Digital empowerment in public administrations: resources, processes, and outcomes

Participatory processes are widely promoted by public institutions as mechanisms of democratic innovation; however, their implementation often reveals tensions between formal policy objectives and the everyday practices of public administration. Following the COVID-19 pandemic, these processes have become increasingly intertwined with digital tools and hybrid forms of engagement, frequently framed as opportunities to enhance inclusion. Yet, persistent challenges continue to limit equitable access to participation. This research examines how digitalisation and inclusion are perceived and enacted in participatory projects supported by the Emilia-Romagna Region in the post-pandemic period, focusing on the relationship between the regional policy and local-level practices. The research adopts a qualitative design combining document analysis and semi-structured interviews. Study 1 analyses 143 official reports from projects funded between 2020 and 2023, focusing on forms of participation, digital tools, inclusion strategies, and demographic reporting. Study 2 complements this analysis through interviews with 41 professionals involved in the design and implementation of participatory processes. Findings show a variety of participatory formats, with most projects adopting hybrid approaches. While inclusion is frequently referenced, only a limited number of projects target specific marginalized groups or implement tailored strategies, and demographic data are often reported in a limited way. Participation is generally described by practitioners as meaningful and central to decision-making, associated with involvement, shared responsibility, and active engagement. In contrast, inclusion and digitalisation are less consistently defined and operationalised. Digital tools are primarily used for communication and coordination, with limited use for more empowering purposes, while inclusion tends to depend on external incentives, such as funding requirements. Overall, the findings suggest that participatory governance emerges from the interaction between formal frameworks and practitioners’ interpretations. Although participation is widely valued, inclusion and digitalisation remain unevenly implemented, highlighting the need for clearer guidance, targeted training, and more systematic monitoring practices.