Originally published 13 August 2008. This article is retained from the tCI archive. Law, policy or practice may have changed since publication.
Officials who need to prepare and write consultation papers will confirm that one of the biggest challenges is to address a variety of different audiences.
Of course it depends upon the context and the subject-matter. Asking residents what they think of the new layout of the local park is obviously different from the Treasury seeking views on complicated aspects of financial regulations. But, in between these extremes, are a wide range of consultations where the multiplicity of potential audiences is becoming a real problem.
When a bureaucrat writes for an audience of similar people, the rules of the game are simple enough. Write with precision, use technically correct language, make good use of references and assume that the reader will read every word ..... How unlike parts of the community sector where we are witnessing a retreat from the traditional written document? Where we have to put pen to paper, the emphasis is on plain English, good use of visual aids, and easy-to use as well as easy-to-read documents. Clearly if more than one audience is in the frame, it is unlikely that one document will suffice. In modern parlance, there is no one-size-fits-all. Strange, therefore, to note how few consultation papers appear in more than one version.
What is widespread is to accompany the full text with an Executive Summary. But note the word executive. These are not simplifications, written for people less familiar with the jargon and obscurity of the fuller document; they are just shorter versions for bureaucrats who just happen to be too busy to read it all. In consequence what we have in reality are two versions for one audience, and very little provision if any for other groups.
Where there have been attempts to produce more suitable documents, they are often successful. Well drafted and illustrated papers can convey a great deal – without dumbing down key messages. The NHS is typical of organisations that need to invest in more accessible communications. Its “customers” include the literate and illiterate; old and young – and the current policy of seeking their views makes it essential to develop dialogue methods that don’t rely excessively on dense documents.
It is not just a matter of language. Perspectives are different too. In an innovative effort to accommodate this point, last month’s CLG White Paper on Empowerment was written from the perspective of the citizen. The sub-headings of the chapters included these questions:-
How can I be an active citizen ......? How can I find out information .....? How do I hold to account the people who exercise power...? How do I stand for office ....?
Unfortunately what follow are approx 145 pages, a lot of which would defeat a large proportion of the population. The 13-page Summary version is in reality an Executive Summary – 58 paragraphs, well laid-out and using highlighting to help the reader pick out key points – but still a summary rather than a simplification. Much better is the Community Power Pack published by CLG with Involve and provides practical advice on running participative events. But this is essentially a toolkit; the problem is in communicating the narrative.
We need more and better versions for young people, effective e-mail style versions for busy professionals, well-designed overviews for residents organisations and sector-specific leaflets for hard-to-reach groups. All of these cost money, but the relevant skills are plentiful and are often found in-house. What’s missing is the recognition that presenting an issue for debate requires translation – not just in linguistic terms but in style and substance so that consultations become more inclusive and less the province of those that can read lengthy documents.
Trigger points
- Look at what was published in your organisations’ recent consultations. Did they address their audiences adequately?
- Take a fresh look at the budgets allocated for consultation papers; can you provide for specialist versions?
- Consider in particular the needs of minority groups and discuss with them whether additional publications may be needed.
This is the 117th Tuesday Topic; a full list of subjects covered is available for Institute members and is a valuable resource covering so many aspects of consultation and engagement