Understandings of community participation and empowerment in primary health care in Emilia-Romagna, Italy: A qualitative interview study with practitioners and stakeholders

Community participation (CP) and empowerment (CE) have long been viewed internationally as cornerstones of comprehensive primary health care (PHC). Accordingly, policies for new PHC models in Italy, such as the Community Health Centres called "Case della Salute" in 2006 and "Case della Comunità" in 2022, highlight the importance of implementing participatory processes with communities and creating opportunities for CE. This study's objective is to identify the understandings of CP and CE that emerge among practitioners and stakeholders who design participatory approaches in PHC practice and policy in the Emilia-Romagna region in Italy. Nineteen semistructured interviews were conducted with practitioners working on CP and CE processes in these Community Health Centres and with stakeholders involved in research on or the coordination of such processes in the context of these health centres. The data were analysed using qualitative content analysis in light of the following two questions, which emerged inductively from the data: (1) How to support CP and CE processes in practical doing (how do CP/CE)? (2) With which function or aim to support CP and CE (why do CP/CE)? This study shows that the participating practitioners and stakeholders exhibited various understandings of CP and CE in the context of PHC. Four main themes were identified: CP and CE as (a) a variety of forms of dialogue and cooperation, (b) tools for service development, (c) levers for empowerment, collectivism, and democracy and (d) stimuli for institutional change and a new level of professionalism. Moreover, the participants defined "the community" in different ways and often chose specific subgroups within the community to promote CP and CE processes. This study elucidates different perspectives on CP and CE and highlights the opportunities and obstacles for policymaking, research and practice that result from these understandings.