Consensus-Building
#10Key Findings
In the category of consensus-building, Lithuania falls into the sample’s upper-middle ranks (rank 10).
The government draws on internal and external institutions for scientific advice. The Research Council of Lithuania advises the government on research and higher-education policy, acting as a link between policymakers and the scientific community. However, scientific expertise is not systematically integrated into the legislative drafting process.
The government involves trade unions and business organizations in policy development through the Tripartite Council, as well as through ad hoc groups focused on specific issues. Receptivity to business or labor insights varies by government.
Social welfare groups have limited influence over policy. Environmental CSOs have become increasingly active in the policymaking process. The state’s open data policy has dramatically improved in recent years.
The government draws on internal and external institutions for scientific advice. The Research Council of Lithuania advises the government on research and higher-education policy, acting as a link between policymakers and the scientific community. However, scientific expertise is not systematically integrated into the legislative drafting process.
The government involves trade unions and business organizations in policy development through the Tripartite Council, as well as through ad hoc groups focused on specific issues. Receptivity to business or labor insights varies by government.
Social welfare groups have limited influence over policy. Environmental CSOs have become increasingly active in the policymaking process. The state’s open data policy has dramatically improved in recent years.
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To what extent is the government successful in effectively harnessing the best available scientific knowledge for policymaking purposes?
10
9
9
The government is able to harness the best available scientific knowledge for policymaking purposes.
8
7
6
7
6
In most cases, the government is able to harness the best available scientific knowledge for policymaking purposes.
5
4
3
4
3
Only rarely is the government able to harness the best available scientific knowledge for policymaking purposes.
2
1
1
The government is not able to harness the best available scientific knowledge for policymaking purposes.
In most cases, the government effectively utilizes the best available scientific knowledge for policymaking purposes. Both internal and external institutions facilitate this use of scientific knowledge. The Government Strategic Analysis Center (STRATA) provides the government and ministries with independent expert information necessary for evidence-based policy decisions. The Research Council of Lithuania is an expert institution and advisory body accountable to the government on the topics of research, development and higher-education policy. It also implements competitive funding for research, including applied research, acting as a knowledge broker institution between policymakers and the scientific community. This includes collecting information on the political demand for scientific advice and funding research activities that supply expert analysis to meet this demand.
The STRATA, the Research Council of Lithuania, and the chancellery of the government have benefited from the European Commission and OECD technical assistance project on strengthening capacities for evidence-informed policymaking. This project began in early 2023 with participation from seven EU member states.
There are also permanent and ad hoc advisory bodies established by the government that bring together officials and scientific experts. The State Progress Council was first set up in 2010 to advise on the preparation of the long-term Lithuania 2030 strategy. In late 2021, its membership was renewed by Prime Minister Ingrida Šimonytė and tasked with providing advice on the new long-term development Lithuania 2050 strategy. The preparation process included many scholars from Vilnius University and other scientific organizations and lasted for almost two years (2022 – 2023). During this period, thematic discussions with experts and stakeholders, sensemaking workshops, and analysis of megatrends were employed, creating platforms for exchange between policymakers and researchers. These platforms were useful in enabling dialogue, and for bringing a research-based focus to topics affecting future policy. At the end of 2023, the strategy was approved by the Seimas. The government also sets up temporary ad hoc bodies (working groups, commissions) to advise on particular matters important to society, such as managing the COVID-19 pandemic.
In 2023, the Research Council of Lithuania launched a network of research and innovation advisers – an initiative funded by the Next Generation EU facility that is expected to last until 2026. With academic backgrounds, 15 advisers will work in the chancellery of the government and line ministries to provide advice on facilitating the use of scientific knowledge during the drafting of policy initiatives and fostering a culture of evidence-informed policymaking.
Despite initiatives aimed at practically implementing the government’s ambition to enhance capacities for evidence-informed policymaking, the systematic use of scientific expertise in daily legislative drafting is still lacking. Although the use of impact assessments for draft laws prepared by the government was formalized in 2003, it is rarely undertaken properly. This means that assessments are not conducted in a timely manner, do not consider several policy alternatives, and often forgo consultations with experts and stakeholders. The government has sought to strengthen the capacities of ministries to conduct both ex ante and ex post impact assessments, including organizing training sessions for civil servants through STRATA in 2021 – 2023. However, these efforts remain underutilized.
Thus, while key formal and informal institutions for evidence-based policymaking are in place, their practical performance has limitations. After the aforementioned technical assistance project expired, STRATA has yet to settle on a permanent operating and financing model. Its role in evidence-based policymaking remains unsettled, and its organizational capacity fluctuates significantly, as indicated by frequent changes in the organizational structure and the reduction of staff by half at the beginning of 2024 due to financial constraints. Similarly, while the government actively involves non-governmental experts for consultations on policymaking, strategic foresight and planning, many of these experts have criticized such initiatives for their superficial nature, and have pointed out that the experts’ recommendations are rarely reflected the final decisions.
Citations:
STRATA. https://strata.gov.lt/en/home/
Research Council of Lithuania. 2023. https://www.lmt.lt/en
The STRATA, the Research Council of Lithuania, and the chancellery of the government have benefited from the European Commission and OECD technical assistance project on strengthening capacities for evidence-informed policymaking. This project began in early 2023 with participation from seven EU member states.
There are also permanent and ad hoc advisory bodies established by the government that bring together officials and scientific experts. The State Progress Council was first set up in 2010 to advise on the preparation of the long-term Lithuania 2030 strategy. In late 2021, its membership was renewed by Prime Minister Ingrida Šimonytė and tasked with providing advice on the new long-term development Lithuania 2050 strategy. The preparation process included many scholars from Vilnius University and other scientific organizations and lasted for almost two years (2022 – 2023). During this period, thematic discussions with experts and stakeholders, sensemaking workshops, and analysis of megatrends were employed, creating platforms for exchange between policymakers and researchers. These platforms were useful in enabling dialogue, and for bringing a research-based focus to topics affecting future policy. At the end of 2023, the strategy was approved by the Seimas. The government also sets up temporary ad hoc bodies (working groups, commissions) to advise on particular matters important to society, such as managing the COVID-19 pandemic.
In 2023, the Research Council of Lithuania launched a network of research and innovation advisers – an initiative funded by the Next Generation EU facility that is expected to last until 2026. With academic backgrounds, 15 advisers will work in the chancellery of the government and line ministries to provide advice on facilitating the use of scientific knowledge during the drafting of policy initiatives and fostering a culture of evidence-informed policymaking.
Despite initiatives aimed at practically implementing the government’s ambition to enhance capacities for evidence-informed policymaking, the systematic use of scientific expertise in daily legislative drafting is still lacking. Although the use of impact assessments for draft laws prepared by the government was formalized in 2003, it is rarely undertaken properly. This means that assessments are not conducted in a timely manner, do not consider several policy alternatives, and often forgo consultations with experts and stakeholders. The government has sought to strengthen the capacities of ministries to conduct both ex ante and ex post impact assessments, including organizing training sessions for civil servants through STRATA in 2021 – 2023. However, these efforts remain underutilized.
Thus, while key formal and informal institutions for evidence-based policymaking are in place, their practical performance has limitations. After the aforementioned technical assistance project expired, STRATA has yet to settle on a permanent operating and financing model. Its role in evidence-based policymaking remains unsettled, and its organizational capacity fluctuates significantly, as indicated by frequent changes in the organizational structure and the reduction of staff by half at the beginning of 2024 due to financial constraints. Similarly, while the government actively involves non-governmental experts for consultations on policymaking, strategic foresight and planning, many of these experts have criticized such initiatives for their superficial nature, and have pointed out that the experts’ recommendations are rarely reflected the final decisions.
Citations:
STRATA. https://strata.gov.lt/en/home/
Research Council of Lithuania. 2023. https://www.lmt.lt/en
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To what extent does the government facilitate the participation of trade unions and business organizations in policymaking?
10
9
9
The government is able to effectively involve trade unions and business organizations in policy development.
8
7
6
7
6
Most of the time, the government is able to effectively involve trade unions and business organizations in policy development.
5
4
3
4
3
The government is rarely able to effectively involve trade unions and business organizations in policy development.
2
1
1
The government is not able to effectively involve trade unions and business organizations in policy development.
The government effectively involves trade unions and business organizations in policy development. The Tripartite Council serves as the main forum for regular discussions of new policy initiatives between government officials, business associations and trade unions. Additionally, representatives of trade unions and business associations are often invited to participate in ad hoc groups, such as those focused on reforms of the Labor Code or tax laws. The consultation processes are generally public and inclusive.
However, the involvement of business associations – and especially trade unions – in policy development tends to be uneven and varies with government cabinets. The center-right government that came into office in 2024 tends to favor business organizations over trade unions. This is evident from several recent key policymaking initiatives, such as the renewal of the activities of the State Progress Council to lead the development of the long-term Lithuania 2050 strategy and a series of tax reform proposals. In both cases the presence of business associations was strong, while trade unions were not represented.
However, the involvement of business associations – and especially trade unions – in policy development tends to be uneven and varies with government cabinets. The center-right government that came into office in 2024 tends to favor business organizations over trade unions. This is evident from several recent key policymaking initiatives, such as the renewal of the activities of the State Progress Council to lead the development of the long-term Lithuania 2050 strategy and a series of tax reform proposals. In both cases the presence of business associations was strong, while trade unions were not represented.
To what extent does the government facilitate the participation of leading social welfare CSOs in policymaking?
10
9
9
The government is able to effectively involve leading social welfare CSOs in policy development.
8
7
6
7
6
Most of the time, the government is able to effectively involve leading social welfare CSOs in policy development.
5
4
3
4
3
The government is rarely able to effectively involve leading social welfare CSOs in policy development.
2
1
1
The government is not able to effectively involve leading social welfare CSOs in policy development.
Most of the time, the government effectively involves leading social welfare CSOs in policy development processes. The Ministry of Social Security and Labor organizes standing platforms for dialogue and funding to engage CSOs and strengthen their capacity to provide policy advice. The government also aims to include stakeholders, including CSOs, in consultations during the drafting of new legal initiatives and through the Open Government Initiative. For example, guidelines for public consultations are prepared and available on the government website, with the goal of facilitating consultation with relevant stakeholders for line-ministry officials drafting new laws.
In the view of CSOs, the government led by Ingrida Šimonytė has been more willing than its predecessors to involve CSOs in consultations. Yet, in many cases, the views and solutions offered by CSOs are not reflected in final policy decisions, suggesting that the consultation process is frequently passive. On the other hand, CSOs themselves still lack the capacity to provide timely and evidence-informed policy advice.
Citations:
Ministry of Social Security and Labor. “NGO.” https://socmin.lrv.lt/en/useful-links/ngo
The Government of Lithuania. “About public consultations (in Lithuanian).” https://epilietis.lrv.lt/lt/atvira-vyriausybe-3/apie-viesasias-konsultacijas
In the view of CSOs, the government led by Ingrida Šimonytė has been more willing than its predecessors to involve CSOs in consultations. Yet, in many cases, the views and solutions offered by CSOs are not reflected in final policy decisions, suggesting that the consultation process is frequently passive. On the other hand, CSOs themselves still lack the capacity to provide timely and evidence-informed policy advice.
Citations:
Ministry of Social Security and Labor. “NGO.” https://socmin.lrv.lt/en/useful-links/ngo
The Government of Lithuania. “About public consultations (in Lithuanian).” https://epilietis.lrv.lt/lt/atvira-vyriausybe-3/apie-viesasias-konsultacijas
To what extent does the government facilitate the participation of leading environmental CSOs in policymaking?
10
9
9
The government is able to effectively involve leading environmental CSOs in policy development.
8
7
6
7
6
Most of the time, the government is able to effectively involve leading environmental CSOs in policy development.
5
4
3
4
3
The government is rarely able to effectively involve leading environmental CSOs in policy development.
2
1
1
The government is not able to effectively involve leading environmental CSOs in policy development.
The government is largely effective in involving leading environmental CSOs in policy development. Environmental CSOs have become increasingly active in debates addressing the preservation of forests and other natural resources. They have developed analytical capacities through their international links, which they then use to advocate particular policy proposals. The government has also involved environmental CSOs in discussions of specific policy initiatives. For example, environmental CSOs have played a significant role in drafting the long-term Lithuania 2050 strategy. They are also active in public hearings and expert committees.
As noted by the OECD in its 2021 report, “Despite environmental authorities’ outreach to non-governmental actors in drafting high-profile laws and policies, there is no active dialogue with civil society on key environmental policy priorities, particularly at the local level. Environmental awareness of the population is below the EU average, partly due to the lack of a consistent approach to environmental education. Most environmental information is accessible to the public but is fragmented across different authorities’ websites, making it more difficult to find and use.” Lithuania was advised to “consolidate public sources of environmental information and ensure regular reporting on the state of the environment. It should also provide open public access to compliance-related information about individual polluting installations.”
Citations:
OECD. 2021. OECD Environmental Performance Reviews: Lithuania 2021. Paris: OECD Publishing. https://doi.org/10.1787/48d82b17-en
As noted by the OECD in its 2021 report, “Despite environmental authorities’ outreach to non-governmental actors in drafting high-profile laws and policies, there is no active dialogue with civil society on key environmental policy priorities, particularly at the local level. Environmental awareness of the population is below the EU average, partly due to the lack of a consistent approach to environmental education. Most environmental information is accessible to the public but is fragmented across different authorities’ websites, making it more difficult to find and use.” Lithuania was advised to “consolidate public sources of environmental information and ensure regular reporting on the state of the environment. It should also provide open public access to compliance-related information about individual polluting installations.”
Citations:
OECD. 2021. OECD Environmental Performance Reviews: Lithuania 2021. Paris: OECD Publishing. https://doi.org/10.1787/48d82b17-en
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To what extent does the government publish data and information that empowers citizens to hold the government accountable?
10
9
9
The government publishes data and information in a manner that empowers citizens to hold the government accountable.
8
7
6
7
6
Most of the time, the government publishes data and information in a manner that empowers citizens to hold the government accountable.
5
4
3
4
3
The government rarely publishes data and information in a manner that strengthens citizens to hold the government accountable.
2
1
1
The government does not publish data and information in a manner that strengthens citizens’ capacity to hold the government accountable.
The government usually publishes data and information in a manner that empowers citizens to hold the government accountable. The conservative-liberal coalition government formed in late 2020 included several provisions in its program relating to open data policy, aiming to improve transparency and citizens’ access to data. It pledged “to make open data an essential element of the government’s decision-making and communication processes” and “to ensure that open data is provided to the population and businesses in an orderly and timely manner” so as to allow it to be swiftly and effectively used by the public and researchers in response to new challenges, in turn enabling them to participate actively in the policymaking process (Seimas 2020).
In 2022, the Law on Official Statistics and State Data Governance was adopted, allowing for the reform of the Department of Statistics into the State Data Agency. This reform aimed to enhance data pooling and provide for its more effective and timely use. According to the annual report of the government on its activities in 2022, data from 43 registers and information systems have been integrated into the state data pool.
OECD data shows that Lithuania’s performance has improved due to government initiatives. In 2019, Lithuania was last in the OECD in terms of data availability and government support for reuse, and fifth-worst in terms of data accessibility (OECD 2019). Its overall score was the worst in the OECD. According to the most recent report published in 2023, Lithuania is now among the 10 best performers – a group of OECD countries characterized by “very high performance,” with a comprehensive approach to open data initiatives. Lithuania scored particularly high with regard to data availability (fifth place), and 10th in the accessibility of high-value datasets, but somewhat worse in overall data accessibility (12th) and government support for data reuse.
The extent of proactive data provision is somewhat limited, making it challenging to determine its user-friendliness. Frequent complaints from citizens and business representatives in the media indicate that they feel poorly informed about new policy initiatives. However, it is difficult to ascertain whether this lack of information stems from insufficient availability and user-friendliness of government-provided data or from a lack of interest on the part of citizens and businesses.
Citations:
The Seimas. 2020. “Resolution on The Program of the Eighteenth Government of Lithuania.” 2020. No. XIV-72.
The Government Annual Report for 2022, 17 May 2023 (in Lithuanian), https://epilietis.lrv.lt/lt/naujienos/seimui-teikiama-vyriausybes-2022-metu-veiklos-ataskaita
OECD. 2019. “Open, Useful and Re-usable data (OURdata) Index: 2019.” https://www.oecd.org/countries/lithuania/open-useful-and-re-usable-data-ourdata-index-2019-45f6de2d-en.htm
OECD. 2023. “2023 OECD Open, Useful and Re-usable data (OURdata) Index: Results and Key Findings.” OECD Public Governance Policy Papers No. 43. https://doi.org/10.1787/a37f51c3-en
In 2022, the Law on Official Statistics and State Data Governance was adopted, allowing for the reform of the Department of Statistics into the State Data Agency. This reform aimed to enhance data pooling and provide for its more effective and timely use. According to the annual report of the government on its activities in 2022, data from 43 registers and information systems have been integrated into the state data pool.
OECD data shows that Lithuania’s performance has improved due to government initiatives. In 2019, Lithuania was last in the OECD in terms of data availability and government support for reuse, and fifth-worst in terms of data accessibility (OECD 2019). Its overall score was the worst in the OECD. According to the most recent report published in 2023, Lithuania is now among the 10 best performers – a group of OECD countries characterized by “very high performance,” with a comprehensive approach to open data initiatives. Lithuania scored particularly high with regard to data availability (fifth place), and 10th in the accessibility of high-value datasets, but somewhat worse in overall data accessibility (12th) and government support for data reuse.
The extent of proactive data provision is somewhat limited, making it challenging to determine its user-friendliness. Frequent complaints from citizens and business representatives in the media indicate that they feel poorly informed about new policy initiatives. However, it is difficult to ascertain whether this lack of information stems from insufficient availability and user-friendliness of government-provided data or from a lack of interest on the part of citizens and businesses.
Citations:
The Seimas. 2020. “Resolution on The Program of the Eighteenth Government of Lithuania.” 2020. No. XIV-72.
The Government Annual Report for 2022, 17 May 2023 (in Lithuanian), https://epilietis.lrv.lt/lt/naujienos/seimui-teikiama-vyriausybes-2022-metu-veiklos-ataskaita
OECD. 2019. “Open, Useful and Re-usable data (OURdata) Index: 2019.” https://www.oecd.org/countries/lithuania/open-useful-and-re-usable-data-ourdata-index-2019-45f6de2d-en.htm
OECD. 2023. “2023 OECD Open, Useful and Re-usable data (OURdata) Index: Results and Key Findings.” OECD Public Governance Policy Papers No. 43. https://doi.org/10.1787/a37f51c3-en