But changing laws is not enough. In many countries, both East and West, a shift in culture is needed. Cultural attitudes are a major factor in determining the real levels of transparency and accountability. If the attitudes of officials are negative towards the public, if they regard public participation as a nuisance which they must grudgingly tolerate, then such rights as the public have will be respected in a minimal way or not at all. If on the other hand officials genuinely see themselves as there to serve the interests of the public, they will go well beyond what they are legally required to do.
It is not possible to make laws which force a change in culture, though there is a link between the formal and informal levels. Changes in legislation can stimulate changes in culture, which in turn pave the way for further legislative changes.
Participatory democracy depends upon creating and nurturing a culture which recognises that governments exist to serve the people. In many countries, this requires nothing less than a redefining of the relationship between people and their governments.