Behaviour Change: Where Interventions Fit in Public Consultation

From initiatives encouraging active travel to digital service adoption, today’s public policies increasingly require citizens to alter established habits. Behaviour change interventions—ranging from subtle nudges to targeted support programmes—have regained prominence in public engagement, but with a more refined approach than the initial enthusiasm of the 2010s. Communications and engagement professionals now frequently ask how frameworks like COM-B can enhance consultation participation or influence policy results. However, a vital question remains: can techniques designed to influence behaviour align with the legal and ethical principles of proper public consultation?

Understanding the Behavioural Toolkit

Behaviour change science provides several evidence-based frameworks. The Stages of Change model maps where people sit on the journey from contemplation through to sustained action. The Theory of Planned Behaviour examines attitudes, social norms and perceived control as predictors of intention. Social Cognitive Theory highlights how we learn from observing others and the role of self-efficacy in driving change. The COM-B model breaks behaviour into three essential components—capability, opportunity and motivation—identifying what must shift to make new behaviours possible. Meanwhile, nudge theory, championed by the UK’s Behavioural Insights Team, uses carefully designed defaults and prompts to guide choices while preserving individual freedom.

The UK Consultation Landscape

Public consultation in the UK operates within well-defined legal and procedural boundaries. Cabinet Office guidance emphasises transparency, accessibility and timely engagement throughout the process. The Gunning principles, established through case law, set out four non-negotiable requirements: consulting when proposals are genuinely formative, providing sufficient information for meaningful responses, allowing adequate time to respond, and giving conscientious consideration to feedback. Equality impact assessments ensure processes don’t inadvertently exclude or disadvantage protected groups. Whether through surveys, public meetings or digital platforms, consultations follow a structured path through preparation, active engagement, rigorous analysis and considered response.

Where Behaviour Change Strengthens Consultation

Applied thoughtfully, behavioural insights enhance rather than compromise good consultation practice. Mapping stakeholders against the Stages of Change continuum enables targeted outreach those in early contemplation need awareness-building, while those ready to participate benefit from reduced barriers and practical support. Social Cognitive Theory points towards engaging community influencers who can model participation and make engagement socially valued within their networks. The COM-B framework proves particularly practical: is low turnout due to capability gaps (limited digital literacy), opportunity constraints (inconvenient venues or timings), or motivation barriers (perceived lack of influence)? Each diagnosis suggests different interventions.

Even nudges have a legitimate role when used transparently. Pre-selecting an option to receive consultation updates can increase ongoing engagement, provided participants can easily opt out. The key is preserving genuine choice while reducing unnecessary friction.

Navigating the Ethical Boundaries

However, behaviour change techniques require careful ethical use in consultation contexts. Framing engagement around “we need people to change their behaviour for this project to succeed” shifts the dynamic from listening to persuasion, which is a fundamental breach of consultation principles. Nudges should inform and encourage, never manipulate. More forceful interventions—what behavioural scientists call “shoves” (limiting options) or “smacks” (imposing penalties)—have no place in statutory consultation processes.

The Nuffield Council on Bioethics’ intervention ladder, spanning from information provision to legal restrictions, illustrates this spectrum of influence. For consultation practitioners, the imperative is clear: remain outcome-neutral, avoid predetermining decisions, and ensure any behavioural techniques align with both the Gunning principles and equality duties. Participants must be treated as partners in decision-making, not subjects of an influence campaign.

The Growing Intersection

Behaviour change has evolved into a global discipline addressing challenges from public health and climate action to digital inclusion and social equity. The 2025 International Behaviour Change Conference showcased applications spanning health improvement, sustainability transitions, digital technologies and inequality reduction. As local and national government introduce policies targeting obesity, energy consumption and transport choices, demand grows for ethical, evidence-based approaches that respect citizen autonomy.

For consultation leads, engagement managers, and communications directors, understanding these frameworks enables more advanced outreach strategies. You can create programmes that connect with diverse communities, remove real barriers to participation, and promote broader policy goals, all while maintaining the independence and integrity essential to proper consultation.

Ultimately, behaviour change models and consultation practices are complementary. Behavioural science offers theoretical foundations for understanding motivation and decision-making. Consultation provides the formal mechanism to gather views, test assumptions and feed citizen input into policy development. Together, they can deliver more effective and inclusive engagement provided practitioners uphold legal obligations and maintain respect for participants as partners with agency, not subjects to be steered.

How tCI Can Help

At tCI, we support organisations to integrate behavioural insights into consultation programmes responsibly and effectively. We can help you map stakeholder capabilities, design interventions to widen genuine participation, and ensure your approach remains transparent, defensible and aligned with statutory requirements. Whether you’re a consultation manager, stakeholder engagement lead or communications director, we’ll work with you to explore how behaviour change science can enrich your engagement strategies while upholding the principles of fair and lawful consultation.

Contact us to discuss your next consultation programme.