments may have remained underrepresented. Participant feedback highlighted the effectiveness of using diverse communication channels—each medium reached different target groups. However, relying solely on an open call proved limiting in fully engaging the most marginalized voices. Future initiatives could benefit from a well-designed hybrid recruitment model that combines open calls with targeted outreach to enhance inclusivity.

Engaging a diverse range of citizens is essential. Resistance to changing less environmentally friendly behaviours often stems from a lack of awareness or understanding—something that early engagement and transparent processes can help overcome. Incorporating diverse perspectives leads to richer dialogue and more practical, widely accepted solutions. Meaningful participation also fosters a sense of shared responsibility and builds trust in the city's future actions toward a green transition.

Considered judgement

Participants were provided with written background materials prepared by field experts well in advance of the event. This ensured that they had sufficient time to familiarize themselves with the topics before engaging in discussions. Additionally, experts were present during the mini-public sessions to offer clarifications and assist in deliberations where needed.

To create a safe and constructive environment at the assembly, each discussion table was chaired by a trained facilitator. This setup encouraged active listening, reduced the risk of confrontational debates, and enabled more balanced discussions.

However, one key challenge was the complexity of climate-related topics. While expert guidance was available, broad and abstract discussions on green transition policies often proved difficult for participants to navigate. The most effective strategy was narrowing down broad topics into specific, tangible questions. For instance, instead of discussing general strategies for a sustainable food ecosystem, participants focused on the more concrete question of “How to waste less food?” This made deliberations more accessible and allowed for practical, actionable solutions.

The structured nature of the project, with expert engagement, pre-distributed materials, and some simplification helped participants gain a deeper understanding of environmental policies and their real-world implications. However, a challenge emerged in that participants expected organizers to be green transition experts as well as engagement practitioners and facilitators. This underscored the need for engagement professionals to expand their knowledge in the subject matter, ensuring that they can effectively guide discussions while also providing reliable information.

Transparency and impact

From the outset, organizers clearly communicated the purpose of the process, its structure, and how participants’ deliberations would influence political decision-making. This transparency reassured participants that their contributions were not only valued but would have real implications.

Participants were informed that their recommendations would feed directly into the development of the Tartu Circular Economy Roadmap, particularly its food sustainability chapter. This link between citizen input and concrete policy outcomes strengthened the legitimacy and purpose of the engagement process.

The organizers documented and published all commitments made during the deliberations. Project materials, including agendas, summaries, and results, were made publicly available at every stage on the city's official webpage: https://tartu.ee/et/toidukogu-avaleht. This ensured full transparency and allowed any interested citizen to follow the progress.

The project also relied heavily on volunteers—including members of the stakeholder advisory board and various experts—who contributed their time and insights. Because of this reliance, it was especially important to ensure that all input was meaningfully translated into action.

To keep both participants and the wider public informed, an active media campaign was launched, leveraging social media, traditional outlets, and the city's communication platforms. Regular updates on outcomes and next steps were shared widely.

Furthermore, Food Assembly participants and stakeholder advisory board members received periodic newsletters. These updates detailed when and how their recommendations were being considered, which ones had been integrated and provided invitations to related events and workshops within the roadmap process. This ongoing communication loop reinforced the sense of ownership and accountability that is key to positive participation experience which motivates to participate in the future.

2) Impact on the six challenges

In earlier stages of Phoenix[1] project six challenges have been highlighted regarding participation in green transition.

The first set of challenges, concerning the organization of democratic innovation, includes the issues of (1) time frame, (2) complexity, and (3) scale. The second set of challenges, related to communication among actors and the negotiation of their expectations and interests for improved cooperation, includes the issues of (4) cooperation between stakeholders, (5) conflict and deliberation, and (6) trust. Three of these challenges—scope, complexity, and synergy—have been analysed in greater detail.

Challenge 1: Setting adequate time frames for policy topics

The project was strategically aligned with the city’s ongoing Circular Economy Roadmap process. As explained earlier, the recommendations selected by Food Assembly participants were incorporated into the Food Sustainability chapter of the roadmap. This ensured that the engagement process was not an isolated, one-off experiment but rather an integrated component of broader municipal strategic planning. By linking the deliberations to an existing framework, including its time frame and policy topics, all stakeholders remained motivated and focused, and the expected outcomes were clearly communicated to participants.

Challenge 2: Complexity (of climate topics)

One key lesson learned was the importance of breaking down complex, abstract topics into smaller, more tangible discussion points and questions. Asking broad questions such as “How can we make our food system more sustainable?” proved too complex. Instead, focusing on specific questions like “How can we waste less food?” and extending the discussion to areas participants could easily relate to made the sessions more engaging and productive. This approach enabled participants to offer concrete recommendations, rather than becoming mired in abstract or overly theoretical debates.

The complexity challenge was also addressed by providing participants with written background materials prepared by field experts well in advance of the event. This ensured they had sufficient time to familiarize themselves with the topics before engaging in discussions. Additionally, experts were present during the Food Assembly sessions to offer clarifications and assist in deliberations as needed.

Challenge 3: Optimizing synergies among stakeholders

The co-design process, carried out in collaboration with the stakeholder advisory board, underscored the value of expanding administrative boundaries and involving external stakeholders. Experts from various fields contributed their knowledge and experience, enriching the design of the participatory initiative.

Many advisory board members also participated in the Food Assembly itself—as experts, facilitators, or observers. Their direct involvement in the deliberative phase helped bridge the gap between citizens and policymakers, fostering mutual understanding and leading to more integrated outcomes.

The partnerships formed throughout the project enhanced both its broader impact and long-term sustainability. For the city administration, this process served as a valuable learning-by-doing experience, demonstrating the benefits of multi-stakeholder engagement. By bringing together citizens, experts, and policymakers, the initiative enabled all parties to consider environmental challenges from diverse perspectives.

Close collaboration with the city administration played a key role in building trust and reinforcing the legitimacy of the process. Moreover, the use of a structured format and trained facilitators ensured that discussions remained inclusive and balanced, helping to reduce barriers between different societal groups.

Key takeaways and recommendations

One of the most important aspects of participatory projects is managing expectations effectively. Clearly defining goals and ensuring that both institutions and citizens have realistic expectations is crucial to success. Trust and strong cooperation between public authorities and communities are fundamental to building effective participatory processes.

When engaging the public on green transition topics, it is essential to break down broad environmental issues into specific, relatable questions. People find it easier to relate to concrete problems—such as reducing food waste—than to abstract discussions about climate policy.

Facilitators must balance their expertise in engagement techniques with a solid understanding of the subject matter. Participants expect a certain level of knowledge from those guiding the discussions, making it important for engagement professionals to expand their competencies in environmental issues.

Finally, while green participation initiatives can promote sustainability, they also risk increasing inequalities. If improvements are concentrated only in city centres or wealthier areas, lower-income communities may be left behind. The Tartu pilot addressed this challenge by focusing on food waste—an issue that affects all citizens and holds potential to reduce social disparities.

By applying these lessons, cities can foster more inclusive, actionable, and sustainable democratic engagement in environmental policymaking.

[1] https://phoenix-horizon.eu/

See Also

References

The page of the pilot https://tartu.ee/et/toidukogu-avaleht

Summary and outcome of Food Assembly https://tartu.ee/sites/default/files/uploads/R%C3%A4%C3%A4gi%20kaasa/Toidukogu/tartu_toidukogu_kokkuv6te.pdf

External Links

1. Invitation to online survey in diagnoses phase Tartlased on oodatud vastama kliimamuutusega seotud hoiakute küsimustikule (tartu.ee)
2. Tartu 2024, the Cultural Capital of Europe one of the main programme lines was: Tartu with Earth https://tartu2024.ee/en/overview/#tartu-with-earth
3. About campaign on food of ministry of Climate of Estonia See more: https://kliimaministeerium.ee/en/toiduj%C3%A4%C3%A4tmed ) https://www.youtube.com/watch?v=4qiUebDToqI https://www.youtube.com/watch?v=6B57ret2q9g
4. About Phoenix and eGA activities in Phoenix https://ega.ee/project/phoenix/
5. Kristina Reinsalu´s article on Food Assembly in Newspaper https://tartu.postimees.ee/7968166/kristina-reinsalu-teeme-tartu-toidutargaks-kuidas-vahendada-toiduraiskamist
6. Kristina Reinsalu about digital engagement for greener Europe https://phoenix-horizon.eu/digital-engagement-for-a-greener-europe/

Notes

The initiative was implemented in the framework of the PHOENIX_H2020 project, which aimed to explore various (digital) methods to involve people in relevant topics. The Project Phoenix has received funding from the European Union’s Horizon 2020 research and innovation program under grant agreement No 101037328.