The Current State of Public Consultation in the Public

Sector Survey Results

1. Introduction

The Consultation Institute, along with member companies Community Research and EasyInsites sponsored a survey of consultation and engagement professionals currently working in the UK public sector. The main aim of the survey was to gain a picture of current state of public consultation and engagement amongst as wide an audience of public sector professionals as possible. The survey included questions covering a range of issues, as follows:

• Whether public consultation and engagement is being cut or, conversely, is on the increase because of the wider cuts to public services.

• The main challenges that public consultation and engagement professionals are currently facing.

• Levels of concern regarding possible legal challenges to public consultation.

• The degree to which skills in public engagement and consultation skills are being lost from the sector.

• Which methodologies and dialogue methods are likely to be used more in future and which less.

2. Methodology

An online survey was conducted and was open to anyone to complete. Members of The Consultation Institute (TCI) were asked to participate via direct e-mail. The survey was also promoted via relevant LinkedIn groups and other networks including The Guardian Public Leaders Network. The survey took around 5 minutes to complete. Respondents were able to complete the survey anonymously, but were also offered the option of leaving their e-mail and contact details, in order to receive a summary report of the findings. The questions were aimed at a target audience specifically of UK public sector organisations and those with either a direct role or keen interest in public engagement and consultation issues. The total number of responses received was 127, the vast majority of respondents (114) stated that consultation and engagement was a major part of my role. All respondents had at least some consultation and engagement responsibilities.

2

3. Key findings

3.1 Increasing importance of public consultation and engagement

As Figure 1 shows, the volume of public consultation and engagement work appears to be increasing in the public sector. Of our sample 58% said their organisation had done more public engagement work in the last year than was the case in the previous year and 48% said they had done more consultation with the public. Only 11% and 14% reported less of this kind of in 2011-2012 as compared to the year before.

In 2011-2012 has your organisation done more, less or about the same amount of ……

Public engagement Formal consultation with the public

A lot more,

24%

A little more,

34%

About the same,

28%

A little less, 10%

A lot less, 1%

Don't know, 2%

A lot more,

16%

A little more,

32%About the

same,

34%

A little less, 13%

A lot less, 2%

Don't know, 4%

Figure 1 – Levels of activity compared to previous year.

When asked why this increase is taking place the recurring themes were:

• The pace of change leading to a need for greater engagement and consultation.

• The Localism Act and other new legislation.

• Budget cuts and difficult choices needed to be made with the consequent requirement to gain buy in from the public.

Some typical responses are as follows:

“I feel that in the current economic climate council and other public service partners are becoming more cautious about taking forward changes without a clear mandate through consultation findings.”

3

“We are undergoing some major changes to the way we deliver services. We are committed to carrying out consultation in these circumstances.” “Changes through the Localism Act has meant that more engagement has been necessary, in relation to neighbourhood planning etc.”

Those working in public engagement and consultation perceive that their area of work is becoming more important to the organisations which they work for. This is illustrated in Figure 2, which shows that 88% of respondents to the survey believe that public engagement work has become a lot more or a little more important to their organisation in the last year, and 81% of respondents say the same for formal consultation with the public.

Would you say that …. has become more or less important to your organisation in the last year?

Public engagement Formal consultation with the public

A lot more, 33%

A little more, 55%

A little less, 7%

A lot less, 0%

Don’t know , 5%

A lot more,

34%

A little more,

47%

A little less, 9%

A lot less,

2%

Don’t know ,

9%

Figure 2 – Importance of public engagement and formal consultation

When asked to explain why these areas of work have become increasingly important, survey respondents point to an increased level of concern regarding the possibility of legal challenges:

“Legal challenges have heightened awareness of importance of formal consultation. Politicians also want to be seen to be listening to people.”

4

“The need to minimise risk of legal challenges as the organisation plans to reduce costs.”

“Threat of legal challenge for not doing it correctly.”

Given that there have been a number of legal proceedings lately which have had the effect of challenging decisions of public bodies, based on the argument that the consultation was flawed or unlawful; it was felt important to ask engagement and consultation professionals the degree to which this issue was a specific concern. The majority of respondents expressed at least some concern about this issue. In total 67% said they were very or quite concerned that their own organisation might face similar challenges in the future. Just over a quarter of respondents (27%) said that they were not very concerned about this possibility, but very few (2%) were confident enough to say that they were not concerned at all. Figure 3 shows the full results.

How concerned, if at all, are you that your organisation might face similar legal challenges of this kind in future?

Very concerned,

10%

Quite concerned,

57%

Not very

concerned, 27%

Not at all

concerned, 2%

Don't know, 4%

Figure 3 – Concern regarding legal challenges

The very difficult decisions currently being made by public sector bodies are making consultation and engagement activities more prominent and important. When specifically asked how far they agreed or disagreed with the statement: “given the current austerity measures it is more important than ever for the public to have real influence over decisions” an overwhelming 95% agreed with 56% agreeing strongly, as Figure 4 shows:

5

Given the current austerity measures it is more important than ever for the public to have real influence

over decisions

Agree strongly,

56%

Agree, 39%

Disagree , 3%

Disagree strongly,

1% Don’t know, 1%

Figure 4 – Austerity measures and the importance of public influence

Survey respondents told us that involvement of stakeholders and communities is becoming ever more essential to politicians.

“It is more that it is more important to our clients, but this seems to be due to the pressure of legal challenge and empowerment of stakeholders / community members to challenge what is happening to them in the area.” “When times are difficult it's even more important to carry people with you when hard choices are to be made.”

3.2 Key current challenges

Respondents were provided with a list of challenges that might face public sector organisations in conducting public engagement and consultation work. They were asked to indicate how far they agree that these challenges are being faced in their own organisation. As Figure 5 shows the strongest levels of agreement were seen for the challenges “insufficient budgets to conduct proper consultation and engagement work” and “lack of trust from the public that their input will have any influence” with 75% and 82% in agreement that these are challenges they face, respectively.

6

There were much more split opinions over many of the other challenges presented. For example, whilst 46% of respondents agreed or agreed strongly that the “loss of skilled public engagement and consultation staff” was a challenge they were facing, 47% of the sample disagreed or disagreed strongly that this was the case.

Here are some of the key challenges that others say they face…. How far would you agree or disagree that you

also face these challenges?

13%

14%

15%

15%

17%

28%

31%

44%

38%

31%

28%

50%

54%

44%

36%

38%

41%

39%

27%

17%

21%

6%

7%

6%

11%

4%

2%

2%

3%

8%

6%

2%

2%

2%

0% 10% 20% 30% 40% 50% 60% 70% 80% 90%100%

Lack of interest amongst members of the public

Insufficient skills to harness the power of socialmedia

Loss of skilled public engagement &consultation staff

Lack of political commitment to conduct properconsultation

Lack of time to take the public’s view into account

Lack of trust from the public that input willhave influence

Insufficient budgets to conduct properconsultation & engagement work

Agree strongly Agree Disagree Disagree strongly Don’t know

Figure 5 – Key challenges

Respondents to the survey were asked to spontaneously suggest the challenges they themselves were facing in conducting public consultation and engagement work. The strongest recurrent theme in these responses was very clearly one of constrained budgets and / or insufficient resources to conduct proper consultation and engagement. Some typical responses were as follows:

“Resources and capacity. We will have additional responsibilities for public engagement when public health passes over to the Council from the PCT in April 2013 without additional resources. My understanding is that there will be co-location with Health as early as June 2012. We also have additional responsibility for Strategic Development Control which passes over to the Council from April 2012, i.e. 2 weeks’ time, again without any additional resources.”

7

“Lack of time, money & capacity to support effectively.” Some respondents were very honest about the pitfall of public engagement and consultation exercises becoming no more than tick box processes, without real influence:

“Trying not to reach a conclusion or develop firm plans BEFORE we've been out to consultation!”

“Trying to achieve open honest dialogue whilst at the same time ticking all the legal boxes, keeping to budget and deadlines.”

When asked which of the suggested challenges represented the single biggest issue, just under a quarter (24%) of respondents to the survey opted for “insufficient budgets to conduct proper consultation and engagement work.” This was closely followed by “lack of trust from the public that their input will have any influence”, chosen by 20% of respondents as being the biggest single challenge they face.

3.3 Methods Used Now and in the Future

The survey included a question to ascertain which dialogue methods are currently being used by the respondent’s organisation when conducting consultation and engagement activity with the public. A range of methods were presented and many were in widespread use. The most universal method (in use by 93% of respondents’ organisations) was document based consultation. Also in use by the vast majority were online surveys (87%), focus groups (84%) and public meetings (83%). Citizens Panels and communities were currently being used by 3 in 5 (60%) and social media channels were also reported to be in use by the clear majority (57%.) Figure 6 provides the results in full.

8

Which of these consultation and dialogue methods do you/ your organisation currently use?

16%

40%

42%

57%

60%

65%

74%

77%

83%

84%

87%

93%

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

Participatory Budgeting

Telephone surveys

Deliberative events

Social media channels

Citizens panels / communities

Face to face surveys

Postal surveys

Roadshows / exhibitions

Public meetings

Focus groups / discussions

Online surveys

Document based consultations

Figure 6: Dialogue methods currently used.

We were also interested to understand the dialogue methods most likely to be used with increasing regularity in future. Given the recent growth in social media activity it is perhaps not surprising that this was identified by the most people as the channel that will be used more in future (57% say this will be used more in future). The move to online methods is clearly set to continue with a predicted growth also in the use of online surveys. As Figure 7 shows one in three respondents (33%) also expected deliberative events; citizens’ panels / communities and focus groups / discussions to be used more.

9

Which of these consultation and dialogue methods will your organisation use more in future?

9%

13%

13%

15%

18%

26%

29%

33%

33%

33%

46%

57%

0% 10% 20% 30% 40% 50% 60%

Postal surveys

Telephone surveys

Document based consultations

Face to face surveys

Public meetings

Roadshows / exhibitions

Participatory Budgeting

Deliberative events

Citizens panels / communities

Focus groups / discussions

Online surveys

Social media channels

Figure 7: Dialogue methods that will be used more in future.

Online methods are increasing in popularity because of their obvious advantages in terms of speed, cost and reach. In addition respondents point to their youth appeal:

“Cost effective and over the years we have seen a significant increase in the number of responses via this method. Also we are aiming to get young people more involved in consultation and they have indicated this to be one of their preferred methods of giving their views.”

Citizens and Community panels are clearly a strong part of many public sector organisations’ future plans since they too offer a highly cost effective route in times of constrained budgets:

“Because they are ready-made and prepped responders. We get a good response from our Residents' Panel, and numbers are growing, and it is fairly representative of our population. In that sense we …. save that time and money.”

“Because we've worked hard to develop this stable of 'critical friends' and in the face of apathy from the general public at least we get a response from our panel!”

10

“We have just formed our community panel and are planning to build its membership to make it robust enough to use as a proportional representative of the population. When we have achieved this we will use it regularly to gauge people’s views on and satisfaction with the Council and our services.”

3.4 Quality and Influence

Given The Consultation Institute’s unique role in defining best practice in public engagement and consultation in the UK, we were keen to ascertain how far professionals working in this field perceive that best practice is being achieved. Respondents to the survey were asked to set aside the work of their own organisation and think about consultation and engagement practice in the UK public sector as a whole. They were then asked to give their views on a series of statements regarding the quality and level of influence that such exercises appear to achieve. As Figure 8 shows, the results of the survey certainly do not show a resounding endorsement and confidence in the quality of current practice. Almost ¾ of respondents (71%) agreed or agreed strongly with the statement “consultation is often poorly conducted.” Well over half of respondents (56%), similarly disagreed or disagreed strongly with the statement: “most consultations conducted by the public sector are well designed.” The sample was more evenly split over how far public consultation genuinely has an influence over decisions that are eventually made. Almost half of our sample (48%) agreed or agreed strongly with the statement “it is rare for public consultation genuinely to influence the decisions made by public sector organisations.”

Agreement with statements on quality and influence of consultation

1%

9%

12%

29%

39%

59%

47%

40%

22%

9%

2%

0%

13%

9%

7%

0% 10% 20% 30% 40% 50% 60% 70% 80% 90% 100%

Most consultations conducted by public sectororganisations are well designed

It is rare for public consultation genuinely toinfluence decisions

Consultation is often poorly conducted

Agree strongly Agree Disagree Disagree strongly Don’t know

Figure 8: Quality and Influence

11

4. Conclusions

It is clear that there may never have been a more important time for the development of professional best practice standards for public consultation and engagement. Public sector organisations are increasingly engaging with and consulting the public since the decisions they are making, with reducing budgets, require community consent and buy-in. Our survey suggests that those working in the public sector are increasingly concerned at the number and nature of legal challenges to key decisions that are based upon flaws in the consultation process. At the same time the pressures on consultation and engagement professionals are considerable. Reducing budgets and inadequate resources are making it very difficult to conduct exercises that meet best practice standards. Those working in engagement and consultation roles are clearly aware that standards across the public sector are not as high as they should be. Against this background The Consultation Institute’s work and message appears ever more vital.