Bridging the Digital Divide: Lessons from Brazil’s national participatory planning process

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To many, democracy feels like a ship caught in turbulent waters, its passengers yearning for a safe harbor where their voices matter, yet unsure if such a destination exists. Many governments and civil societies struggle to navigate the storm of public disengagement and institutional distrust, in search for viable alternatives to deepen public participation. 

Amidst these challenges, Brazil shows a vision of what institutionalizing participatory democracy on a national level could look like. Brazil’s recent experience provides a compelling case study, perhaps even a beacon — demonstrating both the potential and the complexities of scaling digital participation to engage millions in policymaking.

Digital participation is transforming how governments engage with citizens. In Brazil, the Plataforma Brasil Participativo was a groundbreaking initiative that allowed over 1.5 million people to help shape their multiannual plan. However, as with many digital democracy efforts, questions of representation, accessibility, and impact emerged.

Luiza Jardim, our Program Coordinator, ran a study as part of the Cátedras Brasil research program to explore the strengths and gaps of this participatory process and proposed key recommendations to enhance future digital participation efforts.

Brazil's digital participation process

As a symbol of Brazil's efforts to rebuild participatory democracy after a democratic backsliding, the Federal Government launched in 2023 a participatory national planning process — the elaboration of the country's multiannual plan that guides their priorities for the following 4 years. We briefly talked about it in this blog post at the time.

Image of the current PPA page

Originally stemming from OGP action plans, the process had outstanding numbers: over 4 million people accessed the platform, and almost 1.5 million people participated — culminating in the largest digital participatory process in the country and probably in the world. But, despite the impressive numbers, were the participants representative of the population?  

Key insights from the research

The study found:

  1. High engagement but persistent inequalities – Women were more active in voting, but men proposed more policy ideas. Age also influenced participation, with younger users engaging more in voting while older participants shaped proposals.

  2. Barriers to accessibility – Digital exclusion limited the reach of the initiative, particularly for lower-income groups.

  3. Lack of deliberation – The platform allowed voting but restricted discussion, limiting collaborative idea development.

9 recommendations for inclusive digital participation

To build stronger digital participation, Jardim’s research suggests:

  1. Better data collection: Governments should track participant demographics to ensure representation.

  2. Blended online & offline participation: Events like public assemblies should include on-site digital access points to bridge the digital divide.

  3. Mobile & messaging integration: Enabling participation via WhatsApp or Telegram could increase engagement - meeting people where they already are.

  4. AI to improve proposals: AI-driven tools can detect duplicate proposals and encourage collaboration between proponents, reducing the number of similar proposals that likely won't be considered.

  5. Interactive features: Platforms should allow comments and discussions, not just votes, to increase deliberation and communication among participants.

  6. Decentralized workshops: Local community in-person workshops to discuss the participatory process and develop proposals could bring excluded voices into the digital space.

  7. WiFi hubs for participation: Libraries, community centers, and schools can serve as connectivity hubs, in which there would be WiFi and also flyers teaching people how to access the platform and participate.

  8. Inclusive communication strategies: Governments should involve target communities in designing outreach strategies to ensure they are represented despite the digital divide barriers.

  9. Stronger government coordination: Ministries should better integrate public input into decision-making.

The full study is available in Portuguese and can be accessed here.

Can Brazil’s digital participation model work globally?

Brazil’s experience with Plataforma Brasil Participativo offers valuable insights, but how well do these findings apply to other countries?

Yes: Global lessons from Brazil’s case

Many of the challenges and recommendations from the research are broadly relevant, especially for governments and organizations seeking to strengthen digital participation. Key takeaways that apply globally include:

  1. Bridging the digital divide – Many countries face disparities in internet access and digital literacy, making hybrid participation models essential.

  2. AI and automation for accessibility – Using AI to detect duplicate proposals and improve idea-sharing can streamline participation across different regions.

  3. Blending online and offline engagement – Governments worldwide can integrate in-person meetings with digital participation tools to increase inclusivity.

It depends: Where context matters

Despite these global lessons, Brazil’s model may not fit all countries without adjustments:

  1. Infrastructure & connectivity gaps: In some low-connectivity regions, online participation is limited, requiring offline alternatives like SMS-based input or community-led consultations.

  2. Political will & institutional buy-in: Brazil’s participatory approach benefited from government backing. In more restrictive political environments, digital participation may face censorship or lack of transparency.

  3. Civic engagement & trust: Some countries have low trust in government-run digital platforms, meaning civil society or independent platforms might play a larger role.

Leverage People Powered’s digital participation resources

If you are part of an organization and government that wants to address challenges like digital exclusion and accessibility, use People Powered’s resources to design more effective digital participation programs!

  • Digital Participation Tool Ratings: People Powered’s ratings of 30 tools help governments and CSOs identify the best platforms for participatory democracy.  This year, we also include a list of AI-powered platforms that can better equip decision-makers to select tools that prioritize accessibility, engagement, and transparency. 

  • Participation Playbook: The Participation Playbook provides step-by-step guidance on designing digital participation programs effectively. Now, with an interactive module for digital democracy programs!

Why this matters

Digital participation is a powerful tool, but only if it is inclusive. Brazil’s experience offers valuable lessons on strengthening participation beyond just technology—through deliberation, accessibility, and government responsiveness.

By implementing these strategies, digital democracy can become more representative, effective, and empowering.