4.5.1 Deliberative Citizens’ Involvement Projects (DCIPs)
Yang (
2013) analysed a variety of 23 “transnational deliberative citizens’ involvement projects” between 2001 and 2010 which were sponsored by EU programmes. They are described as a unique case of experimentation, but not as a paradigm shift in European communication policy, seeing as most projects were of a temporary and preliminary nature. Smith (
2013) undertook a comparative analysis of design choices and democratic qualities on a subset of these cases, plus one additional case (“European Citizens Consultation—ECC09”, “EuroPolis”, “Agora”, “Ideal-EU”, “Your Voice in Europe—YViEu”, plus “Futurum”), pointing out at least three novel challenges involved: large scale, language diversity and trans-nationality. Three different participation designs, including “deliberative polling” (randomly selected mini publics), “Twenty-first Century Town Meetings” (ICT-supported large-scale one-day events) and “online discussion forums”, revealed the following results (Smith
2013: 202 ff.):
1.
Inclusiveness. The two online examples “YViEu” and “Futurum” showed uneven participation, which damaged their legitimacy as perceived by policymakers. The solution to cope with large scales was open access to online participation and randomised or targeted selection for face-to-face participation. An established pattern of EU-level participation is a focus on civil society organisations (CSOs). “YViEu” and “Agora” represent rare examples of institutionalised participation; however, both favour CSOs rather than individual citizens. People with English language skills had an advantage despite considerable efforts to allow for multi- or trans-lingual engagement.
2.
Considered judgement. Opportunities for reasoned interactions and reflections on the judgements of fellow-participants were mixed. Interaction and deliberative quality of “YViEu” and “Agora” were seen as negligible, whereas “ECC09” and “Ideal-EU” allowed for some deliberation, mainly within national communities. “EuroPolis” and “Futurum” even achieved some trans-national exchange; however, none of these designs allowed for the trans-national development of recommendations.
3.
Publicity. This aspect was assessed rather sceptically. The observed silence of the media is problematic, since publicity of democratic innovations is crucial for democratic legitimacy.
4.
Popular control. Perhaps the most striking finding is the lack of any impact of these participation experiments on decision-making processes. Apart from empowering effects on the participants, there is practically no evidence that outputs were made use of in any form. This also holds for “YViEu”, “the only consultation procedure that involves lay citizens to be institutionalised and to have a visible impact on decision-making” (Kies and Nanz
2013: 7). Possible reasons are the still experimental character of these democratic innovations, too broad topics, too general outputs and the failure to clarify how outputs should be integrated into the policy process.
Smith (
2013: 212 ff.) points out that deliberative designs, particularly at European scale, bear high costs for organisers (and some also for participants), although the level of investments into these democratic experiments was rather small compared to traditional information campaigns on political issues. E-participation designs may allow saving costs and therefore tend to get priority. For example, implementing “YViEu” as an online platform also intended to save costs on an impact analysis. Inclusive and reasoned deliberation still requires substantial resources when carried out online.
Smith’s comparative assessment underlines the feasibility of large-scale deliberative engagement at EU level and points out “Futurum” and “EuroPolis” as good practice examples. However, given the lack of commitment amongst decision-makers to formally tie the participation projects into the institutional policymaking process, he is rather pessimistic as regards a continuation of deliberative and consultative democratic innovations at EU level. In his opinion, a plebiscitary path as represented by the European Citizens’ Initiative (ECI) will prevail as yet another tool benefitting organised interests rather than the citizens of Europe.
Kies and Nanz (
2013: 9 ff.) largely share this view, and do not see the ECI specifically designed to further pan-European deliberation. Therefore, the two instruments should be seen as complementary as sufficient evidence has been accumulated of the deliberative instruments’ positive democratic potential. To improve EU citizens’ deliberation activities, they propose the following:
1.
A combination of online and offline activities (an open online phase carefully connected with a phase of face-to-face consultations) and a topic of specific interest to promote citizens’ inclusion.
2.
National-level debates, discussions on propositions from other countries plus summarising national outcomes, followed by an optional pan-European debate, to achieve transnational debate.
3.
Steps to increase impact on the political process: formal integration of new participatory instruments, input from citizens that is concrete and of real value for decision-makers and focussing on insights from deliberation processes on why certain decisions should be reached, rather than viewing outcomes as prescriptions for decision-makers.
4.
Separate responsibilities for implementation and evaluation to increase the credibility and legitimacy of participatory processes.
Gastil (
2013) offers a broader framework to assess the impacts of representative EU deliberation and consultation processes comparatively, distinguishing three types of influence: (1) shaping the views of the participants themselves, (2) informing the judgement of the wider public on an issue and (3) various forms of coupling deliberative events with formal decision-making. At the latter level, policy influence is understood to “improve the deliberation that occurs in these bodies” rather than to “direct government bodies to mindlessly affirm or abandon their previous policy judgements” (Gastil
2013: 221). The coupling between deliberation and decision-making can comprise influence on bringing an issue on the public agenda, on defining the problem(s) to be addressed, on naming the choices and alternatives, and finally, direct influence on the decisions taken. Comparing five major EU public participation exercises with the aim “to compare the principal intended paths of influence” (Gastil
2013: 222) leads to the following results: “ECC” and “EuroPolis” are mainly confined to an influence on the participants themselves and the wider public; the former was focussed on educative and civic effects in the agenda setting phase, whereas “EuroPolis” is attributed some potential for improving the understanding of decision-making issues. All three other cases are assessed as carrying potential for different degrees of influence on policymakers: The “Agora” 2008 event on climate change is seen as suitable for influencing policymakers in the form of yielding a broader understanding of the problems involved and of policy choices to be considered. Likewise, “Ideal-EU” had potential for advising public officials through framing available choices and could even reach into shaping the views of relevant alternatives. “YViEu” could have the most direct policy impact since the public is explicitly invited to deliberate on draft legislation and can substantially inform decision-making. Gastil also offers a review of participatory and deliberative arrangements practised around the world, suggesting their adaptation and incorporation into the EU governance system (Gastil
2013: 225 ff.).
4.5.2 E-consultation Instruments
Until recently, “Your Voice in Europe” and the European Citizens’ Consultation were two key EU e-consultation instruments. In a comparative analysis focussing on institutional strategies in offering these tools, key actors mobilised and main effects, Badouard (
2010) deplores the failure to develop a single and concerted strategy for EU-level e-participation offerings. The reasons are different political strategies and actors managing these mechanisms within the institutions, entailing a wide variety of projects.
The platform “YViEu” (today instead simply titled “Consultations”) has been established in 2001 as the central site for all online consultations carried out by the various Directorates-General (DGs). These e-consultations aim to allow for the widest possible consultation of specific parts of the public on specific subjects and are regulated by general principles and standards (EC
2002). As stated by Badouard (
2010: 101 ff.), the tool serves a three-part strategy: “Your Voice in Europe stages a democratization of the EU, regulates the relationship between the Commission and lobbies, and favours a more effective consultation process.” Being regarded as both democratic and efficient, the instrument reconciles the often-assumed tension between openness and efficiency.
The European Citizens’ Consultations (ECCs), held between 2007 and 2009, have quite a different mission as a communication tool (Badouard
2010: 102 ff.). Combining an online with an offline format, the aim was to initiate a pan-European debate leading to a European public opinion on the future of EU Europe. As such, the ECCs experimented with a new political mediation mechanism which allowed for a “transformative” type of participation by sensitising participants of EU policy issues and contributing to developing a European identity, citizenship and public sphere. In contrast, “YViEu” rather represents an “instrumental” form of participation, as it serves to contribute to specific public policies, institutional transparency and openness and is evaluated with regard to its results. While for “YViEu” the benefit for the Commission is in the foreground, the ECC focusses on the benefit for the citizens.
There are also clear differences concerning the actors involved in the two consultation mechanisms (Badouard
2010: 104 ff.). “YViEu” addresses the public using a variety of expressions including “public”, “stakeholders”, “European citizens” and “interested parties”. However, there are some important barriers for “ordinary” citizens: many themes require a highly specialised technical expertise and relevant documents are often only available in a few languages, mostly in English. Consequently, civil society organisations represent the largest group amongst the participants, whereas lay citizens play a rather marginal role. An exceptional case was the European Commission’s online consultation on European summertime arrangements held in summer 2018. It received the highest number of responses ever in any Commission public consultation (4.6 million responses from all 28 Member States), showing that this instrument can mobilise massive democratic participation. However, critics have called this form of mass procedures “unmanageable, unrepresentative and a source of confusion for the public” (Alemanno
2018: 7).
The ECC instrument contrasts with a special focus on ‘ordinary’ citizens and practising both a deliberative and an aggregative element. However, this has contributed to the highly complex setup of the process, complicated implementation and lowering the incentives for citizens to engage in deliberation (Karlsson
2010). Badouard’s analysis finds that Europe-wide mobilisation of activist networks has been intensive and a further obstacle to the participation of individuals, so that “organised citizens’ clearly outweighed “ordinary citizens”, also in the ECC case. However, this does not preclude positive effects of successful online mobilisation of activist networks across national borders. This contributed to an important goal of the project, producing a European dynamic and transnational public.
As regards the impact on decision-making, the officially assigned role of consultations is to intervene upstream of the legislative process, so that participants rather contribute to preparing decisions than to directly taking part in decision processes. The conception of the “Your Voice in Europe” mechanism suggests a stronger link between consultation results and decisions, although the outcomes are not legally binding. Badouard argues that obligations to provide adequate feedback also create some pressure on the decisions to be taken and the recognition as a policy instrument, together with institutional accountability, brings the Commission to acknowledge the participants as legitimate political actors. Important conditions for the sustainability of these participatory instruments are their official status and a legal framework on their position in the decision-making process.
An analysis of the ECC by Karlsson (
2011) shows that political representation has not been increased through the project as hoped. Members of the European parliament (MEPs) as well as participating citizens appeared to have been disappointed. Karlsson finds the design of the ECC project, at least in part, responsible for the failure. It had a lack of clarity over what inputs are desired by the MEPs and which inputs are expected from the citizens. The form of communication between MEPs and citizens, as well as its management must also be considered carefully. Kies et al. (
2013) came to similar conclusions, finding there to be no impact of the deliberation results on decision-makers. They view the ECC as “a successful civic instrument but not a convincing policy instrument” (
2013: 24), due to participants perceiving positive impacts such as higher confidence in the EU and informational gains, but politicians disregarding the propositions. A general problem with deliberative projects is the so-called “loss of plurality”, in which ideas and inputs of citizens are lost during the phase of condensing all the information into a few limited recommendations. While this is inevitable, one must take care not to lose too much information, as was the case for the ECC (Kies et al.
2013).
Albrecht (
2012) reviews the e-consultation practice at EU level with a focus on the “YViEu” platform, building on analyses of other scholars (cf. Quittkat and Finke
2008; Quittkat
2011; Tomkova
2009; Hüller
2008). His main points are: Online consultations have become a well-established instrument, regularly used by practically all DGs. This has certainly increased existing participation opportunities and brought more frequent public participation, especially of diverse interest groups, resulting in broadening the input into EU policymaking and extending its knowledge base. However, serious flaws include intransparent and sometimes inadequate processing of contributions; a shift of focus on closed question formats; little evidence of mutual learning and lack of impact on policy outputs; lack of feedback to participants on the use of contributions entailing frustration; one-way format of communication and no opportunities to debate contributions; only limited use of technologies (general purpose instead of specific e-participation and web 2.0 tools); and lacking integration of new arenas for debate, e.g. the political blogosphere (Albrecht
2012: 15 ff.).
He suggests three avenues of improvement: (1) deliberation to enhance input quality, (2) technological advancement and (3) moving towards popular spaces of online debate. Insisting on the double meaning of “deliberation”—an activity on an individual and a collective level—Albrecht advocates a model of deliberative e-consultations which not only consists of collecting comments on a policy proposal but also allows for discussions on these amongst the participants and with representatives of the EU institutions concerned. However, a number of unresolved problems hinder its implementation: to adapt small group and face-to-face formats to a large-scale setting, high costs, a minority of participants being willing to engage deeper, the need to facilitate the process and to inform and support the participants, and the reluctance of officials and policymakers to participate. As regards improving technological support, natural language processing and argument visualisation technologies are regarded as interesting candidates, although evaluation results to date are mixed. A third approach suggested is to integrate e-consultations in new ways with social media platforms such as the blogosphere and popular social networking sites, in order to counter the dominating top-down flavour of existing EU channels. The assumption is that a good deal of exchange on these sites includes political talk and that the separation between political content and living realities is being blurred more and more. Several EU projects have already experimented with linking e-consultations to social media (cf. Albrecht
2012: 19). Taken together the three strategies outlined show some promise to develop e-consultations further to a model which is more open and effective than the existing practice and which will also enhance the quality and legitimacy of policy decisions.
To exploit this potential, Albrecht suggests viewing e-consultations mainly as a knowledge management process and to focus on the views considered, rather than focussing on the participatory aspect and who participates. This would include attributing higher value to deliberated opinions than to opinions which are provided without interactive assessment and to integrate social media, not merely as an additional outlet or to inject political messages, but to analyse online discourse and controversies as part of the public opinion with the purpose to inform the formulation of policies. This would mean a turn from “passive listening” in the form of taking up contributions from citizens to “active listening” to civic discourse. Of course, this raises the issue of privacy protection, which has to be guaranteed in such practice. At the same time, in specific cases of e-consultation anonymity might lead to biased results, so that strategies must be developed to reconcile the need for identification and negative effects of a forced use of real names (cf. Ruesch and Märker
2012).
A summarised SWOT analysis of online EU public consultations is offered by Lironi (
2016):
Specific strengths of EU e-consultations lie in reducing participation thresholds, encouraging participation and active citizenship, increasing democratic legitimacy of EU decision-making, enhancing the quality and transparency of EU rules and decisions, providing a cost-effective way of participation in decision-making, influencing the political process in addition to elections and political parties, reducing the democratic deficit, educating citizens about the EU decision-making and increasing its accountability.
The list of
weaknesses is longer (Lironi
2016: 52 ff.): EU public e-consultations have low publicity, lack publication of clear feedback and results, are rarely representative for EU citizens and are not user-friendly; the platform “YViEu” is unattractive, intransparent, not user-friendly and ineffective; EU public e-consultations lack meaningful impact on decision-making, can lead to frustration of citizens and are rarely available in all 24 official EU languages; tool design lacks the specific expertise of consultation practitioners; assessments are difficult since evaluation criteria and key performance indicators are lacking; participants often lack the skills for effective participation; the instrument fails to empower individual citizens vis-à-vis organised interest groups; personal opinions rather than informed arguments predominate the contributions; and Commission DGs suffer from additional administrative burdens and diversion of resources.
Nonetheless, opportunities of EU e-consultation instruments include working on the perceived democratic deficit in the EU, the rise of alternative forms of engagement and (young) people’s disengagement in “traditional” politics, progress towards more representative consultations with advances in representative statistical sampling methodology, lack of grassroots support for European policy, weak notions of “European Citizenship” and European demos, and technological advancements in ICTs.
Threats include the digital divide between countries (digital infrastructure and e-participation experience), lack of interest in EU politics, the perceived democratic deficit in the EU, and openness to e-participation offerings paired with resistance to fundamental change of decision-making structures.
Recommendations to improve online EU public consultations comprise:
-
Upholding the use of this type of e-participation instrument and promoting it
-
Making EU e-consultations better known, accessible to citizens and less technical, and always publishing the results with meaningful feedback, on time and with accurate analysis results
-
Promoting EU e-consultations as an alternative engagement opportunity to attract those tired of “traditional” forms of politics and to stimulate grassroots discussions and engagement in EU affairs
-
Considering a transformation from open consultations to a representative sample model
-
Making sure that no citizen is excluded due to the digital divide and offering complementary offline options for citizens’ participation in policymaking
-
Efforts to enhance citizens’ interest in EU politics and to facilitate their engagement
4.5.3 The European Citizens’ Initiative (ECI)
The European Citizens’ Initiative (ECI), which formally entered into effect on April 1st, 2012, is perhaps the first transnational instrument of participatory democracy worldwide. The ECI gives European citizens an opportunity to influence the legislative initiation process by submitting a proposal to the European Commission. It is now one of the main options amongst the formally institutionalised systems at EU level that provide for connecting bottom-up and top-down forms of participation with the support of digital tools. Principal requirements for the launch of an ECI are that the organisers constitute a citizens’ committee with at least seven citizens from at least seven Member States, register the initiative on the ECI website, and collect at least one million support statements from citizens of at least seven of the Member States.
The ECI can be seen as an agenda-setting and policy-shaping instrument which produced great expectations but also scepticism amongst diverse observers, actors and stakeholders regarding the advancement of participatory democracy (cf. Pichler and Kaufmann
2012). Implemented to empower citizens, the ECI is now portrayed as a successful example of civil society mobilisation, seeing as civil society organisations (CSOs) have often been promoters of ECIs (Bouza García
2012: 338 ff.; see also Organ
2014). Bouza García identifies two important potentials: Firstly, the ECI may attract groups that are not highly institutionalised in Brussels, since CSOs that have been strongly active at the EU level may prefer a civil society dialogue. This could empower organisations that have been less able to attract the attention of EU institutions but are able to mobilise citizens, and thus more successful with ECIs. Secondly, with the emergence of new actors and issues, relations between EU institutions and civil society may change from “consensus-prone” to increased contention.
Empirical findings from an analysis of the first 16 initiatives suggest that the ECI has a special potential to enable citizens of small Member States to participate in the EU (Conrad
2013: 301), but the sample is yet too small to draw definitive conclusions. Hrbek (
2012: 383) points to the fact, that despite political parties not yet having been organisers of an ECI, they may see potential in this instrument in the future and play a more active role. Whether the ECI will have the potential to realise a better integration of top-down and bottom-up approaches, given the existing social asymmetry amongst the promoters, remains yet uncertain.
4.5.3.1 Criticism
The procedural demands of the ECI require organisers to deploy extremely high levels of organisational capacities. Digital tools, in particular the Internet’s advantage in mobilising support for an initiative, therefore play an important role. Duinkerken (
2013: 30) even contends that collecting one million signatures without using modern ICTs would be almost impossible to achieve. However, the online collection software provided by the European Commission has in the past been subject of criticism, including shortcomings regarding its usability (Głogowski and Maurer
2013; Berg and Głogowski
2014; Starskaya and Çagdas
2012). Rustema (
2014: 104) proposes that “a true open-source, community-developed” system would better meet the existing challenges. However, since its first release in December 2011, a number of updates have been made to improve the Online Collection Software provided by the European Commission.
4.5.3.2 Digital Support
In addition to reducing campaign costs organisers expect at least three advantages from using the Internet in an ECI process: spreading information about their campaign, disseminating arguments in support of it, and collecting sufficient signatures (Carrara
2012: 358). Sangsari (
2013) also sees potential to facilitate the development of an ECI through prior deliberation in online forums as meeting places of organisers with like-minded people.
Typically, each ECI has a dedicated website serving to provide information on the initiative and facilitating online signature collection. Głogowski and Maurer (
2013: 18) point out that ECIs “with transparent and user-friendly web pages translated into the majority of European languages have better chances to successfully collect signatures online” —a seemingly simple requirement, but not easy to implement. Carrara also points to the many facets of language barriers, e.g. due to cost reasons; most initiatives before 2012 refrained from opening multilingual online forums that could foster a debate. This poses another challenge to ECI organisers: in contrast to face-to-face collection, it is very resource-intensive to construct a deliberative space that allows for interaction, in many cases an insurmountable task. Therefore, the online presence needs to exhibit the campaign’s central statement very clearly, and contain “
a strong, intelligible and universal argument register” (Carrara
2012: 360). Meanwhile information on ECIs is distributed via social media which feeds into transnational discourse spaces, but particularly used by young (educated) elites (Knaut
2013; Greenwood
2012). While it is generally believed that the Internet allows for the inclusion of a variety of actors that would otherwise not be prone to public participation (Carrara
2012), Internet literacy is an indispensable prerequisite and Internet availability a decisive factor. Appropriate online channels are indispensable for an efficient transnational participation process; two thirds of the registered initiatives (up to March 2015) have collected statements of support online (EC
2015: 9), in the case of the “Right2Water” initiative online collection even accounted for 80% (EC
2015: 7).
While the online collection of signatures can save time and resources, organisers cannot rely on digital support declarations alone for an initiative to be successful. In contrast to digital collection systems, face-to-face collection is more likely to strengthen citizens’ identification with the initiative (Głogowski and Maurer
2013: 18). The role of online collection varies between the Member States, possibly due to differences in current e-participation cultures and levels of Internet access reasons (Carrara
2012: 366). Thomson (
2014: 74) observes that campaigns are generally negatively affected by high data requirements, referring to the large amount of personal data, e.g. ID card numbers, signatories have to submit when stating their support for an initiative.
4.5.3.3 Points for Improvement
The current implementation of the concrete terms and rules of the ECI indeed demands significant improvements and modifications in design. Suggestions for major improvement of the online collection software and the entire process have been made (Kaufmann
2012: 240) and recognised to some extent. Additionally, calls were made to extend the period of signature collection to 18 months, to set up an independent helpdesk and to increase access to the signing of an ECI. There are also proposals on multilingual training tools, the clarification of EU data protection law and uniform requirements for signature collection in all Member States (Karatzia
2013). Berg and Thomson (
2014: 122) advocate for the following 12 goals:
-
“Reduce and harmonise personal data requirements across Member States;
-
eliminate ID number requirements;
-
ensure that all EU citizens can support an ECI—wherever they live;
-
lower the age of ECI support to 16;
-
redesign the online signature collection system;
-
collect the e-mail address within the main ECI support form;
-
lengthen the signature collection time to 18 months;
-
give ECI campaigns time to prepare: let them choose their launch date;
-
provide a support infrastructure for ECIs with legal advice, translation and funding;
-
provide an EU legal status for ECI citizens’ committees;
-
remove or modify the first legal admissibility check;
-
increase public and media awareness of the ECI.”
Lironi (
2016: 51) similarly argues for an intensified promotion of the ECI as a tool, increasing the user-friendliness of the ECI (e.g. through a reduction and harmonisation of identification and data requirements), and altering the signature collection timeframe.
A study commissioned by the European Parliament (Ballesteros et al.
2014) identified obstacles for the ECI in six areas covering the entire ECI process: registration, certification of the online collection system, signature collection, verification and submission of statements and horizontal issues such as data protection or funding transparency. Here, measures to create a one-stop-shop for supporting ECI organisers as well as improving the signature collection software and support forms are seen as essential. The study concludes with recommendations to increase the ECI’s effectivity, with concrete suggestions for revising both Regulation 211/2011 as well as EU primary law, the TEU (EP
2014). Key points include amending the TEU to either revising the ECI as an agenda-setting tool—in this case the Commission would not be obliged to follow a successful initiative with legislation—or revising the ECI as a tool for legislative initiative, meaning that citizens could have real legislative power within a certain framework. More specifically the study suggests a two-step system where, for instance, half a million signatures would request the EC to propose legislation, whereas one million signatures would oblige the EC to do so. The demand for introducing obligatory actions is strongly contested, as a million signatures cannot be considered representative for EU citizens.
The ECI as an institutional innovation for enhancing not only the citizens’ influence on EU-level decision-making but also for contributing to the formation of a European public sphere has at best been of modest success to date. It would, however, be too pessimistic to conclude that the instrument has a predominantly symbolic function. It is to some extent still an experiment with many open questions and it was therefore wise to include a clause for a possible revision every 3 years after a period of gathering experience with the new instrument. For now, it seems that the ECI’s relevance is far greater on the discursive level than in terms of the concrete policy-shaping impact.
The European Citizens’ Initiative (ECI) was envisioned to increase direct participation in EU law-making, but seems to have failed in conveying its message to citizens as there appears to be no connection between knowing about the ECI and the image of the EU or being willing to use the tool (Gherghina and Groh
2016). Monaghan (
2012) speculates that perhaps the output-based approach and the measurement of the ECI in Commission Green Papers or Proposals is not relevant to EU citizens, as they are more interested in changes in their political realities. The potentials of the ECI appear to remain untapped, which is unfortunate as Lironi (
2016) refers to possible benefits such as strengthened participation of citizens in policymaking and consequently increased political legitimacy.
Most recent developments show some remarkable progress as regards the use and role of this instrument which underlines its democratic potential. After the conclusion of our study, the European Commission presented a legislative proposal to revise the European Citizen’ Initiative, which entails several changes primarily addressing the liability of initiative organisers, the provision of information and advice, the registration phase of initiatives, the minimum age to support initiatives, the signature collection phase and the review provisions (EC
2017). Whether the interpretation of these developments as “impressive signs of previously unseen institutional matureness and political energy” (people2power
2017) of the ECI will be sustained remains to be seen.
4.5.4 E-Petitions of the European Parliament
The option to submit a petition to the European Parliament via the Internet is another form of using digital tools within a participatory instrument at EU level. The Committee on Petitions (PETI) is the body that is responsible for treating petitions and deciding on which kind of action to take.
According to a recent report (PETI
2015), citizens mainly petitioned about the environment, fundamental rights, justice, the internal market and European policy development and used the tool in order to contest or argue against decisions and rulings which were made. In 2014, 2714 petitions received marked a slight decrease from the previous year, the trend in the past few years having been rising. More than half (59.6%) of these petitions were closed at early stages due to three main reasons: the petition was deemed inadmissible, was closed after information on the relevant subject was communicated to the petitioner, or was closed due to being addressed to the wrong EP committee. A total of 1168 petitions were admissible, of which 1119 were passed on to the Commission for an opinion. English, German, Spanish and Italian are the languages most commonly used within the petitions (collectively accounting for 72%). While Germans, Spaniards and Italians were the most active petitioners, citizens from Estonia and Luxembourg were strongly underrepresented (PETI
2015).
Back in 2009, 63.2% of all petitions were sent via e-mail; this percentage has increased to 80% in 2014 (PETI
2015), the Internet being the preferred method for petitioning. In 2014, the PETI report documents 80% of the admitted petitions being closed within a year. An important observation made annually in these PETI reports is the fact that citizens “[…] confuse the EU institutions and those of the Council of Europe, in particular the European Court of Human Rights” (PETI
2015: 24). In November 2014 a new Petitions web portal was introduced, possessing more feedback features on the status of petitions and more information on the Parliament’s areas of competence. The PETI report welcomes this development, though it points out that in order to reach the petitions page, a user must navigate through four pages from the Europarl homepage. Another criticism was the length of the whole petition process, particularly the long time needed by the PETI Committee to verify petitions (Lironi
2016: 37).
Tiburcio (
2015) examined “The Right to Petition” to the European Parliament for the Committee on Petitions, noting that recent studies on petitions tend to neglect it, although it represented a “well-embedded process to deal with petitions” (Tiburcio
2015: 12). He comes to the following conclusion: “[…] the petition system of the European Parliament compares well overall with the petition systems of Parliaments of Member States. In terms of conventional features, it scores well in all dimensions: it ensures direct access (and not intermediate) by citizens; it is highly inclusive and open to both national citizens of Member States as nationals from third countries, if they reside within the EU territory; it offers possibilities for greater involvement of citizens, including through frequent holding of hearings, followed by public debate in committee” (Tiburcio
2015: 40).
He does, however, identify several weaknesses which have yet to be resolved, such as an information gap, and recommends working on the following points:
-
Clearer information
-
Publication of more detailed information related to the petition process
-
Publication of all documents related to the petition
-
A better and more focussed communication strategy
-
Getting to know who the petitioners are (sex, age, education, occupation, etc.)
-
Learning opinions and experiences of petitioners
-
Conducting a public survey on citizen knowledge of the right to petition the European Parliament
-
Investing in EU promotional material
-
Collection of statistical data on the treatment of petitions on the PETI web portal.
4.5.5 Summary
The democratic innovations introduced in the course of the EU’s “participatory turn” represent a variety of participatory instruments, practically all of which make use of digital tools in one form or another. They embody types of e-participation mainly contributing to political agenda setting or to be considered in decision-making (e-deliberative designs, e-consultations, e-initiatives or e-petitions). Similar instruments are also practised at national and sub-national levels; however, the supra-national nature of the EU poses three novel challenges: large scale, language diversity and trans-nationality.
As was shown, the experiences from over a decade of experimentation with various participatory designs, as well as in part regular use at EU level, have been mixed. The democratic potential of the existing participatory instruments, in particular the support of digital tools to enhance direct and participatory democracy, has been proved in many respects to different degrees. However, a number of serious challenges, unsolved problems and unfulfilled expectations have also been encountered.
Assessments of various types of deliberative participatory designs reveal many starting points to improve the democratic quality. The lack of any impact on decision-making is one of the most striking findings. The often experimental character is not the only reason; at times too broad topics, too general outputs and the lack of clear rules on how to integrate outputs into the policy process seem to be the biggest barriers. Opportunities for deliberation allowing for considered judgement are rare and usually limited to national communities. The “Europolis” and “Futurum” designs represented positive exceptions and demonstrated the possibility of trans-national exchange. The focus on civil society organisations rather than ordinary citizens, and the fact that this is a frequent pattern, challenges the ideal of inclusiveness. The lack of publicity of these democratic innovations, the silence of the media on them and the difficulties to mobilise citizens for participation are special points of grievance.
A more differentiated view of the issue of policy impact acknowledges several types of influence: on the participants themselves, the wider public and formal decision-making. Rather than being understood as a one to one translation of suggestions into policy decisions, the latter type of impact can mean improved deliberation in governmental bodies and more indirect impact by shaping the preparation of decisions along the various phases from agenda setting and problem analysis to framing choices and finally taking decisions. Likely impacts also depend on institutional strategies in offering particular participatory designs, for example, whether conceived as a policy instrument, such as e-consultations via the “Consultations” platform, or a communication instrument with a transformative mission aimed at sensitising participants of EU policy issues, such as the ECCs. Though e-consultations have become a well-established instrument in practically all DGs which has certainly broadened the input into EU policymaking and extended its knowledge base, serious flaws need to be worked on, such as intransparent processing, lack of feedback and lack of impact on policy outputs.
Finally, experiences with the ECI have shown that for the time being the potential to act as an effective bridge between bottom-up claims to participate in EU policymaking and formal institutions has not been realised as expected. Much acclaimed as the first formally institutionalised transnational instrument of participatory democracy, it has been more a tool for civil society mobilisation than citizen empowerment up to this point, since it requires enormous organisational capacities on the part of organisers of an ECI. However, most recently the signs of improved performance and increased use of this instrument look more promising. Digital support is indispensable and plays an even stronger role in most recent initiatives; still, it is all the more necessary to cure remaining deficits in support by the existing online collection system and other barriers identified. The European Parliament’s e-petition system also requires some improvement by facilitating access and speeding up the whole petition procedure in order to raise its value as an instrument of participatory democracy.