Continuous Improvement & Benchmarking Consult the community – Guide
Community Consultation has been a critical part of democratic governance in manycountries. Democratic governance involves community participation and engagement ingovernance and decision making. This is surely the core business of government,particularly local government. Effective consultation can be a key tool in enablingparticipation in democratic institutions and processes.
Consultation is a key step towards enhanced decision-making. It may result in slower development of difficult or complex decisions, but in the long run leads to quicker implementation. This is because good consultation leads to community ownership of adecision as a result of the access of the community to the decision making process.
Consultation is fundamental to democratic governance, with its emphasis on communitydevelopment and political leadership based on an informed and involved community. Itdoes not imply government by referendum as the accountability of government for political leadership and decision making is enhanced, not diminished, by consultation. Itis important that consultation is done with imagination and an understanding for theneeds of the community.
The difference between consultation and communication
Communication provides information to the community through a range of avenues –publications, community radio, internet, advertising and releasing of information to themedia. Accessible information provides an underpinning for consultation. Providingfeedback on communications is also not consultation. Essentially communication is aone-way process and consultation is a two-way process.
Why Consult?
The first reason is about extending the boundaries to our knowledge. No matter howexperienced and knowledgeable we might be about our local community and matters of public policy, our knowledge is still partial. When we recognize our own limitations andturn to others, they become engaged. Consultation enables elected professional staff and Councilors respectively to further their knowledge and understanding of people andissues; to ground their policy advice and decisions in the realities of other people’s dailylives and work. Handled properly, the quality of policy development and decision makingcan only be enhanced.
Continuous Improvement & Benchmarking The second reason is its ethical. When people’s livelihoods, environments and quality of life are at stake, they should be consulted and involved in the decisions which affect
them directly.
Third, it is democratic. People’s membership of a democratic society means much morethan having a say once every three years through the ballot box. Indeed, one of theimportant aims of good governance at any level in a democratic society lies in fosteringthe conditions for people’s involvement in the decisions which affect their lives andcommunities. The challenge is to approach consultation properly and not in a cursoryfashion.
Fourth reason is it is efficient. We are so accustomed to thinking about efficiency innarrow economic and administrative terms that we forget about the ‘public efficiencies’ tobe gained by getting things right in the first place; such as avoiding protracted and costlydisputation; and by achieving important social benefits for communities which defy dollar values.
Fifth reason is it establishes connections. These connections build trust and can providesolutions to issues; changes mindsets and challenge each other. Good consultationshould integrate a whole range of ideas, emotions, feelings and values withunderstanding, appreciation and dignity.
Consultation facilitators must be clear and open about their intentions and actions; be
prepared to listen to people; and establish and support proper processes for wider information gathering and public exchange. To deliver on this, the legitimacy of diversegroups to enter debates must be embraced; you have to be prepared to accept criticism;and to be challenged.
Consultation is an important part of building consensus whether your "community" is amunicipality, a volunteer-based organization, business enterprises, or a work area inyour own local government. When you seek to change, to grow, or to establish a newmandate, then connecting and consulting with your citizens, your stakeholders, your volunteers, your employees, is integral to the eventual success of implementing your desired goal.
While it is important that you define some goals and objectives, you must also be surethat you do not stifle the creativity of participants by directing the process too rigidly.Consultation can be creative, and from this creativity may emerge ideas which you maynot have considered. Sometimes the really great ideas come ‘at the edge’. Where youstep outside of your own comfort zone and extend yourself right to the edge. At thatintersection you expose yourself to new ideas and concepts that someone else extends‘at their edge’.
Continuous Improvement & Benchmarking Relevant information will be presented in an easily understood format.
There will be circumstances where commercially sensitive information or informationof a personal nature may not be able to be fully disclosed to the public.
All consultation processes will be evaluated after the decision-making theycontributed to is completed. Evaluation will consider – Was the aim achieved? Weretarget groups reached? Where views diverse enough? Were people adequatelyinformed along the way? What further actions are needed? How will the visionreached be cascaded into policies and then into the operational level to ensure thatoutcomes are achieved?
Participants will receive feedback about ideas received and how the final decisionwas reached.
If a difference occurs between the ideas and the final decision the reasons will bedocumented.
As a part of its commitment to the effectiveness of a consultation, Council’sassociated decision making processes will be evaluated after a final decision has
Consultation methods will vary according to the issue. Six issue types are identified thatwill require different methods of consultation:
Site Specific issues
Matters about a particular site, such as a change in use.
Area Improvement issues
Matters that affect people in a neighborhood, suburb or strip shopping centre.(eg: traffic management).
Service Planning issues
To develop or improve a service. The service could have an impact on the wholemunicipality.
Policy Development issues
To develop or improve policies for Council’s position on particular matters.Policies may affect the whole municipality.
Major Projects/ Strategic Issues
Projects of such size they impact on the finances or future of the wholemunicipality. (eg: new freeways, traffic management changes, new hospitals,shopping centers, public transport changes, new infrastructure).
Strategic PlansEstablishing the decision-making framework of Council. This includes the CouncilPlan and the new Planning Scheme.
Below is a consultation matrix that illustrates a range of consultation methods to suit theneeds of the issue. The table below illustrates the most common methods and their frequency of use. Methods rated as number 5 will be used every time, while those withthe number 1 will rarely be used.
Continuous Improvement & Benchmarking Value 1 = Use very infrequently, almost never
This matrix is designed as a checklist for staff and the community to indicate what
consultation could be expected to be undertaken on a given issue. It is not prescriptivebut intended as a guide for staff when they are determining what consultation should beused.
Using the matrix
The matrix should be used as a guide. It is not possible or desirable to write a personalletter for every event, although the community has clearly called for personalcommunication on issues close to home. The matrix must not be used prescriptively. It is
not necessary to both advertise and produce a special publication. Equally, a smallmeeting may negate the need for focus groups. All consultation planning require staff tolook at the matrix to determine what the community expects and then meet thoseminimum standards. The matrix has to be used with a checklist that is designed toensure that a solid and consistent approach is adopted to consultation across Council.
Other important considerations in achieving a quality consultation process include thefollowing:
Internal communication
Good consultation needs sound internal communication processes. All Councilstaff participating in the consultation process need to be in complete and opencommunication with each other.
Resourcing
All significant consultation exercises need to be carefully costed.
In the interests of equity, Council will consider assisting groups who wouldotherwise be unable to contribute. The manner of this assistance will differ depending on the consultation and the resources available.
Training (of staff and councilors)
Staff (and councilors) must be trained in appropriate consultation techniques.
Training must be focused to acquaint staff (and councilors) with the principles of good consultation, implementation of sound consultation and evaluation of theconsultation.
Staff (and councilors) should ideally bring the following attributes to aconsultation – they need to have good communication skills; be good facilitators;be informed, reflective, open minded and responsive. Use staff that can rethinkregulatory and policy structures so that bold outcomes can be achieved. Tryusing staff from other areas in consulting eg use and engineer to consult on anarts strategy, or a children’s services officer to consult on traffic management.This allows greater opportunity for putting people ‘to the edge’ where creativity insolutions can be found.
Timing
Adequate time must be allowed for participants to contribute and unexpectedissues to be raised. Consultation should be started as early as possible to allowtime for community involvement and comment.
Reasonable deadlines will be set for participants to respond and for thecompletion of tasks.
Continuous Improvement & Benchmarking Sufficient time is allowed so that there is flexibility to debate and investigate anyunexpected and important issues that arise.
Consultation with religious, ethnic and minority groups
The unique perspectives of minority people need to be acknowledged inconsultation.
Be committed to involving minority people in Council decision-making processes.
The most appropriate way to involve minority people in the consultation shouldbe discussed in conjunction with local people representatives.
Design of the consultation
Provide an interesting venue with appropriate heating and cooling
Provide adequate notice of the time and place
If required, arrange transport to enable people to attend
Researching
The internet provides a wealth of information on consultation. Currently there are2,550,000 hits on ‘consultation’ and 27,400 hits on ‘community consultation’(using the Google search engine). Try the following – www.cdf.org.uk;www.community-action.org.uk; www.islandnet.com/connor; www.rural-
Making a commitment to consultation is the first crucial step. Making a commitment tooutstanding practice in community consultation is the second step. The third step isabout developing the capacity for this outstanding, inclusive practice. The capacity for good consultation practice is about having the conceptual, technical and human skills inplace to design consultation processes which are appropriate to the issues at hand.
Enhanced decision-making is one of the primary reasons why Councils shouldconsult. This is based on the recognition that if you communicate properly withpeople affected by a decision, they are likely to provide you with a wealth of
information and insight about a proposal.
Feedback from those consulted is analyzed with the expectation that new ideas and newperspectives will be thrown up for further investigation or ideas that had originally beensuspected will be confirmed. The outcomes of this analysis can then be incorporateddirectly into the decision-making process. In the end, Council is accountable for thedecisions it takes.
Consultation is about having regard for your citizens interests in making plans. It needsto be planned, participative and evaluated. Don’t be fooled – too often the use of focusgroups, community forums etc can easily look as though consultation is occurring but theconnection of listening and learning (and all the hard work that goes with that) is actuallymissing. You must put yourself actively into the consultation so that you can get belowsurface understandings, to elicit information from people who are empowered to speakin their own terms and define things as they see them.
All this time, you’re building a knowledge and understanding of the local community thattakes better account of its diversity and its complexities. This positive interventionconnects people, creates vision, develops civic creativity and celebrates sharedoutcomes.
The various methods of consultation are detailed here. The basic thrust of all thesecommunications is to provide accurate information to both the community and council toensure that decision making is informed. The consultation strategy has avoided aprescriptive approach to consultation. The consultation matrix is to assist staff todetermine proper level of consultation. Listed below are some other ideas for theconsultation process that can be used with the matrix.
Write a Letter
This is a personally addressed letter to all the affected households. It outlines theissue and invites comment. It always indicates where the comment should bedirected within Council.
Survey
This is a statistically correct survey of particular attitudes, beliefs or information. Itis almost always conducted by independent survey specialists and may be doneby phone, written survey or door-knock of individual households.
Letterbox Drop
This is a non-addressed leaflet or flyer that summarizes the issues and invitesfeedback to Council. The flyer indicates how that feedback can be given.
Council Newsletter
This is the regular publication of Council. It can carry articles about a policy or issue. If it is used for consultation, then the article must inform and encouragefeedback. The newsletter is an important vehicle to report on the results of other consultations.
Special Publications
These can range from a special news sheet to a brochure or a draft printedpolicy. They are designed to inform the consultation process.
Ads in the Local Newspapers
Ads in the news section of the local papers (except for statutory requirements)
are an important means of advising the community about the matter under consultation and how they might have their say.
Media
This involves issuing media releases and conducting interviews with local journalists. If it is part of the consultative process, the Council spokesperson
Continuous Improvement & Benchmarking should always indicate to the media representative that feedback from thecommunity is valued.
Community Leaders
Community groups have their own systems of communication. In anyconsultation, the leaders of those community groups play an important part incirculating information and receiving feedback.
Personal Briefing/s
These are held at the request of a member or members of the local community todiscuss a particular issue with a responsible officer. They may include acouncilor.
Focus Groups
These are discussion groups of around 5-20 people, usually led by a trainedperson (facilitator). The participants are invited because they are residents or because they have a particular interest, involvement or stake in the subject beingdiscussed. The purpose is to find out the range of opinions that exist on aparticular topic. Focus groups cannot measure how widely those various opinionsare held in the community.
A Meeting Called by the Community
With some issues the community may determine to call its own meeting as partof the consultation process.
Public Meeting
This may be held at a community venue, at the site of the matter under consultation,or at the Council offices. Invitations will be sent by one or more of the followingmethods:
• ad in the local papers
• letterbox drop
• media release or telephone contact with community (including ethnic)leaders.
Ward meetingsThe community, in different ways, raised the possibility of ward meetings onissues. This possibly reflects a desire to meet and talk to the ward councilor onsome form of equal footing. Ward meetings should be considered as an optionafter discussion with the relevant ward, project or portfolio councilor.
Continuous Improvement & Benchmarking Self Directed Focus groups
Focus groups can be either directed or self directed. Directed focus groups have afacilitator who directs and reports back on the issues. Self directed focus groups do
not have a facilitator and involve a discussion with a selected target group. Thepurpose of the target groups is to bring out issues through discussion. It is anexcellent tool for highlighting issues that can be further explored through thequantitative research. Self directed focus groups can also be dominated by a singleperson and should be used carefully.
The internet
The internet needs to be explored as an adjunct to any consultation
process. Major documents can be placed on the web page for
downloading by interested groups and people.
e-consultation / e-chat
Use of the internet to provide a forum for citizens to be involved in discussion andelectronic consultation. This can be moderated or open. Although still in earlystages it can be a useful tool as it enables citizens to participate who may not beable to attend meetings.
Street stalls
Street stalls are a useful tool in getting information about issues from people inthe street. They also offer a chance to discuss a wide range of issues. Street
stalls were used in the local laws consultation. It is important that officers areprepared to handle a wide range of issues and not just the issue that is beingconsulted upon. A good way to canvas the mood of the community. Done with ashort survey, it can be very useful.
Reference groups
There is a range of reference or interest groups for many groups and specificgroups can be encouraged to participate. The community information strategy isbeing developed to strengthen the role of these groups.
Language Link, interpreters and translations
In some form, Language Link should be used in conjunction with all consultationsand communications. Translations should be used when needed. Interpreters areavailable on requests for meetings. A Language Link booklet is being developedto assist staff and the community to effectively use this valuable tool.
The consultation design puts the aims and principles of the strategy into concrete form.It provides a framework for Council officers and a reminder of key design aspects of theconsultation process.
Community Consultation Design
What is the aim of the consultation; what is the purpose of the consultation;what opinions or views are we trying to solicit from the community ?
What type of consultation process is most appropriate for this aim ?
(refer to the consultation matrix)
Who are the main groups of people that need to be involved in the consultation
process ?(people in a locality, religious, ethnic, social strata, age or gender demographic)
Continuous Improvement & Benchmarking Community Consultation Design
How will the consultation information received be documented, used,publicized, and how will you inform the participants of this usage ?
(summary of points, submitted to council, published on Internet)
How will minority groups be included in the consultation process ?
(specific invitations, separate meetings, telephone interview)
What communication tools will be used to advertise the consultation process,to update the participants and to inform the participants of the final outcome ?
Continuous Improvement & Benchmarking Community Consultation Design
Is a mailing list required; and if yes, then who will prepare this mailing list andhow will it be maintained throughout the consultation process ?
What evaluation process will be used to assess the effectiveness of theconsultation process ?
How will the participants be thanked for their contributions and also beinformed about the final outcome of the process or the effect their contributionhas had. ?
Continuous Improvement & Benchmarking Disclaimer: The views expressed in this Toolkit are the views of the authors and do not necessarily reflect the views or policies of the Asian Development Bank (ADB) or Asian Development Bank Institute (ADBI), or their Board of Directors, or the governments they represent. ADB and ADBI do not guarantee the accuracy of the data included in this CD-ROM and accepts no responsibility for any consequences of their use.
Terminology used may not necessarily be consistent with ADB official terms.
