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Towards a digital commons: improving our governance model

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consuldemocracyfoundation

We’re digging a little deeper into our own organizational model (finally). How do we evaluate it, how does it compare to the models of similar projects, and where do we want our governance model to grow into in the near future? Together with the Free Knowledge Institute, we embarked on a reflective journey to understand our governance model better and explore ways to improve it. This blog is a summary of that journey.

A brief history of funding

The prime challenges of any open source software project that doesn’t sell any software but provides it as Free and Open Source Software (FOSS) is usually twofold: 1. becoming financially sustainable and 2) growing an active community of users, developers and (financial) contributors.

We are faced with these same challenges. Before we dive into the reflections on improving our governance model, the partnership and the broader ecosystem, a brief note on the history of our project is needed in order to better understand the (financial) challenges.

The CONSUL DEMOCRACY software was initially developed in 2015 by the IT department of the Ayuntamiento de Madrid, the municipality of Madrid. When a government change took place in the city hall back in 2019, the municipality shifted its priorities and was no longer going to assume – and pay for – software maintenance and development.

To save Consul – as it was still called back then – from dying a slow death due to failed software and security updates, a group of non-profits from the Netherlands, Poland, France, the US and Australia decided to collaborate and erect a new legal entity that would be in charge of the coordination of the software project. The CONSUL DEMOCRACY Foundation (CDF) was born on ….. 2019. During that time resources were extremely limited as it took almost a year for fundraising to be successful. We are still immensely grateful to the Robert Bosch Foundation as this year (2026) it has extended its funding to CDF for a final two years. Between 2020 and 2026 other grants followed, by the European Union, by GIZ, by the Google Impact Fund.

These grants have provided the Foundation with some breathing space and the opportunity to expand operations step by step. First, by paying core maintainers of its GitHub repository and making sure the software keeps being up to date and secure. Secondly, by hiring a Network Coordinator for reconnecting a deconnected and passive stakeholder community, and later still, a Tech Manager to coordinate robust software development and a Fundraising expert. They, in addition to the Director, comprise the small operational team of the CONSUL DEMOCRACY Foundation today.

Reflections on a journey

In July 2026, the CDF’s team embarked on a reflective journey to reimagine its governance model. Facilitated by Wouter Tebbens of the Free Knowledge Institute, this initiative sought to address three critical goals: increasing participatory governance, deepening community engagement, and broadening shared responsibility for financial sustainability. The project arose from a recognition that, despite CONSUL DEMOCRACY’s success as an open-source platform for participatory democracy—adopted by over 140 municipalities and non-profits—only a small fraction of its users actively contribute to the foundation. Most organizations supporting or implementing CONSUL DEMOCRACY operate independently, with little formal connection to CDF.

Currently, the formal partnerships that exists take three different forms:

  1. Certified Tech Partners. These can be companies, non-profits or ngo’s that are experienced Consul deployers, highly skilled in customizing the code base, and strongly adhere to open source principles. They use and modify the open source software in their regions, and receive referrals for potential contracts by government users. In turn, they contribute, a standard annual certification fee, a 5% percentage on these referrals, and some code contributions to the CONSUL DEMOCRACY original code base.
  2. Regional Partners. These can be ngo’s, non-profits or semi-public institutions that work on participatory democracy or related topics in their regions and have a network that they can activate for the CONSUL DEMOCRACY project. So far, this partnership role has been voluntary and without any formal annual contribution, be it financial or otherwise.
  3. City Sponsors. These are municipal or regional governments that use the CONSUL DEMOCRACY platform and want to make a financial contribution to the project.

Together these partners provide an important impetus to the project, both in terms of financial contributions and in terms of network activation, platform visibility, and knowledge sharing across the ecosystem. However, the percentage of the Foundation’s annual expenditures that derives from partners’ financial contributions, remains limited. Simultaneously, project governance is very much a Foundation-centered endeavour, due to both a lack of resources as well as clear pathways and roles for engagement.

The Commons and Its Framework

The discussions facilitated by the Free Knowledge Foundation centered on transitioning from a model where decision-making and resources are concentrated in a small paid team and Board to one that fosters broader participation. A key proposal was the “Wheel of Contributions”—a cyclical framework designed to deepen partner engagement through four stages: Pledge, Contribution, Recognition, and Participation. This model aims to formalize or expand the existing partner roles such as the Certified Tech Partners, Regional Partners, Partner Cities, as well as add new ones, such as Knowledge Partners or Corporate Partners, each contributing in distinct ways to the project’s sustainability and governance.

At the heart of the discussions lies the concept of the commons—a model of social and economic organization where resources are collectively managed by a community. Unlike traditional market or state-driven models, the commons thrives on self-management, co-production, and shared decision-making. For digital projects like CONSUL DEMOCRACY, this means ensuring that code, knowledge, and governance are not siloed but flow back into the shared ecosystem for the benefit of all.

The Five Pillar Framework for Commons Sustainability was introduced as a guiding structure. This framework emphasizes the need to balance five interconnected dimensions:

  • The central pillar, which defines the shared mission, vision, and values of the commons.
  • The resources pillar, focusing on mobilizing financial and material contributions.
  • The co-production pillar, which addresses how work is organized and compensated.
  • The governance pillar, which outlines decision-making processes for aspects like roadmaps, ownership, and surplus distribution.
  • The knowledge-sharing pillar, ensuring that documentation, best practices, and innovations are openly shared to sustain and replicate the project.

Currently, CDF carries much of the responsibility for these pillars, with limited structural participation from the broader ecosystem. While the existing partners structure — Certified Tech Partners, Regional Partners, City Sponsors — works relatively well and has the potential to scale up, the CDF relies heavily on grant funding, while software maintenance work is largely subcontracted to a single entity, Rock&RoR. Governance decisions are made internally by the CDF team and Board, with minimal input from the wider community.

A Vision for the Future

The desired state envisions a more inclusive and collaborative CONSUL DEMOCRACY ecosystem. Code and knowledge would flow back into the commons, ensuring that contributions from tech partners and other stakeholders are integrated and shared. Funding would diversify beyond grants and sponsorships, incorporating contributions from a broader base of partners, including cities, regional organizations, and knowledge institutions. Development work would be distributed across a wider network of contributors, rather than centralized with a few paid entities.

Governance would also evolve to include structured participation from partners. This could be facilitated through a dedicated Consul Democracy instance, tentatively named Co.Consul or Participate.Consul, where partners could engage in decision-making processes. The goal is not to relinquish all control but to open up CDF to more voices, ensuring that the project reflects the diverse needs and priorities of its ecosystem.

wheel of pledges

The Wheel of Contributions provides a practical pathway to achieve this vision. Partners would begin by making a pledge—a commitment to the project’s mission and a promise to contribute resources, whether financial, in-kind, or through code. They would then realize their contributions, which could range from developing modules to organizing regional meetups or conducting research. In return, CDF would recognize these contributions through visibility on its website, showcasing at events like ConsulCon, and highlighting success stories. Finally, partners would gain the opportunity to participate in co-governance, influencing decisions on roadmaps, strategic priorities, and even board nominations.

Inspiration and Implementation

The PublicSpaces Foundation, a Dutch network committed to an internet based on public values, served as a key inspiration. PublicSpaces has successfully implemented a model where partners sign annual contribution agreements and enjoy rights anchored in the foundation’s bylaws. These rights include the ability to nominate board members, approve annual plans and budgets, and review financial reports. This model demonstrates how participatory governance can be formalized while maintaining the foundation’s legal and operational integrity.

For us, the next steps involve confirming the direction of the proposed changes, including the Wheel of Contributions and the new partner categories. The Board will review these proposals and gather feedback from existing partners, potentially at the upcoming CONSULCON26 in September 2026. Additionally, CDF will need to decide on a name for its participatory governance platform and scope out which governance processes to open up first—whether it’s roadmap proposals, annual plan presentations, board nominations, or financial reporting.

A Bylaws review may also be necessary if CDF chooses to formally anchor partner rights, as PublicSpaces has done. This would ensure that participation is not just a conceptual ideal but a legally recognized aspect of the foundation’s operations. Finally, a fourth working session will be scheduled to refine implementation details once the Board and partners have provided their input.

Open Questions and Conclusion

As CDF moves forward, several open questions remain for the Board to consider:

  • How much of the roadmap and project strategy should be opened to partner input, and over what timeline? How can we effectively operationalize this input using a Consul instance at co.consuldemocracy.org.?
  • How can we formalize and expand on partnership roles in a way that is mutually beneficial and at the same time contributes to the project’s financial sustainability?
  • Should participation and co-governance rights be formally anchored in the bylaws, or should they initially be managed more informally?

The ultimate aim is to transform Consul Democracy into a true commons—a project sustained by a vibrant, engaged community where contributions are recognized, governance is inclusive, and the benefits are shared by all. The next milestone will be the CONSULCON26 in September 2026, where these ideas will be discussed and refined with the broader community.