Insights into Participatory Policymaking
Analysing the National Citizen Science Policy Development in Finland
DOI:
https://doi.org/10.7557/11.8084Keywords:
citizen science, participatory policymaking, stakeholder engagement, open science, science policy development, institutional frameworks, participatory governance, Federation of Finnish Learned Societies, Finland, policy design, stakeholder theory, public participationAbstract
This article explores how Finland created its first citizen science policy by involving the stakeholders in the policymaking process. The aim is to assess how engaging stakeholders can shape science policy.
The basis of the study is in the shift of responsibility for coordinating open science in Finland from the Ministry of Education and Culture to the Finnish research community, specifically the Federation of Finnish Learned Societies (TSV). We examined documents from the TSV citizen science working group, including meeting notes, survey results, and the final policy paper, to understand how stakeholder participation influenced the policy-making process.
The results show that involving stakeholders helped shape policy recommendations, especially in improving institutional support, guidelines, and funding visibility for citizen science. However, challenges like uneven awareness and engagement among stakeholders could limit the effectiveness of participatory approaches. By placing these findings within the context of participatory policymaking and stakeholder theory, the article provides insights into how inclusive policy design works. This study adds to the understanding of how participatory governance and science policy development can be integrated into institutional frameworks to drive practical change.
Downloads
References
Aitamurto, T. (2016). Crowdsourced deliberation: the case of the law on off-road traffic in Finland. Policy & Internet, 8(2), 174-196. https://doi.org/10.1002/poi3.115
Ansell, C., & Gash, A. (2008). Collaborative Governance in Theory and Practice. Journal of Public Administration Research and Theory, 18(4), 543–571. https://doi.org/10.1093/jopart/mum032
Ansell, C., Sørensen, E., & Torfing, J. (2017). Improving policy implementation through collaborative policymaking. Policy & Politics, 45(3), 467–486. https://doi.org/10.1332/030557317x14972799760260
Arnstein, S. R. (1969). A Ladder of Citizen Participation. Journal of the American Institute of Planners, 35(4), 216–224. https://doi.org/10.1080/01944366908977225
Avoimen tieteen ja tutkimuksen koordinaatio (2021) Avoimen tieteen ja tutkimuksen koordinaatio. Itsearviointi. Responsible Research Series 11:2021. https://doi.org/10.23847/tsv.149
Bhangale, A. (2024). Citizen science at the university of amsterdam: findings from interviews and a university-wide survey. https://doi.org/10.31219/osf.io/z5b63
Blomkamp, E. (2021). Systemic design practice for participatory policymaking. Policy Design and Practice, 5(1), 12-31. https://doi.org/10.1080/25741292.2021.1887576
Boon, W., Haan, J., Duisterwinkel, C., Gould, L., Janssen, W., Jongsma, K., … & Yerkes, M. (2022). Meaningful public engagement in the context of open science: reflections from early and mid-career academics. Research for All, 6(1). https://doi.org/10.14324/rfa.06.1.23
Brenya, E. (2024). Do the people matter in policymaking in ghana? a reflection on the e-levy and debt exchange programs. Panafrican Journal of Governance and Development (Pjgd), 5(1), 56-77. https://doi.org/10.46404/panjogov.v5i1.5361
Brussel, S. and Huyse, H. (2018). Citizen science on speed? realising the triple objective of scientific rigour, policy influence and deep citizen engagement in a large-scale citizen science project on ambient air quality in antwerp. Journal of Environmental Planning and Management, 62(3), 534-551. https://doi.org/10.1080/09640568.2018.1428183
Buckland-Merrett, G., Kilkenny, C., & Reed, T. (2017). Civil society engagement in multi-stakeholder dialogue: a qualitative study exploring the opinions and perceptions of meta members. Journal of Pharmaceutical Policy and Practice, 10(1). https://doi.org/10.1186/s40545-016-0096-0
Calyx, C. (2022). Participatory budgeting for research funding decisions. Evidence & Policy, 18(1), 163-176. https://doi.org/10.1332/20x16017816524892
de Castro, P. (2022). Successful implementation of Open Access strategies at Universities of Science & Technology. CESAER Task Force Open Science 2020-2021. https://doi.org/10.5281/zenodo.6410867
Cheng, W. and Ahmad, J. (2010). Incorporating stakeholder approach in corporate social responsibility (csr): a case study at multinational corporations (mncs) in penang. Social Responsibility Journal, 6(4), 593-610. https://doi.org/10.1108/17471111011083464
Dickinson, J., Shirk, J., Bonter, D., Bonney, R., Crain, R., Martin, J., … & Purcell, K. (2012). The current state of citizen science as a tool for ecological research and public engagement. Frontiers in Ecology and the Environment, 10(6), 291-297. https://doi.org/10.1890/110236
Driesche, C. and Kerklaan, S. (2022). The value of visual co-analysis models for an inclusive citizen science approach. inspired by co-creation methods from design thinking. Fteval Journal for Research and Technology Policy Evaluation, (54), 51-60. https://doi.org/10.22163/fteval.2022.571
Freeman, R. E, Strategic management: A stakeholder approach. (1984) Pitman Boston. 1984.
Freeman, R. E., Harrison, J. S., Wicks, A. C., Parmar, B. L., & de Colle, S. (2010). Stakeholder Theory: The State of the Art. Cambridge: Cambridge University Press.
Gibbs, N., Angus, C., Dixon, S., Parry, C., & Meier, P. (2023). Stakeholder engagement in the development of public health economic models: an application to modelling of minimum unit pricing of alcohol in south africa. Applied Health Economics and Health Policy, 21(3), 395-403. https://doi.org/10.1007/s40258-023-00789-6
Häkli, J., Kallio, K., & Ruokolainen, O. (2019). A missing citizen? issue based citizenship in city‐regional planning. International Journal of Urban and Regional Research, 44(5), 876-893. https://doi.org/10.1111/1468-2427.12841
Hansson, E.-L., Bukauskas, L., Garavelli, S., Gunnarsdóttir, B., Hammargren, P.-O., Rosti, T., Hienola, A., Iozzi, M. F., Morthorst-Jensen, D. A. M., Christiansen, E., Rauste, P., Slaidins, I., & Vellemaa, T. (2022). D2.8: Open Science policies and resource provisioning in the Nordic and Baltic countries (final report). Zenodo. https://doi.org/10.5281/zenodo.6503709
Harrison, J. and Wicks, A. (2013). Stakeholder theory, value, and firm performance. Business Ethics Quarterly, 23(1), 97-124. https://doi.org/10.5840/beq20132314
Hicks, A., Barclay, J., Chilvers, J., Armijos, M., Oven, K., Simmons, P., … & Haklay, M. (2019). Global mapping of citizen science projects for disaster risk reduction. Frontiers in Earth Science, 7. https://doi.org/10.3389/feart.2019.00226
Hinckson, E., Schneider, M., Winter, S., Stone, E., Puhan, M., Stathi, A., … & King, A. (2017). Citizen science applied to building healthier community environments: advancing the field through shared construct and measurement development. International Journal of Behavioral Nutrition and Physical Activity, 14(1). https://doi.org/10.1186/s12966-017-0588-6
Hu, R. (2024). Learners, not just data contributors: self-regulated learning in citizen science. https://doi.org/10.20944/preprints202404.0926.v1
International Association for Public Participation (2018). IAP2 Spectrum of Public Participation Accessed at https://engagementinstitute.org.au/resources/iap2-public-participation-spectrum/ on June 13, 2025.
Joss, S., & Bellucci, S. (2002, January 1). Participatory Technology Assessment: European Perspectives. https://www.researchgate.net/publication/37415082_Participatory_Technology_Assessment_European_Perspectives
Jumadi, Adhifa, M. N. H. N, Amelia, A., & Ashiva, D. S. (2024). Stakeholder engagement, government policy, and tourist satisfaction. Entrepreneurship Bisnis Manajemen Akuntansi (E-Bisma), 161-175. https://doi.org/10.37631/ebisma.v5i1.1431
Kansalaistieteen työryhmä. (2022). Kansalaistieteen suositus. Responsible Research Series. 5:2022. https://doi.org/10.23847/tsv.230
Laird, Y. (2023). Harnessing citizen science in health promotion: perspectives of policy and practice stakeholders in Australia. Health Promotion International, 38(5). https://doi.org/10.1093/heapro/daad101
Laird, Y., Manner, J., Baldwin, L., Hunter, R., McAteer, J., Rodgers, S., … & Jepson, R. (2020). Stakeholders’ experiences of the public health research process: time to change the system?. Health Research Policy and Systems, 18(1). https://doi.org/10.1186/s12961-020-00599-5
Langhof, H., Lander, J., & Strech, D. (2016). Input analysis for two public consultations on the eu clinical trials regulation. Health Research Policy and Systems, 14(1). https://doi.org/10.1186/s12961-016-0141-0
Lankoski, L. and Smith, N. (2017). Alternative objective functions for firms. Organization & Environment, 31(3), 242-262. https://doi.org/10.1177/1086026617722883
Lee, L. and Lu, J. (2020). Using a citizen science approach in early childhood education: a call for strengthening evidence. Cogent Education, 7(1). https://doi.org/10.1080/2331186x.2020.1823141
Lemke, A. and Harris-Wai, J. (2015). Stakeholder engagement in policy development: challenges and opportunities for human genomics. Genetics in Medicine, 17(12), 949-957. https://doi.org/10.1038/gim.2015.8
Lynch, D., Kupper, F., & Broerse, J. (2018). Toward a socially desirable eu research and innovation agenda on urban waste: a transnational eu citizen consultation. Sustainability, 10(5), 1641. https://doi.org/10.3390/su10051641
Mardiyanta, A. (2013). Restore public trust through deliberative public policy formulation. Bisnis & Birokrasi Jurnal Ilmu Administrasi Dan Organisasi, 20(1). https://doi.org/10.20476/jbb.v20i1.1861
Marks, L., Laird, Y., Trevena, H., Smith, B., & Rowbotham, S. (2022). A scoping review of citizen science approaches in chronic disease prevention. Frontiers in Public Health, 10. https://doi.org/10.3389/fpubh.2022.743348
Mayka, L. (2019). Society-driven participatory institutions: lessons from colombia’s planning councils. Latin American Politics and Society, 61(2), 93-114. https://doi.org/10.1017/lap.2018.79
McHugh, N., Baker, R., & Bambra, C. (2023). Policy actors’ perceptions of public participation to tackle health inequalities in scotland: a paradox?. International Journal for Equity in Health, 22(1). https://doi.org/10.1186/s12939-023-01869-8
McKinley, D., Miller-Rushing, A., Ballard, H., Bonney, R., Brown, H., Cook‐Patton, S., … & Soukup, M. (2017). Citizen science can improve conservation science, natural resource management, and environmental protection. Biological Conservation, 208, 15-28. https://doi.org/10.1016/j.biocon.2016.05.015
Mehari, Y., Pekkola, E., Hjelt, J., Cai, Y., Stenvall, J., & Javier, O. (2022). Defining ‘responsible’ in responsible research and innovation: the case of quadruple helix innovation in the energy sector in the tampere region., 199-225. https://doi.org/10.1007/978-3-030-84044-0_10
Moore, S. (2017). Towards a sociology of institutional transparency: openness, deception and the problem of public trust. Sociology, 52(2), 416-430. https://doi.org/10.1177/0038038516686530
Mumelaš, D., & Martek, A. (2024). Benefits of Citizen Science for Libraries. Publications, 12(1), 8–8. https://doi.org/10.3390/publications12010008
National Open Science Coordination. (2022). Policy for open scholarship. Responsible Research Series. 2:2022. https://doi.org/10.23847/tsv.227
Niyibizi, J., Nganabashaka, J., Ntawuyirushintege, S., Tumusiime, D., Umwali, G., Rulisa, S., … & Munganyinka, C. (2021). Using citizen science within an integrated knowledge translation (ikt) approach to explore cardiovascular disease risk perception in rwanda. Frontiers in Tropical Diseases, 2. https://doi.org/10.3389/fitd.2021.752357
Open Science Coordination in Finland (2022). Recommendation for citizen science. In Responsible Research series 13. https://doi.org/10.23847/tsv.445
O'Sullivan, J., Pollino, C., Taylor, P., Sengupta, A., & Parashar, A. (2020). An integrative framework for stakeholder engagement using the basin futures platform. Water, 12(9), 2398. https://doi.org/10.3390/w12092398
Pernaa, H. (2020). Participative policymaking in complex welfare system: a delphi study., 109-132. https://doi.org/10.1007/978-981-15-0069-5_6
Poger, J., Mayer, V., Duru, O., Nauman, B., Holderness, H., Warren, N., … & Kraschnewski, J. (2020). Network engagement in action. Medical Care, 58, S66-S74. https://doi.org/10.1097/mlr.0000000000001264
Rowbotham, S., Laird, Y., Marks, L., Walker, P., Pontifex, K., Sobhan, A., … & Smith, B. (2022). Building capacity to apply citizen science approaches in policy and practice for public health: protocol for a developmental evaluation of four stakeholder-led projects. Citizen Science Theory and Practice, 7(1). https://doi.org/10.5334/cstp.488
Riyadh, D. H., Supriati, B. C. & Lopez, T. C. (2023). Transparency and policy implementation in the public sector in Singapore. Journal of Public Policy & Governance, 7(3), 1-12. https://doi.org/10.53819/81018102t5223
Saarela, S. (2018). From pure science to participatory knowledge production? researchers’ perceptions on science–policy interface in bioenergy policy. Science and Public Policy, 46(1), 81-90. https://doi.org/10.1093/scipol/scy039
Schött, S., Amin, R., & Butz, A. (2023). A literature survey of how to convey transparency in co-located human–robot interaction. Multimodal Technologies and Interaction, 7(3), 25. https://doi.org/10.3390/mti7030025
Shackleton, R., Adriaens, T., Brundu, G., Dehnen‐Schmutz, K., Estévez, R., Fried, J., … & Richardson, D. (2019). Stakeholder engagement in the study and management of invasive alien species. Journal of Environmental Management, 229, 88-101. https://doi.org/10.1016/j.jenvman.2018.04.044
Sulkowski, A., Edwards, M., & Freeman, R. (2017). Shake your stakeholder: firms leading engagement to cocreate sustainable value. Organization & Environment, 31(3), 223-241. https://doi.org/10.1177/1086026617722129
Svahn, E., Kallio, M., Helariutta, A., Koivisto, E., Mäntylä, E., Enwald, H., Ylönen, I., Karlsson, J., Clarot, K., Rauhala, M., Roininen, M., Tiainen, N., Nokelainen, O., Nissilä, P., Laihonen, P., Leinonen, P., Salminiitty, R., Peltonen, T., & Rabb, V. (2024). How to Become a Citizen Scientist: A Beginner’s Guide. Jyväskylä University Digital Archive (University of Jyväskylä). https://doi.org/10.5281/zenodo.14025248
Syberg, K., Hansen, S., Christensen, T., & Khan, F. (2017). Risk perception of plastic pollution: importance of stakeholder involvement and citizen science., 203-221. https://doi.org/10.1007/978-3-319-61615-5_10
The EOSC Open Science Observatory (2023). Citizen science Accessed at https://www.eoscobservatory.eu/explore/open-science-by-area/citizen-science on November 12, 2025.
Tomkiv, Y., Liland, A., Oughton, D., & Wynne, B. (2017). Assessing quality of stakeholder engagement: from bureaucracy to democracy. Bulletin of Science Technology & Society, 37(3), 167-178. https://doi.org/10.1177/0270467618824027
Wehn, U., Collins, K., Anema, K., Basco‐Carrera, L., & Lerebours, A. (2017). Stakeholder engagement in water governance as social learning: lessons from practice. Water International, 43(1), 34-59. https://doi.org/10.1080/02508060.2018.1403083
White, M., & Langenheim, N. (2021). A ladder-truss of citizen participation: re-imagining Arnstein’s ladder to bridge between the community and sustainable urban design outcomes. J. Of Design Research, 19(1/2/3), 155. https://doi.org/10.1504/jdr.2021.121067
Downloads
Published
Issue
Section
License
Copyright (c) 2025 Elena Svahn, Jonni Karlsson

This work is licensed under a Creative Commons Attribution 4.0 International License.