Scotland’s Open Government action plan 2021 to 2025: milestones

Participation commitment

Initial milestones

Participation framework: developing knowledge and skills across SG (beginning autumn 2021)

Scotland’s previous Action Plan produced a Participation Framework (PF), which now needs to be rolled out for use across and beyond Scottish Government. Successful use of the PF will require knowledge and skills, alongside recognition of the importance of participation. Training is required to achieve this. 

Milestones:

• develop general participation training for use with key sets of policy officials in SG, which has a focus on equalities mainstreaming, intersectional analysis and competent participation
• deliver participation training for key groups of policy officials within Scottish Government
• evaluate and reflect on training and subsequent participation activity, to develop more tailored training for use across SG

In parallel, work with Open Government Network for Participation (below) to explore and develop options for training and/or roll out of PF for civil society.

Participation Framework: embedding equalities and an inclusive approach (beginning autumn 2021)

Scotland’s previous Action Plan produced a Participation Framework (PF). A commissioned third sector review of the PF identified a number of changes needed to ensure that the PF enables inclusive participation that has equalities as a core focus.

Milestones:

• update PF to include:
  • an Equalities and Participation statement, explaining why participation is an equalities and human rights issue, and what our responsibilities are. This will include an update to the existing one page framework diagram, where there is currently no mention of equality or ‘who’ is being engaged
  • further information needs to be provided on exclusionary practice (e.g. funds to travel, digital exclusion) and actions to mitigate this
• collaboratively develop a set of guidance on achieving representative samples of society, including going beyond known people and networks – this should focus on those furthest away from power, opportunity and wealth. This will happen in stages:
  • in the shorter term, develop options for more diverse ‘mini publics’ and engagement via specialist outreach groups, to ensure inclusion of people furthest away, and those who are not already included in SG data sets
  • in the longer term, work with SG analysts to adapt SG data sets, making these as inclusive and intersectional as possible. This can link in with the Equalities Data Improvement Programme (EDIP)
• in the longer term, develop and propose options for a central unit, the remit for which can include considering ways to support community capacity building needed to ensure successful and equitable participation. This can link in with the Open Government Network for Participation (below)
• collaboratively develop consistent and systematic monitoring and evaluation that will be embedded into participation delivery. This can form a key part of a framework that holds policy areas to account for how participation is happening, including multiple named contacts with dedicated responsibility for participation and regular Ministerial updates
• as above, design and roll out a programme of PF training to build capacity on equalities mainstreaming, intersectional analysis and competent participation
• collaboratively consider ways to more explicitly align participation with equalities and human rights:
  • frame communications and guidance in this way
  • develop routes to normalise a view of implementing participation as part of upholding equalities and human rights commitments

Institutionalising Participation and Deliberative Democracy working group: reporting and beginning processes of change to make participation routine and effective (autumn 2021 onwards)

We have set up an Institutionalising Participation and Deliberative Democracy that brings together experts from Scotland, UK and international organisations.

 In autumn 2021, this Working Group will report its recommendations on how we can make participation routine and effective. These will include:

• defining the principles, standards and aims of using participatory processes including (but not limited to) Citizens’ Assemblies
• identifying methods of governance for delivering credible and trustworthy participatory democratic processes

• setting out options and an indication of the resources necessary to establish and deliver these routinely and sustainably

The recommendations will be taken forward by a range of stakeholders, including the Open Government team. We will prepare milestones to measure progress towards these recommendations on the publication of the working group’s report.

Embedding Open Government principles in the planning, conduct and outputs of annual Citizens’ Assemblies (from December 2021)

Milestones

• set out how SG will implement the outcomes of the Expert Working Group on Institutionalising Participatory and Deliberative Democracy
• establish cross-portfolio working to support the delivery of deliberative democratic processes
• support the delivery of annual Citizens’ Assemblies from 2022 to meet the values and principles set out by the Expert Working Group on Institutionalising Participatory and Deliberative Democracy

Developing an active and inclusive Open Government Network for Participation (2022 onwards)

Developing grassroots participation is an essential component of creating a culture of inclusive participation. This will be a long-term process. A key step in this is developing and maintaining an active Open Government Network for Participation, building capacity and engagement across civil society.

Milestones:

• establish Network: scope in collaboration with civil society, develop terms of reference (January 2022)
• engage Network as a key route to make the Participation Framework publicly useable and useful (February 2022)
• consider how the Network can be supported to engage with and provide shared learning and training opportunities for Ministers and government officials, and civil society. This will include reflecting on the role that civil society has and could have in taking better and fairer decisions and inclusively developing policy that meets a wide range of needs (2022 onwards)

Review of consultations - spend, approach, monitoring (autumn 2022)

While consultations are an important tool and are currently the default method of seeking public views, they are not effective or inclusive for many parts of our society.  This project will put in place training to ensure that public servants understand the value of consultations in the context of other methods of participation.

The specific milestone deliverables over this period will be set out at each of the twice yearly reviews.

Monitoring the completion of local authorities delivery of 1% of budgets through participatory budgeting (from autumn 2021)

Scottish Local Authorities and the Scottish Government agreed a framework whereby at least 1% of local government budgets will be subject to Participatory Budgeting.  This establishes a shared expectation that together with elected members, officers, civil society and local communities we use Participatory Budgeting to go beyond current arrangements for consultation and engagement.

Originally agreed to be met by March 2021, the timeline has been revised to recognise the impact of the COVID-19 pandemic upon local government, people, and communities. There is a degree of flexibility available to councils as to when they can practicably meet it, and they will initially report in August 2021.

Implementation of the National Participatory Budgeting Strategic Group’s framework for the future of participatory budgeting and embedding open government principles (September 2021)

Established in September 2020 with an initial focus on establishing an overall framework for Participatory Budgeting over the lifetime of the following Scottish Parliament, the group deliberated on shared ambition, intentions and priority areas for development where there is energy and enthusiasm for the differences Participatory Budgeting can make. This resulted in a Framework for the Future of Participatory Budgeting in Scotland produced in July 2021.

The Framework establishes areas of priority where there is significant potential for a contribution from PB. These are education, health and wellbeing, housing and tackling climate change with our communities.

As milestones, this will be set out in Autumn 2021.

Embedding Open Government principles in Just Transition participatory budgets

We will implement Green Participatory Budgeting with agreed target levels of funding. 

Milestones:

• we will explore the use of Participatory Budgeting in 2021‑22 as part of our wider support for community‑led climate action
• we will identify opportunities at COP26 to develop the concept of Participatory Budgeting for climate action – both in Scotland and abroad – and identify opportunities to develop programmes specifically involving schools and young people
• we will work with local authorities to embed climate principles into wider participatory budgeting initiatives, building on the agreement between the Scottish Government and COSLA that at least 1% of council budgets will be subject to Participatory Budgeting by 2021‑22

Embedding Open Government principles in the Community Empowerment Act parliamentary review (2023)

By 2023, there is a requirement for the Community Empowerment Act to be reviewed. This will provide an opportunity for participation, and the application of Open Government principles of accountability and transparency.

We will develop actions and milestones when possible.

Embedding Open Government principles in the National Performance Framework refresh (2023)

The Open Government team will work with SG teams responsible for the National Performance Framework (NPF) refresh, which is to take place during this Parliament, to deliver this using Open Government principles in spirit and in practice.

Milestones:

• early engagement and input into NPF refresh planning by Open Government team, ensuring awareness and understanding of Open Government principles
• inclusive discussions and agreements about the practical applications of these principles to the NPF i.e. what would an NPF that is transparent, accountable and participatory look like?
• collaborative development across NPF refresh process of a set of outcomes and indicators that are transparent, accountable and have been influenced by participatory processes

Embedding participation as a core skill in centre of expertise (new name TBC) (October 2021 to December 2021)

We will work to develop a way of bringing together expertise to deliver priority reform projects. This will include embedding an equalities-focused approach to the Participation Framework across ways of working and addressing reform priorities.

We will develop actions and milestones when possible.

Updated milestones 2023

In January 2023, civil society representatives and government officials met to discuss and review milestones as part of the Participation commitment. This included running an in person workshop that was structured around the recommendations outlined in Scotland’s Independent Reporting Mechanism’s report which involved evaluating the co-creation of the Participation commitment. For those unable to attend the workshop, online meetings with milestone leads were conducted to understand and define where milestones should be updated to better reflect work planned for 2023.

Each milestone for 2023 continues to align with initial milestones and actions detailed, and the vision and values of the Action Plan. New milestones include a focus on improving children and young people’s participation, guidance around ethics and safeguarding for participants, and developing a procurement framework for participation.

Milestones developed seek to ensure the commitment is focused on a set of clear and demonstrable deliverables to guarantee momentum on a commitment that is wide reaching and cross – cutting.

Action: Participation framework - developing knowledge and skills across SG (beginning autumn 2021)

2023 milestones

Delivery of Participation Framework training sessions across Scottish Government.

Delivery of in-depth participation training to Scottish Government Social Researchers.

Explore options for including participation in refreshed evaluation training, and building on survey evidence.

Development of Scottish Government wide procurement framework for participation work.

Action: Participation Framework - embedding equalities and an inclusive approach (beginning autumn 2021)

2023 milestones

Development of process and guidance for paying participant expenses and compensating for participant time.

Develop and embed ethics, equity and safeguarding principles, standards and guidance in the Participation Framework and further guidance.

Action: Institutionalising Participation and Deliberative Democracy working group - reporting and beginning processes of change to make participation routine and effective (autumn 2021 onwards)

Continue to progress initial milestones as outlined

Action: Embedding Open Government principles in the planning, conduct and outputs of annual Citizens’ Assemblies (from December 2021)

Continue to progress initial milestones as outlined

Action: Developing an active and inclusive Open Government Network for Participation (2022 onwards)

2023 milestone

Ongoing diversification of the civil society network with the Scottish Community Development Centre.

Action: Review of consultations - spend, approach, monitoring (autumn 2022)

2023 milestones

Restructure Scottish Government internal guidance on consultation to embed it within a wider narrative around participation and engagement.

Launch a new digital engagement service offer to support the delivery of different digital engagement activities by Scottish Government.

An analysis of evaluation data by external analysts to provide insight into the accessibility and effectiveness of consultations will be produced, and will inform the guidance and training provided, and form an evidence base to promote non-consultation options for engagement.

Launch a new digital engagement hub on gov.scot for the public to find out about opportunities to engage in policy making in Scottish Government.

Action: Monitoring the completion of local authorities delivery of 1% of budgets through participatory budgeting (from autumn 2021)

2023 milestone

Continue to progress initial milestones as outlined

Action: Implementation of the National Participatory Budgeting Strategic Group’s framework for the future of participatory budgeting and embedding open government principles (September 2021)

2023 milestone

Continue to support the National Participatory Budgeting Strategic Group, as they provide the strategic direction for participatory budgeting (PB) across Scotland. This includes work to raise awareness of the National PB Framework’s priorities and indicators for success, championing open government values and principles

Action: Embedding Open Government principles in Just Transition participatory budgets

2023 milestone

Embed Open Government principles in Green Participatory Budgeting. This includes:

• continuing to explore the use of PB as part of our wider support for community led climate action
• identifying opportunities to support Green PB programmes across Scotland
• continuing to work with COSLA to support local authorities’ PB initiatives, including Green PB

Action: Embedding Open Government principles in the Community Empowerment Act parliamentary review (2023)

2023 milestone

Review of Section 10 of Community Empowerment Act. As part of the Scottish Government’s review of the Community Empowerment (Scotland) Act 2015, the Open Government values, principles and approaches will be applied throughout the process.

Action: Embedding Open Government principles in the National Performance Framework refresh (2023)

2023 milestone

We will use desk based research and stakeholder meetings alongside our consultation and call for evidence to inform the Review of National Outcomes. Desk-based research will be ongoing and has involved reviewing our existing citizen engagement exercises, a review of community Action Plans, commissioning the Children’s Parliament to contribute, and will also include a thematic gender review. The stakeholder meetings will be carried out from March to June, and will bring together particular groups whose insights will be pertinent to the development of the National Outcomes.

We will analyse the outputs of these four strands (consultation, call for evidence, desk-based research, stakeholder meetings) over summer, with a view to getting a report to parliament by the end of 2023.

We will develop an implementation plan and set of resources to support the use of the reviewed NPF.

We have established an Expert Advisory Group made up of leaders from across Scotland to advise on the process for the Review of National Outcomes. This group will continue to meet throughout the Review to provide feedback and advice. Some members of this group are joining with other stakeholders to test out and prototype a framework for wellbeing conversations. We will explore how this test phase can feed into the Review of National Outcomes.

Action: Embedding participation as a core skill in centre of expertise (new name TBC) (October 2021 to December 2021)

Continue to progress initial milestones as outlined

New action: Improving children and young people’s participation in decision-making and policy design

2023 milestones

Support the delivery of the The UNCRC (Scotland) (Bill). Article 12 of the UNCRC makes it clear that young people have a right to have their views heard, and for those views to be taken seriously. The participation portfolio of the Children’s’ Rights Unit is connected to wider policy work happening across the Scottish Government to ensure a cohesive approach to meaningful participation of Children and Young People within the wider participation landscape.

Develop the Children and Young Persons Participation Framework to enable policy areas across Scottish Government and public bodies to identify, recruit and engage with organisations that have the skills and expertise required to design and deliver bespoke, high quality participation activities with children and young people.

Co-create a Young Persons Participation Toolkit with Young People to support policy teams looking to engage with young people in policy making.

Support the delivery of the Children and Young Peoples Takeovers. The annual meeting of all Cabinet Ministers with CYP demonstrates, at the highest level of government, our commitment to meaningfully and credibly engage with CYP on issues that matter most to them.