Constructive Consultation - How can we make the act of dialogue a more positive process with constructive outcomes?

One of the frequent arguments against public and stakeholder consultation is that it often produces negative reactions to reasonable plans that public authorities wish to implement. Worse, it acts as a magnet, attracting dissidents and opponents like bees to a honey-pot. According to some, whatever the criticism may be – having a consultation is bound to make it worse. It stimulates debate and discussion where maybe there is little demand for such. In short, it magnifies opposition.

Right now, pro-European politicians and business leaders probably feel the same way about the proposed Referendum on EU membership. They will worry that having this form of public consultation will galvanise every anti-EU sentiment and maximise the vote against. No matter if they represent wildly differing and contradictory outlooks; *it is always easier to build coalitions against something* that to build support in favour.

And so it must also seem to hard-pressed civil servants and public officials as they wrestle with reduced budgets and the need to rationalise public services or manage contested change in, or to, large organisations. No wonder the new Cabinet Office Consultation Principles calls for greater flexibility and a move away from a one-size-fits-all tickbox approach where public bodies are obliged to consult, regardless of the circumstances.

The truth is that consultations have presented many decision-makers with a problem rather than a solution. They will have made their lives more difficult. Rather than happily rubber-stamp their plans, consultation has given them further reasons to question or re-consider. Whilst seasoned Managers recognise that it is better to be warned-off decisions one might later regret, others will curse the process that has caused delay and muddied the waters.

So what can we do to make consultation a more positive experience? Here are six suggestions • Use consultations to educate stakeholders positively This means giving them unbiased information that genuinely helps them understand complex situations – not selectively chosen facts to support one particular viewpoint. • Consult early, when everyone can see that it will be possible to influence outcomes Face it! What causes the problem is when consultors already think they know the answer, and consultees don’t think they will be listened to! • Frame the key questions positively Instead of “Do you approve of these ‘cuts’ to Library services?” maybe consider “What can you suggest that might enable us to keep these Libraries open?” • Offer sufficient options Inadequate choice or a ‘Hobson’s choice’ encourages opponents just to oppose. Better oblige stakeholders to choose, even if it is for a lesser of several evils • Use deliberative or participatory methods Bringing people together to discuss issues – especially if skilfully facilitated – can encourage a more positive debate; relying solely on electronic methods rarely achieves consensus • Educate decision-makers as to the true role and function of consultation Realistic expectations are important. If decision-makers see it only as a bureaucratic process, they will miss the opportunity to gather and make use of valuable insights. Understanding how consultation works is the key to obtaining best value from it.

Ultimately, of course, it is difficult to have a constructive consultation if the consultor does not approach the process in a constructive way. A reluctant consultor cannot be surprised to receive a barrage of negativity. Sadly, organisations who take this stance may be difficult to help.

But what of those many public bodies who are genuine and who sincerely want to conduct a fair listening exercise? What, apart from the suggestions above, can help them? The answer may be to design consultations better. Many have been so ill-targeted that they only encourage participation by critics and opponents. A constructive consultation aims at the broader stakeholder base – and provides incentives for a wider cross-section of opinion to be heard.

Consultations will always provide a platform for opposition. Quite right too, for it provides an essential safeguard against speedy implementation of poorly-considered policies. But they need not be dominated by arguments against, provided those who consult do so with an intention to listen and to encourage positive thinking.

Trigger Points

• Some of the issues raised in this Topic will be considered in the special Roundtable for Regulators in London
• The Cabinet Office Consultation Principles were published last July, but note that the House of Lords Secondary Legislation Scrutiny Committee has urged an immediate independent Review of them. See tCI Briefing Note 7
• Similar issues were discussed in Tuesday Topic 209 - Understanding why people say ‘No’. It cross–referred to important research on Nimby-ism conducted by Professor Devine-Wright whilst at Manchester University.
• Another way of ensuring a more constructive consultation is by seeking independent compliance assessment against best practice standards. The Consultation Institute undertakes this task through its Compliance Assessment process. For further information, call Martin Roach on 01767 318350

This is the 228th 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