Although Strumica has for years been ranked among the most transparent municipalities in the country, civil society organizations (CSOs) believe that their involvement in shaping local policies in recent years has been extremely low. They point to a selective approach, limited mechanisms for dialogue, and a lack of political will, which leads to a departure from the real needs of citizens. As a result, adopted decisions increasingly fail to reflect citizens’ actual needs and priorities.
On the other hand, the municipality claims that the civil society sector is continuously consulted, that its ideas and needs are incorporated, and that the needs of different communities and target groups are included in local policies and documents. Representatives of the Municipal Council, however, acknowledge that civic participation has been gradually declining, resulting in insufficiently inclusive local policies, a lack of trust among stakeholders, and gaps in knowledge and capacities among some council members. Nevertheless, both sides agree that the level of participation of the civil society sector also depends on the sensitivity and openness of the mayor.
These key findings of the analysis conducted in August 2025 as part of the action “CSOs and Local Policies – Challenges and Opportunities” by the Women’s Organization of Strumica reveal a deep gap between the administration’s perception and the organizations’ experience regarding decisions that affect citizens. This leads to the conclusion that official transparency does not always mean substantive participation, and that institutional mechanisms do not guarantee genuine dialogue, especially in the absence of trust and political openness.
“There used to be a Strategy for Cooperation with the Civil Society Sector (2015–2020) and an active NGO Support Center, but today there is a lack of strategic documents and mechanisms that would enable the substantive involvement of organizations in local policy- and decision-making,” says Lenche Hristova, Executive Director of the Women’s Organization of Strumica.
The views of seven civil society organizations involved in the focus groups, as well as of citizens who participated in a public forum on the same topic, emphasize that the only formal mechanism for civic participation is community budget forums, which unfortunately do not allow for substantive discussion, while voting priorities are agreed in advance. Representatives of civil society organizations are not included in working groups on issues of public interest, nor are there public consultations, which is why municipal development and budget documents insufficiently reflect citizens’ needs.
“The main challenge identified is the lack of willingness on the part of the current mayor to enable civic involvement in the creation of municipal policies and programs, as well as party polarization and the influence of religious structures. According to civil society views, it is necessary to establish a coordination body for cooperation and effective two-way communication between CSOs and municipal authorities,” Hristova points out.
The municipality, for its part, insists that the involvement of CSOs is continuous and substantive, that they are regularly consulted in the drafting of strategies and plans, and that they are members of various advisory bodies such as the Council for Women’s Entrepreneurship and the Local Economic and Social Council. However, it is noteworthy that councilors—who are also part of the local authorities—indicate that they themselves are not sufficiently consulted or involved in the preparation of development documents, which affects their relevance and inclusiveness. Still, both sides agree that the mayor and his sensitivity and support play a key role in successful planning and implementation of local policies with the involvement of all stakeholders.
“The involvement of CSOs can be improved by holding regular monthly meetings between the civil society sector and responsible municipal officials, as well as by establishing a body for mutual communication and cooperation between the municipality, the Council, and civil society organizations. Such measures would enable continuous information exchange, coordinated planning, and strengthened dialogue,” the analysis concludes.
To improve communication and cooperation between local authorities and the civil society sector, the recommendations also include introducing two-way communication for the timely identification of community needs, as well as actively using the expertise of organizations in drafting local strategies and plans. Furthermore, the need for functional consultation mechanisms, logistical support for CSOs, and additional training for councilors and municipal officials on effective cooperation with the civil society sector is emphasized.
The case of Strumica reveals a typical situation in which formal mechanisms for participation exist but lack real substance. The analysis shows a contradiction between declarative transparency and real inclusiveness. In such an environment, the civil society sector remains an observer rather than an equal actor in the decision-making process. The lack of political will, personalized decision-making, and a weak culture of consultation lead to a loss of trust.
For local democracy to become substantive, a systemic approach with clear rules, open communication, and trust-building is required. Only then can Strumica move from formal transparency to genuine partnership and truly hear the voice of its citizens.
Author: Zhaklina Cvetkovska
This article was prepared with the support of the European Union, within the project “Alliances for Active Citizenry.” The content is the sole responsibility of the author and can in no way be taken to reflect the views of the European Union.
Read the full text of the Analysis “Participation of civil society organizations in the development of local policies of the municipality of Strumica”
