Promoting Active Ageing in Lithuania

4. Strengthening the participation of older people in public life

Public governance is at the heart of creating conditions and opportunities for older people to participate in society, public and political life, the labour market, and strengthen intergenerational relations. Yet, important governance challenges persist due to fragmented delivery of public services and lack of co‑ordination across certain policy areas such as health, employment, transportation, and social affairs (UNECE, 2021[11]; AGE Platform Europe, 2021[12]). Moreover, older people lack the tools, channels and opportunities to actively contribute to decisions that are relevant for their well-being (UNECE, 2021[11]). Evidence shows that a lack of political will, or lacking financial or human resources or instruments for implementing participatory approaches in the public administration as well as ageism, social isolation and digital exclusion constitute important barriers to older people’s participation in public and political life (UNECE, 2021[11]). Addressing such challenges is crucial to strengthen the relationship between older people and public institutions and their association with democratic processes.

The OECD Framework on Drivers of Trust in Public Institutions shows that opportunities for participation and engagement of citizens in policy and decision-making processes and institutions of representative democracy are important drivers of their trust in government (Brezzi, 2021[13]). At times of declining trust in government in Lithuania (Figure 4.1), opportunities for the meaningful participation of citizens of all ages, including older people, in public decision and policy making is particularly urgent (OECD, 2022[14]; OECD, 2022[15]).

In this context, the Government of Lithuania is seeking to increase the participation of older people in public and political life as part of its active ageing agenda. The Strategy for Demography, Migration and Integration Policy for 2018‑30, approved by the Parliament of Lithuania in 2018, refers to the participation of older people in political life as one of its key objectives (Government of the Republic of Lithuania, 2018[16]).

Since the adoption of the Strategy, Lithuania has made important progress to implement this agenda, including through the establishment of a new permanent Council for Seniors’ Affairs, the creation of municipal seniors’ councils in the municipalities of Kaunas City and Klaipeda City. The government has also collaborated with non-governmental organisations (NGOs) representing older persons and Universities of the Third Age, such as through the creation of dedicated projects and funding support.

Figure 4.1. Just over a quarter of older people in Lithuania expressed trust in national government in 2021 compared to 50% on average across OECD

Note: Data are unavailable for the Czech Republic (2019) and Belgium, Chile, Israel and Luxembourg (2021).

Source: Gallup World Poll, 2019 and 2021.

However, the findings from the OECD assessment point to governance challenges to the effective implementation of Lithuania’s active ageing agenda and its objectives on strengthening the association of older people with democratic processes and public institutions. This chapter provides a brief overview of main challenges and barriers identified by the OECD assessment, and outlines policy recommendations to create an enabling environment and effective governance structures for the active participation of older people in all spheres of public and political life. In particular, it aims to identify obstacles and measures to address them in:

1. Strengthening the relationship between older people and public institutions;

2. Enhancing the participation of older people in public and political life; and.

3. Encouraging the participation of older people in local public life.

The assessments and recommendations presented in this chapter were discussed with relevant stakeholders, including representatives of ministries, municipalities, NGOs, and academics in a series of workshops and fact-finding meetings. They are also informed by relevant OECD frameworks and legal instruments, notably the OECD Recommendation on Creating Better Opportunities for Young People (OECD, 2022[17]), the OECD Recommendation on Open Government (OECD, 2017[18]), the OECD Recommendation on Public Policy Evaluation (OECD, 2022[19]), the OECD Recommendation on Public Service Leadership and Capability (OECD, 2019[20]) and the OECD Policy Framework on Sound Public Governance (OECD, 2020[21]).

4.1. Older people’s participation in public and political life in Lithuania

Across OECD countries for which data exists, older people are more likely to take part in elections and vote than younger people (OECD, 2020[22]; Eurostat, 2020[23]). Recent evidence from the AGE Barometer indicates that older persons are often more loyal to political parties they have voted for when they were young (AGE Platform Europe, 2021[12]). People aged 65+ also express more interest in politics compared to those aged 18‑64 on average across the OECD (European Social Survey, 2018[24]). However, the participation of older people in the policy cycle appears to take place rather on an ad hoc basis in many OECD countries and is rarely grounded in formalised practice (Eurostat, 2020[23]).

Some of these trends can also be observed in Lithuania. Evidence from the European Social Survey demonstrates that people aged 65 years and older in Lithuania are more likely to vote and feel closer to one political party over others compared to young people (European Social Survey, 2018[24]).

According to the sample of the European Social Survey, 79% of older citizens in Lithuania report to have voted in the national elections in 2016, compared to 62% of other age groups (Figure 4.2). Yet, Lithuania ranks below the majority of OECD countries in this area. Across OECD countries for which data is available, 85% of older people voted on average in the last national election (European Social Survey, 2018[24]).

According to the interviews and responses to the OECD Policy Questionnaire, legal barriers (e.g. voter registration requirements), lack of interest, lack of awareness of political issues and mistrust of older people in political parties constitute some of the main barriers to showing up at the ballot boxes in Lithuania. However, there is no governmental body tasked with strengthening the civic skills and knowledge of citizens, including older people, for example by raising awareness about civic rights and duties or designing civic education programmes. Initiatives to provide civic education and engagement skills appear to be provided by some political parties and NGOs on an ad hoc basis and with limited outreach to people living in more vulnerable circumstances.

Figure 4.2. Older people in Lithuania are more likely to vote than persons aged 18‑64, however, turnout is below the European average

Note: Responses were weighted as 1 = yes and 0 = no. The green bar represents the unweighted average of the 23 European countries shown.

Source: OECD calculations based on European Social Survey (wave 9).

Trust in political parties and politicians may affect citizens’ participation in civic and political life (OECD, 2022[15]). Lithuania ranks below the OECD average in terms of trust in political parties. On a scale from 0 to 10, where 0 is “no trust” and 10 is “complete trust”, people aged 65 years and older in Lithuania assigned a score of 3 out of 10 for political parties compared to an OECD average of 4 (European Social Survey, 2018[24]). Trust in politicians also remains below OECD average among older persons (European Social Survey, 2018[24]). In turn, only 7% of older people (65+) say they contacted a politician, government or local government official in 2018 (2010: 4%) compared to an average of 15% across OECD countries (European Social Survey, 2018[24]).

According to the Ministry of Social Security and Labour, the lack of interest among a significant share of older people in public and political participation opportunities constitute a key challenge. This is confirmed by data from the European Social Survey, in which Lithuania ranks below the OECD average in terms of older people’s interest in politics in 2018 (Figure 4.3) (European Social Survey, 2018[24]).

Figure 4.3. Older people in Lithuania express more interest in politics than those aged 18‑64 but overall interest is low

Note: Respondents ranked their interest from “not at all”= 0 to “very” = 3. The green bar represents the unweighted average of the 23 European countries shown.

Source: OECD calculations based on European Social Survey (wave 9).

However, evidence shows that the lack of interest in politics alone cannot explain the differences across age groups in terms of their participation in public and political life. In fact, the same survey shows that older people express more interest in politics compared to other age groups in Lithuania (Figure 4.3). Yet, older people are less likely than the younger population to join political parties, contact politicians or public officials, or take an active role in a group involved with political issues (European Social Survey, 2018[24]).

Furthermore, older people in Lithuania are less likely than their peers in most other OECD countries to feel that the political system allows them to have an influence on politics (Figure 4.4) (European Social Survey, 2018[24]). The following section will analyse in greater detail some of the underlying governance challenges that might help explain these findings.

Figure 4.4. Older people in Lithuania are less likely than those aged 18‑64 to feel they have a say in what government does

Note: Respondents were asked to provide a rating from 0‑4, where 0= not at all and 4= a great deal. The green bar represents the unweighted average of the 23 European countries shown.

Source: OECD calculations based on European Social Survey (wave 9).

4.2. Legal frameworks, government plans and strategies for participation of older people in public decision-making

The Government of Lithuania has demonstrated political commitment to promote the participation of older people in public and political life with the adoption of the Strategy for Demography, Migration and Integration Policy for 2018‑30. The strategy defines “engagement of older people” as their involvement in non-governmental organisations (NGOs), activities of political parties and in making decisions related to them.

The Strategy and its accompanying Action Plan adopt a cross-sectoral approach to tackle multidimensional challenges of population ageing. They aim to promote the participation of older people in the labour market, social and political life; ensure their financial security, access to life‑long learning, quality healthcare, volunteering; and strengthen intergenerational relations. In the area of public and political life, both documents acknowledge the importance of supporting NGOs representing senior citizens and involving them in public decision-making processes (Government of the Republic of Lithuania, 2020[25]; Government of the Republic of Lithuania, 2018[16]).

However, the Strategy and Action Plan lacks a clear measurable targets and objectives. For instance, although the Strategy underlines the need to promote the participation of older people in political parties, the Action Plan does not provide any measurable targets in this area. Moreover, while the Action Plan stipulates that older people shall be encouraged to participate in consultative councils, commissions and working groups at state and municipal level, it leaves the establishment of these consultative bodies at the discretion of ministries and municipalities. The Plan also does not include any measures to reinforce civic and citizenship literacy among senior citizens, or to strengthen their trust in government and association with democratic institutions and does not discuss the role of public communication and civic space in creating an enabling environment for engagement. It also does not cover practical considerations that oftentimes constitute barriers to the participation of older people in public and political life, such as lack of transportation in rural areas.

Moreover, the distribution of responsibilities would benefit from more clearly assigned tasks and responsibilities, notably between central level and municipalities, as well as measurable targets and performance indicators. The Strategy and Plan also do not include measures or tools to support policy makers in integrating the perspectives of older people across policy and service areas nor to strengthen their relationship with public institutions.

The OECD Recommendation on Open Government highlights that a systematic approach to involve stakeholders in consultations is needed and calls on governments to “grant all stakeholders equal and fair opportunities to be informed and consulted and actively engage them in all phases of the policy-cycle and service design and delivery” (OECD, 2017[18]). The OECD Guidelines for Citizen Participation Processes (2022[26]) introduce a ten‑step methodology to support public institutions from all levels of government in designing, planning and implementing participatory processes and outline nine guiding principles that help ensure the quality of these processes. This document could be introduced as a practical hands-on tool to support public authorities in Lithuania in their efforts to reach out and involve older people in public decision making.

Lithuania is a member to the Open Government Partnership (OGP) since 2011. To support the participation of older people in public and political life, the Action Plans Lithuania is required to submit in the context of its membership to the OGP could be used to include specific measures targeting older citizens (Open Government Partnership, 2022[27]). Moreover, monitoring reports to keep track of the implementation of the Action Plans could include age‑disaggregated data to display progress across different age groups, including for the elderly. Lithuania is currently implementing its fifth Action Plan (2021‑23), which includes a provision to implement participatory democracy instruments of the OECD and provide assistance to institutions seeking to test these measures at national or municipal level (Government of the Republic of Lithuania, 2021[28]).. These objectives and related activities are however not further defined in the Plan.

The Government of Lithuania has also established a national NGO Fund. This instrument will serve to allocate funds to develop the NGO sector and build its capacity to participate in policy making (Lithuanian Ministry of Social Security and Labour, 2022[29]). However, support to NGOs can neither guarantee meaningful stakeholder participation and nor substitute government efforts to engage with all citizens whether they are part of NGOs or not. Furthermore, the existing system of NGOs may not be representative of the diversity of backgrounds of the older population in Lithuania. For instance, interviews conducted by the OECD suggest that NGOs are facing difficulties to reach to older people living in less fortunate socio‑economic conditions and rural areas, among others.

The creation of consultative bodies for older people in ministries and municipalities presents another platform to involve older people in public policy and decision-making processes. For example, in Denmark, Finland and in some parts of Germany, municipalities and regions are legally obliged to have a consultative council for older people to inform relevant policies and decisions. In Denmark, this also applies to councils at regional level. In Germany, regional laws guarantee the right of older citizens’ councils to give their advice on any legislative project (AGE Platform Europe, 2021[12]). The experience across these countries shows that, to be considered legitimate and impactful, clear roles and procedures are needed to regulate the relationship between such councils and public authorities. In Lithuania, consultative councils at subnational level exist in only two out of 60 municipalities: Kaunas City Municipality and Klaipeda City Municipality.

Given that active ageing policies cut across various ministerial portfolios and demand concerted efforts among ministries and municipalities, a clear and comprehensive strategy can help identify and co‑ordinate priorities. Australia, Austria, Chile, Colombia, Costa Rica, Finland, France, and Germany, among others, have developed national senior citizens’ strategies with measures to encourage older people’s participation in civic life. The Austrian Federal Plan for Senior Citizens “Ageing and the Future” aims to mainstream ageing in all policy fields and foster intergenerational dialogue through volunteering activities and strengthen their political participation (UNECE, 2021[30]). Colombia’s Strategy on Ageing (2015‑24) envisages that, by 2024, 50% of municipalities and districts should have associations, organisations or support networks of older adults and apply measures to enable older adults to develop civic engagement capacities (Government of Colombia, 2015[31]). Finland’s National Programme on Ageing 2030 commits to allocate specific budgets to foster volunteering initiatives among older persons, promote co‑operation and information exchange between authorities and the elders, and survey older people’s associations to map obstacles and challenges related to volunteering in an ageing society (Government of Finland, 2020[32]).

A national strategy focused on older people can also facilitate co‑ordination among ministries, agencies and sub-national authorities as well as non-governmental stakeholders in the delivery of public services in areas such as health, employment, transport, housing, justice, sports, culture and leisure. Principles of good governance codified in various OECD legal instruments and recommendations stipulate that such strategies should be evidence‑based; participatory; resourced; transparent and accessible; monitored, evaluated and accountable; cross-sectoral; gender-responsive and supported by high-level political commitment to achieve their intended goals (OECD, 2020[22]; OECD, 2017[18]; OECD, 2016[33]).

4.3. From ambition to action: A need to strengthen institutional structures, mandates, resources and capacities

4.3.1. Institutional structures and mandates

In Lithuania, policies targeting older people are co‑ordinated by the Ministry of Social Security and Labour. The ministry is responsible for selecting and supporting projects of NGOs representing older people as outlined in the Strategy for Demography, Migration and Integration Policy for 2018‑30 (Government of the Republic of Lithuania, 2018[16]). This includes measures to promote the participation of older people’s representatives in advisory councils of state and municipal institutions as well as activities to encourage their participation in social life through cultural and educational activities. The main priorities the Ministry of Social Security and Labour identifies in promoting the participation of older people in political life are:

• promoting co‑operation between state and municipal institutions and bodies and NGOs representing the interests of the elderly, enabling them to participate in matters concerning them;

• promoting the change of society’s values, a constructive culture focused on older people, fostering a positive image of them; and

• seeking innovative and creative mechanisms to promote solidarity and intergenerational interaction by supporting volunteering in order to avoid loneliness and isolation of older people.

The Ministry of Culture and the Ministry of Education, Science and Sports are involved in implementing these objectives. The Ministry of Education, Science and Sports supports activities that promote life‑long learning including civic knowledge and engagement, while the Ministry of Culture provides opportunities for older people to acquire and improve digital skills and to address social isolation and loneliness, in particular through public libraries (The Ministry of Education, Science and Sports of the Republic of Lithuania, 2022[34]). Libraries provide spaces for events and communication targeting older people, run voting polls in small towns, and disseminate information to encourage citizens to vote.

However, the lack of clearly defined mandates risks undermining efforts in these areas. For instance, while involving older people in public decision-making processes through consultative councils, commissions and working groups formed by state and municipal institutions is a joint responsibility between the Chancellery of the government and MoSSL, according to the Inter-institutional Action Plan, the allocation of responsibilities between them is not clearly spelt out. Moreover, although they are responsible for bodies and measures that ultimately can foster older people’s awareness of public and political issues, the mandates for the Ministry of Culture and the Ministry of Education, Science and Sports as well as for municipalities in this area are not clearly defined. Uncertainty about mandates also exists between the central level and municipalities on public and political life participation of older people because they are not defined by law, which can undermine joint initiatives as well as effective inter-institutional co‑ordination.

Moreover, the collection of age‑disaggregated by Lithuanian Department of Statistics in the field of citizen participation in public and political life appears to be ad hoc and remains uneven across sectors as well as regions and municipalities as the Department lacks a responsibility in this area (OECD, 2021[35]).

4.3.2. Vertical and horizontal co‑ordination

Currently, there are no inter-institutional co‑ordination channels and mechanisms, such as committees or working groups in place to implement the Strategy for Demography, Migration and Integration Policy for 2018‑30 and the accompanying the Action Plan.

The Lithuanian Council for Pensioners’ Affairs operating under the MoSSL provides a platform for exchange and aims to facilitate co‑operation among national and municipal authorities and NGOs representing interests of older and retired persons. The Council consists of 22 members and includes representatives of the main umbrella NGOs representing the elderly, representatives of the Ministry of Social Security and Labour and representatives of the Lithuanian Association of Municipalities and meets on a quarterly basis. Depending on the issue under discussion, representatives of other ministries and institutions may also be invited to the meetings of the Council such as the Ministry of Health.

The Council gives its opinion on draft legislations by submitting proposals for amendments to existing legislation or its provisions (Government of the Republic of Lithuania, 2021[36]). For instance, the Council contributed to the drafting of the new version of the Law on Social Services as well as to the drafting of amendments to the Law on Social Insurance Pensions.

However, this Council fulfils a consultative purpose and the participation of ministries and municipalities apart from the MoSSL tends to take place on an ad hoc rather than permanent basis, which discourages continuous inter-ministerial and multi-level co‑ordination.

Several OECD countries have put in place mechanisms to implement active ageing or national senior citizens’ strategies across different ministries and stakeholders. These mechanisms often take the form of inter-ministerial or inter-departmental co‑ordination bodies and working groups. For example, Ireland’s National Positive Ageing Strategy was overseen by a Cross-Departmental Group, which was composed of representatives of the Departments of Health; Social Protection; Jobs, Enterprise and Innovation; Education and Skills; Environment, Community and Local Government; Communications, Energy and Natural Resources; Transport, Tourism and Sport; Justice and Equality as well as the Central Statistics Office (UNECE, 2021[37]). Finland’s National Programme on Ageing 2030 established a cross-administrative group, which includes the Ministry of Social Affairs and Health, the Ministry of Education and Culture, the Ministry of Economic Affairs and Employment, the Ministry of the Environment, the Finnish Institute for Health and Welfare, and the Association of Finnish Municipalities (Government of Finland, 2020[32]).

According to the interviews conducted by the OECD and responses to the OECD Policy Questionnaire, the lack of effective co‑ordination mechanisms between stakeholders is one of the most important barriers that prevents older people from volunteering or being active in public and political life. In addition, line ministries and municipalities in Lithuania lack incentives to deliver on horizontal initiatives.

To foster a more concerted approach, in October 2021, an agreement was signed between the Ministry of Health, the Ministry of Education, Science and Sports, the Ministry of Culture, the Association of Local Authorities and the Ministry of Social Security and Labour to co‑ordinate more closely their respective interventions and initiatives in the area of active ageing and social inclusion. A permanent Council for Senior Citizens has been set up under the MoSSL. It includes representatives from, ministries, non-governmental organisations and the Association of Municipalities. This newly formed Council of Senior Citizens will replace the existing Lithuanian Council for Pensioners’ Affairs.

4.3.3. Resources and capacities

Findings also point to a need to strengthen human, financial and administrative capacities for inter-ministerial co‑ordination as well as the collection and use of age‑disaggregated evidence. For instance, in the Ministry of Social Security and Labour, only one person, the Chief Adviser for the Elderly, is responsible for demographic policy, ageing policy and social inclusion of older people. The responsibilities of the Chief Adviser for the Elderly include the preparation and implementation of legal acts and measures for the social inclusion of the elderly and co‑operation with different units of the Ministry of Social Security and Labour, other ministries, municipalities, NGOs as well as international organisations. The absence of a dedicated unit or department in charge of implementing the active ageing agenda is one of the key reasons for the limited capacities in undertaking these tasks.

In many OECD countries, specific departments, units or ministries co‑ordinate the work on active ageing. The location of the lead unit within government can be an indicator of the political importance given to this agenda. It can also have an impact on its specific functions (e.g. monitoring and co‑ordination roles), resources (e.g. budgets and human resources) and scope of influence (e.g. convening power). For example, Canada, Denmark and Germany have specific ministerial portfolios for senior citizens while the Department or Ministry of Health is in charge of co‑ordinating this portfolio in Australia, Belgium, Chile, Colombia and Costa Rica. In Austria, the Czech Republic, Estonia, Finland and France, the Ministry of Social Affairs is entirely or partially responsible for the development of policies focused on older people. Despite differences in their institutional set-up, they assume similar responsibilities, including the preparation, implementation and co‑ordination of national policies and strategies for senior citizens.

Some OECD countries opted for creating independent oversight institutions and mechanisms to strengthen the accountability of government action in this area. Spain and Norway established an Ombudsperson for Older Persons as an independent mechanism to promote the interests, needs and perspectives of older people in society and protect their rights (AGE Platform Europe, 2021[12]; UNECE, 2021[37]). In Malta, a Commissioner for Older Persons was appointed to raise awareness about the rights of older persons. The Commissioner can investigate alleged breaches of their rights and initiate measures to safeguard them (UNECE, 2021[38]). Oversight institutions fulfil an important function to promote transparency by holding governments accountable for achieving objectives in the area of active ageing.

4.4. Tools to mainstream the perspectives of older people in policy making

The well-being and inclusion of older people in all spheres of public life demands responsive and concerted efforts across various policy fields. To ensure that interests and perspectives of older people are reflected across these areas, and to involve older people in the process of decision making, core functions of the government can be leveraged, such as the collection and use of evidence, the allocation of public resources, rulemaking, and public procurement (OECD, 2020[22]).

4.4.1. The availability and use of age‑disaggregated evidence

The Madrid International Plan of Action on Ageing recommends “mainstreaming ageing’’ through the systematic integration of ageing issues across all relevant policy fields and at all levels of government to respond more effectively to the needs of different age groups (UN, 2002[39]). To be effective, commitments to embed an “age lens” needs to be anchored in government strategies and plans, underpinned by political commitment and leadership, and effective co‑ordination mechanisms (UNECE, 2021[37]). In addition, age‑disaggregated data and evidence as well as impact assessments that anticipate the implications of draft legislation across different age groups can inform new laws, policies and programmes and provide opportunities for stakeholder engagement and intergenerational dialogue.

However, obstacles persist to the integration of an ‘’age lens’’ across the core functions of government across OECD countries. Notably the availability of age‑disaggregated evidence remains uneven across policy areas (OECD, 2020[22]). A recent OECD report shows that Lithuania faces challenges in collecting and processing quality data and translating data into policy design (OECD, 2021[35]). The report points to the need to improve public officials’ capacity to generate and use robust and credible evidence and to systematically embed evidence in decision-making processes (OECD, 2021[35]). Evidence from the interviews and responses to the OECD Policy Questionnaire show that evidence, in the field of citizen participation in public and political life is not always disaggregated by age.

In Lithuania, the Department of Statistics collects data on the participation of citizens in public and political life through household and population surveys, which are conducted on a regular basis. However, the scope of data collection on public and political life participation by the Department of Statistics appears to be limited with only few indicators being collected and monitored on a regular basis and disaggregated by age. Similar challenges can be observed in the collection of data disaggregated by geographical location, which risk masking the disparities that exist for citizens, including older people, in different regions and municipalities.

In addition to the Department of Statistics, evidence collected by the Ministry of Social Security and Labour, line ministries, municipalities as well as by the international organisations is used to track the participation of older people in public and political life. Nonetheless, the interviews and replies to the questionnaire point to a lack of data for key indicators such as the satisfaction of citizens with democracy, trust in national government and public institutions, membership in NGOs, satisfaction with opportunities to participate in public life, and participation in non-institutionalised channels of public and political life (e.g. participation in social movements and demonstrations, signing petitions).

4.4.2. Public management tools

Some OECD member and accession countries also use public management tools such as regulatory impact assessments to anticipate the impact of new legislation on specific age groups. However, overall, their use remains limited.

Bulgaria has introduced demographic impact assessment for every new piece of legislation. The preliminary assessment is done by the proposer of the legislative act through a questionnaire as set out in the respective regulations. Following this preliminary assessment, the Council of Ministers evaluates the potential demographic impact of the proposal. The Government of Canada has put in place “Gender-based analysis plus” (GBA+) as a tool for the development of policies, programmes, legislation and other initiatives. It examines who is impacted by an issue, how they are impacted, how their identities and environments shape those impacts, what responses are needed, the potential different impacts of the response on different populations, and how barriers or negative impacts can be mitigated. GBA+ primarily seeks to advance gender equality but it also looks at other factors such as age, race, ethnicity, religion and mental or physical disability (Government of Canada, 2022[40]). The Government of the Netherlands is currently piloting a “Generation Test” to assess whether a public policy is fair from an intergenerational perspective (OECD, 2020[22]).

There are also examples of countries which leverage public budgeting tools and processes to promote the participation of older people. In Portugal, the Municipality of Alfandega da Fé is implementing a participatory budgeting initiative for older persons aimed at involving older citizens in making decisions about municipal investments (AGE Platform Europe, 2021[12]). This participatory budgeting initiative for senior citizens strives to promote active citizenship in order to strengthen the credibility and transparency of public institutions and the quality of democracy (International Observatory on Participatory Democracy, 2022[41]).

In Lithuania, regulatory impact assessments or participatory budgeting processes are so far not leveraged to support the implementation of its active ageing agenda and promote the participation of older people. However, several participatory budgeting initiatives already exist at local level which are directed towards all residents regardless of their age. In fact, 22 out of 60 municipalities in Lithuania currently implement participatory budgeting (Transparency International Lithuania, 2021[42]). In 2021, almost 40 000 citizens were involved through these initiatives in deciding on the allocation of a part of the municipal budget (Transparency International Lithuania, 2021[42]). For example, Kaunas District Municipality is conducting a participatory budgeting programme, which allows residents to submit proposals on how to improve public areas in the municipality and which are then voted by the public. Selected projects receive funding and support from the municipality to implement them (Kaunas District Municipality, 2022[43]).

Yet, a study conducted by Transparency International Lithuania shows that only a few municipalities assess outcomes of their participatory budgeting programmes (OECD, 2020[44]). The same study points to a need to define and publish the selection criteria more clearly and involve citizens more actively in the implementation of the selected projects (Transparency International Lithuania, 2021[42]). The existing participatory budgeting initiatives can also be leveraged to support active engagement of older people in making decisions and allocating public budgets.

Box 4.1. Key recommendations to promote the participation of older people in all spheres of public and political life

Key policy recommendations to strengthen the relationship between older people and public institutions

• Collecting data and evidence systematically on the needs of older people, disaggregated by gender, socio‑economic background, geographic area, (dis)ability status and all other relevant characteristics, including through consultations that are inclusive and accessible to them.

• Using clear communication on the availability of public services by channels accessible and targeted to older people such as through public libraries, health and care service providers, and traditional media such as radio, broadcast television, newspapers and tailoring public services to older people by integrating them and reviewing administrative and regulatory burdens.

• Assigning a focal point in charge of older persons in the municipalities to act as a first contact to provide information and counsel for older people on relevant public services and to co‑operate with relevant ministries, agencies, and NGOs in the implementation of active ageing policies in the municipalities.

• Monitoring and evaluating the quality and responsiveness of public services for older people on a regular basis through surveys, polls, and interviews that are accessible to them and using the feedback gathered systematically to alter course.

Key policy recommendations to enhance the participation of older people in public and political life

• Providing targeted trainings for senior citizens to increase civic, citizenship, media and digital literacy including through partnerships with NGOs and academic institutions.

• Addressing ageism and stereotypes against older people through awareness-raising programmes, including in partnership with non-governmental stakeholders.

• Using the new Council for Senior Citizens to systematically engage older people in the design of policies, services, and programmes for older people across all relevant policy and service areas.

• Promoting meaningful volunteer service for older people through laws, strategies and programmes accompanied with adequate capacities and resources (e.g. qualified trainers, a system to accredit and recognise volunteering activities), and disseminating and raising awareness on volunteering opportunities.

Key policy recommendations to encourage the participation of older people in local public life

• Clarifying mandates and allocation of responsibilities between ministries and municipalities.

• Using the new Council for Senior Citizens with the capacity and mandate to promote co‑ordination between ministries and municipalities, including through the Association of Local Authorities and by ensuring systematic representation of all relevant stakeholders at national and local levels.

• Equipping staff in municipalities with adequate skills and resources to implement local engagement initiatives.

• Facilitating learning between existing municipal seniors’ councils and municipalities with no such body, including through the Association of Local Authorities.

• Leveraging existing participatory budgeting initiatives to encourage active citizenship among older people including through partnerships with NGOs, Universities of the Third Age, and municipal elderly councils/consultative bodies.