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Dominican Republic

Dominican Republic Action Plan Review 2022-2024

The Dominican Republic fifth Action Plan 2022-2024 has solid political and institutional support. The creation of its first multi-stakeholder forum constitutes a promising milestone for the advancement of the open government agenda in the country. The action plan commitments’ renew and expand the work agenda, with a greater focus on opening the Government at the territorial level and the inclusion of new sectors, including Sustainable Public Procurement and Mental Health. At the same time, there are opportunities to transversally strengthen the design and execution of the plan and make commitments deeper and more strongly linked to the principles of open government.

The Dominican Republic’s fifth Action Plan 2022-2024 has ten commitments focused on ten policy areas. The plan is the result of the co-creation process carried out with civil society during 2022, characterized by a broad and transparent approach to create the multi-stakeholder forum[1] and a solid public consultation process with civil society[2]. However, the reasoned response to the suggestions and input received needs strengthening[3].

The multi-stakeholder forum established the selection criteria for the topics to be addressed in the action plan[4]. It also carried out a robust process to identify and prioritize the proposals[5]. As a result, actions were included aimed at (1) the opening of data and processes simplification at the national level, (2) the opening of Government at the subnational level, (3) making public procurement transparent, including environmental sustainability and (4) improvement in mental health services.

The fifth action plan delves into sectoral themes present in previous plans. While the third action plan[6] promoted data opening at the municipal level, the fifth plan moved forward by proposing the development of a National Data Opening Action Plan (Commitment 1). In turn, the current plan of the Dominican Republic advances transparency at the territorial level, which had already begun under the fourth plan[7]. In that plan, the work was focused on the municipalities, while the current plan promotes transparency at the provincial level (Commitment 8 “Openness of Territorial Demands”).

Additionally, for the first time, the fifth action plan includes commitments linked to environmentally sustainable public procurement and mental health. The “Carbon Footprint Calculator for the National Public Procurement System” is a promising commitment in that it will develop a tool to advance the sustainable acquisition of public procurement and, thus, have the potential to open up the Government in a policy area where there is no national precedent while – if successful – the experience could serve as a reference for other subnational and international initiatives.

Finally, there has been progress regarding the IRM recommendations for the plan’s co-creation[8]. Specifically, there has been progress in (1) the coherence and specificity of the commitments, (2) maintaining the repository of information on the OGP process, and (3) the work to continue opening the Government at the subnational level. Regarding the implementation already underway, there is room to improve the design and implementation of the action plan in the following five aspects:

  1. Build and enhance programmatic synergies within the Plan. Integrating and aligning commitments that address similar topics could help develop synergies and enhance the quality of actions[9]. Execution under the same programmatic (and temporal) framework, such as the fifth action plan, can forge greater coherence and enhance the open government perspective. The multi-stakeholder forum, under the leadership of the General Directorate of Ethics and Government Integrity (DIGEIG), along with those responsible for each commitment, could carry out this recommendation. There is also a possibility of improving the synergies that derive from the regulatory frameworks of the Dominican Republic. The presidential mandate must be closely monitored to generate information on the environmental and social sustainability of public procurement[10].
  2. Review and align programmatic incentives for implementation. To align the execution schedule with new information that may have emerged since the Plan’s design[11], the commitments’ execution deadlines should be reviewed and – if necessary – validated. Likewise, all commitments included in the action plan should be integrated into the 2023 Annual Operational Plan and subsequent years[12] to strengthen the incentives for its execution[13].
  3. Integrate the gender perspective into commitments. The analyses on gender promotion are general in nature and with little specificity. In this sense, there is an opportunity to include a strategy to integrate a gender perspective into the actions[14]. By integrating this approach, interventions can be more effective in their design and intervention since they recognize that the needs, access, and impact of public programs are unequal between genders. Given the thematic specificity of this proposal, technical assistance should be coordinated with the Directorate of Mainstreaming for Equality of the Ministry of Women.
  4. Strengthen the Plan’s communication, with attention to the reasoned response[15]. In order to strengthen transparency and the capacity of civil society to influence the design and implementation of the Plan, the General Directorate of Ethics and Government Integrity should lead the dissemination of open government communication’s best practices among implementing agencies. Particularly, each commitment should have its communication plan to ensure that the reasoned response to civil society is robust[16].
  5. Promote monitoring of execution, identifying challenges and best practices[17]. Based on the work carried out in the creation of the multi-stakeholder forum[18], the current accountability space[19] should include exchange spaces with citizens in general, not limiting itself to formal presentation formats. By strengthening the monitoring of actions the Plan, the role of the multi-stakeholder forum, and the leadership of the General Directorate of Ethics and Transparency will be prioritized[20].
  6. Actively promote the identification of Open State commitments. In line with the intentions of the executive branch to move towards an Open State[21], it is suggested to advance the promotion and identification of commitments that open the Government in the legislative and judicial Branch. International experience indicates that these types of initiatives require significant political and technical efforts. At the same time, and in parallel, it is to strengthen the operation of the multi-stakeholder forum to serve as a coordination space.

[1] The multi-stakeholder forum was established by Presidential Decrees 713-21 and 9-22. Among its members are six representatives of the Government, three representatives of non-governmental organizations, two representatives of the academic sector, and one representative of the private sector. The composition as of October 21, 2023 is: Milagros Ortiz Bosch, General Director of Ethics and Government Integrity; Pável Isa Contreras, Minister of Economy, Planning and Development; José Manuel Vicente, Minister of Finance; Carlos Pimentel Florenzán, General Director of Public Procurement; José Rijo Presbot, General Director of Budget; Bartolomé Pujals, Director of the Government Office of Information and Communication Technology; Milagros Urraca Espinosa, Azuana Foundation for Disabled People Milagros Urraca Espinosa (FUNAPMUE); Danilo García, INPRET Foundation; Cecilia Collado, Sowing and Harvest Foundation Dominican Republic; Minister José Alejandro Aybar, University of the Caribbean (UNICARIBE); Editrudis Beltrán, Autonomous University of Santo Domingo (UASD); Nathalie De Peña, Eco Supplier.

[2] See the Consultation process here: Fifth Action Plan of the Dominican Republic 2022-2024. In turn, this was highlighted in all the interviews carried out for this report. In this regard, it was emphasized that the methodology used was clear and structured, and the communication was transparent. Likewise, the arrival to different territories of the country was highlighted. In the words of the actors themselves: “[the preparation of the Plan] was not desk-based, it was very multidisciplinary, we were all working: all the institutions and civil society”. Interview on July 3, 2023, with the Head of the Access to Office Information from the Ministry of Finance, Yamile Musa Salim. “[The strength of the Plan is in] the territorial demands, we are going to the regions in order to listen.” Interview on June 28, 2023, with the Head of Access to Public Information of the Ministry of Economy, Planning and Development, Elvira Mercedes. The Representative for the Consultative Committee and Special Projects of the General Budget Directorate, Rafael Jovine, expressed himself along the same lines, pointing out in the interview on July 3, 2023: “[the strength was in the] territorial component, with the participation, gathering opinions, observations, proposals from the different social fabric in the territory (…) I think it is an enormous challenge for the technical teams to be able to systematize everything, being able to categorize later, turn it into indicators, it is double or triple the work”.

In addition, the Plan’s organization was highlighted “The Directorate of Government Ethics and Integrity led by placing a link that follows up on each commitment” based on an interview on June 30, 2023, with the Coordinator of the Innovation Cabinet of the Government Office of Information and Communication Technology, Cindy Giugni. The co-design work was also highly valued by the representatives of civil society and the private sector who are part of the multi-stakeholder forum: “[the strength of the Plan is in] giving the opportunity to people, to communities to express themselves in different spaces”, based on a focus group on June 30, 2023, with Cecilia Collado, Danilo García and Milagros Urraca Espinoza, representatives of civil society in the multi-stakeholder forum. “The dynamics of how the work sessions were structured, the effective communication, the participation carried out by both the public-private sector and the axes involved. Also, that connection that occurred especially in the group, where both parties could hear what our country requires [thinking about] opportunities that could be implemented through this fifth plan”, based on an interview on July 3, 2023, with a representative of the private sector, Nathalie de Peña, in the multi-stakeholder forum. The Executive Director of the Directorate of Ethics and Government Integrity, Berenice Barinas Urbiñas, expressed the same sentiment in an interview on February 24, 2023.

[3] In this regard, feedback was given during the co-creation sessions accompanied by information on the networks and an event to present the Plan. However, this information did not reach the organizations and people who participated from the different territories of the country in the same way. This is clearly observed in the counterpoint that emerged during the focus group on June 30, 2023, with the civil society representatives of the multi-stakeholder forum, Cecilia Collado, Danilo García, and Milagros Urraca Espinoza. On the one hand, one of the participants pointed out: “What happened was that at each thematic table, live topics were chosen. (…) because 25 topics could be chosen, but of those 25 topics, perhaps 15 had the fewest votes. So, that’s why the Government held a live event so that everyone could know. (…) Then we chose the 10 with the most votes because they were also the most worrying for the community, in which we had an impact and held the thematic meetings. The Government was given those 10 issues and the population knows which 10 issues it is working on because it was by vote, it was broadcast live. Also, recordings were made and it was even posted on the Government portal of the Open Government platform.” Despite these efforts, a return with territorial and analog anchoring would have completed the process: “They ask me about that meeting we held that time for the Open Government Action Plan, what the results were. We do not have elements, if that works, if it does not work, at what level is it?” Note that this observation was already in the Recommendations for the co-creation of the Dominican Republic 2022.

[4] These criteria were: (a) topics of public interest, (b) potential for transformative impact, (c) feasibility of implementation, and (d) clear alignment with the principles of open government. See the following link for more details: Fifth Action Plan of the Dominican Republic 2022-2024, page 14.

[5] The Design Thinking method was used for face-to-face meetings; after this exercise, the proposals were shared with all the tables, while a rapporteur recorded the initiatives in an Excel template. The virtual tables were divided into rooms of five participants or more, in which they established a rapporteur who filled out an online form with all the proposals made. Note that this information, along with supporting photographs, was sent on April 10, 2023, by the DGEIG to the IRM.

[6] See commitment “Publication of open data at the municipal level” in the third Action Plan 2016-2018. 

[7] See commitment “Establishment of integrity, transparency and accountability instruments at the municipal level” in the fourth Action Plan 2018-2020.

[8] See Recommendations for the co-creation of the Dominican Republic 2022.

[9] Specific information is provided in Section II of this report.

[10] Note that Public Procurement Law 340-06 does not include sustainable public procurement. Decree 617-22 provides, through its recitals and resolutions, the legal basis to advance with this matter.

[11] The June 30 interview with the Coordinator of the Innovation Cabinet of the Government Office of Information and Communication Technology, Cindy Giugni, serves to exemplify the relevance of temporal planning: “The issue is that, perhaps, when they were creating the commitments and they placed dates on each of them, certain externalities that could affect compliance with the deadlines were not taken into account. All the commitments that I follow up on are moving forward, but the issue here is the deadlines (…) knowing that obviously, a variety of things can happen in public institutions.

[12] Although most of the POAs include commitments, it was impossible to identify all of them in the POAs for 2024. Specifically, the following commitments could not be identified: Carbon Footprint Calculator (Ministry of Finance), Contact Center -Mental Health Portal (Ministry of Public Health and Social Assistance), and Openness Demands (Ministry of Economy, Planning and Development).

[13] The interview on July 3, 2023, with the Head of the Advisory Committee and Special Projects of the General Budget Directorate, Rafel Jovine, illustrates the window of opportunity: “At the end of the day, they are institutions that have their agendas, that work every year in its essential substantive and programmatic aspects, which define its work. [Including new programmatic topics in their agendas is difficult] unless they contemplate it from day one in their annual planning, in their annual operational plan, and – in addition – they identify it very well. I think that the stage now that opens with the new formulation of budgets and operational plans, perhaps, is an opportunity to internalize it even more and to limit specific, operational teams that are dedicated to it.”

[14] Note that this recommendation was also identified in Recommendations for the co-creation in the Dominican Republic 2022

[15] Note that this suggestion is consistent with the information collected during the interview process conducted for this report. “[The Plan must] be disseminated more, even if we only go to one place, and there has to be a better integration of civil society, and see who are [the members of] civil society that we are interested in involving…” Interview on June 28, 2023, with the Head of Access to Public Information of the Ministry of Economy, Planning and Development, Elvira Mercedes. “We must [strengthen] this part of that communication; that it is not just what we upload to the portal and we can always see.” Interview on July 3, 2023, with the Head of the Access to Information Office of the Ministry of Finance, Yamile Musa Salim.

[16] In particular, multiple means of communication should be used, both virtual and in-person. In the latter case, with a greater focus on those people and institutions most involved in the process. For more information on criteria and best practices for providing a reasoned response, see OGP Participation and Co-Creation Standards, specifically number four: “Once the commitments have been drafted, the forum (or Government in the absence thereof), through the OGP website or page, presents its justification for the selection of commitments, including justifying the proposed commitments that were not adopted and other feedback as appropriate”. See also Meaningful Consultation with Interested Parties (IDB, 2017), in particular page 39.

[17] Note that this suggestion is consistent with the information collected during the interview process carried out for this report. “We need meetings every two or three months to follow up and see.” Interview on July 3, 2023, with the Head of the Access to Information Office of the Ministry of Finance, Yamile Musa Salim. “[It will be necessary] to take the time in these months to verify how work is being done and be vigilant that what is being implemented, what needs to be strengthened ( …)”. Interview on July 3, 2023, with Nathalie de Peña a representative of the private sector in the multi-stakeholder Forum. “Those plans are there. We have to always have them there and follow up. That is, I believe that even creating a mini committee to see how that action plan or the action undertaken has been progressing.” Interview on June 28, 2023, with the Head of Access to Public Information of the Ministry of Economy, Planning and Development, Elvira Mercedes. “Monitoring is much more continuous, creating micro committees that fully function.” Interview on July 3 with the Representative of the Consultative Committee and Special Projects of the General Budget Directorate, Mr. Rafael Jovine. “[It is necessary] a real action, that is, we are not active. (…) I think that from the outset we could make an internal call, that is, the entire government team, including us [civil society], not only the team that works in the office, but also us as at the beginning, but internally, meet, see how we can implement and so in a second meeting we could even include other State institutions.” Focus Group with Cecilia Collado, Danilo García, and Milagros Urraca Espinoza on June 30, 2023, civil society representatives in the multi-stakeholder forum.

[18] To learn about the process of creating the multi-stakeholder forum, see the Fifth Action Plan of the Dominican Republic 2022-2024, section Open Government Actions. Likewise, note that the collaborative work during the design of the Plan was highly valued by all parties consulted for this report. Below are two examples that summarize the work dynamics during the co-creation and the first months of execution of the Plan. ¨Effective communication was maintained during co-creation. Communication has been quite effective, coherent, above all transparent, and participatory among all members of the multi-stakeholder forum (…). We all feel in a space where we can contribute on equal terms. In other words, there is no such thing as that hierarchy, nor, well, these governments, this private sector. It is not like that difference either but rather is a space for comprehensive communication and, above all, where we are all heard”. Interview on July 3, 2023, with the representative of the private sector in the multi-stakeholder forum, Nathalie de Peña. A representative of the public sector has a similar opinion: “We have constant communications. We have WhatsApp and we are always active. Yes, we have constant communication with the forum, it is very true.” Interview on June 28, 2023, with the Head of Access to Public Information of the Ministry of Economy, Planning and Development, Elvira Mercedes.

[19] See recording on the Accountability of the Fifth Action Plan of the Dominican Republic for the Open Government 2022-2024, November 22, 2023

[20] Note that the need to strengthen the Plan’s monitoring capabilities is a strategic aspect, although it is frequently not prioritized during the execution of national action plans. See observation 2 in Results Report: Chile 2020-2022 (IRM, 2023).

[21] The fifth action plan indicates “The Government of the Dominican Republic is committed to promoting an Open State, so this fifth Action Plan 2022-2024 with commitments from the executive branch is also an open invitation to the legislative and judicial powers, as well as to the Constitutional Bodies to incorporate new commitments within the scope of their respective branches to strengthen democracy, transparency, accountability, strengthen public institutions, promote participation and improvement of the quality of life of all people with the transversal axis of innovation and use of technology” (see page 124).

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