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CHAPTER 4: REFLECTIONS ON THE MODEL OF PARTICIPATION CHOSEN FOR THE BEST VALUE CONSULTATION
The preceding Chapters have provided an outline of the method chosen for the consultation and the approach adopted for the evaluation. Before moving on to evaluate the effectiveness of the consultation, it is important to reflect on the decisions made in designing the exercise, the issues these raise, and where possible, view these within a wider context of models of participation across other jurisdictions. This context-setting contributes to establishing a baseline for the evaluation of the consultation and aids interpretation of findings by illuminating the trajectory and pace of change of wider developments in consultation at the time that this particular exercise was executed.
4.1 BROAD FRAMEWORK
Based on the description of the decision-making processes provided by the Best Value and Performance Team, and the observations made by the external evaluator, the consultative framework could be categorised as largely top-down in approach, with the commissioners deciding the broad consultation strategy, but factoring in a degree of bottom-up input by permitting flexibility for participatory agenda-setting within the overarching model.
The exercise reflected a multi-activity approach to consultation with several different participatory techniques combined within the consultation framework.
Although the techniques used have been deployed before by the Scottish Executive and other bodies, the consultation was an example of how different ways of delivering the same techniques can impact differently on the precise shape of the exercise and the type of results to emerge.
4.2 DELIBERATIVE PROCESS
In her literature review of civic participation in public policy-making across Western Democracies, Nicholson (2005a) observed a gradual increase in the use of deliberation within participatory processes. In essence, deliberation involves participants being facilitated in finding more out about a topic and being able to consider this, prior to presenting their views. Implicit within the Best Value consultation was a deliberative dimension. The stakeholder seminars in particular provided the opportunity for learning by all parties: commissioners and participants. Learning from one element of the consultation informed the nature and structure of the next element.
The deliberative dimension of the Best Value consultation was in line with, and reflected, a growing movement in use of deliberative techniques by public bodies throughout Europe.
One systematic study which compared the effectiveness of various deliberative participatory approaches with more traditional approaches (Abelson et al, 2003) concluded that deliberation does indeed make a difference to particular views and as more deliberation is introduced into the process, views of participants may actually become more amenable to change. In addition, they surmised that deliberative methods could make more dominant views less entrenched. Finally, these researchers discovered that the nature of the topic influenced the impact of the deliberative process. They concluded that deliberative approaches were more appropriate for relatively concrete/tangible issues (eg specific health concerns) rather than less tangible ones (eg determinants of health).
Previous research suggests therefore, the appropriateness of using deliberative approaches within the context of the relatively concrete issues associated with Best Value.
4.3 LOCATION WITHIN THE RANGE OF SCOTTISH EXECUTIVE ACTIVITIES
The previous mapping of Scottish Executive participatory approaches undertaken in 2004 (Nicholson, 2005b) provides a useful framework within which to place the Best Value consultation and understand its baseline. As stated previously, the tools used in the Best Value consultation were not amongst those commonly used by the Scottish Executive. In 2004, seminars and meetings accounted for only 21% of participation activity, with working groups used relatively rarely (4% of all activities).
It is also useful to set the Best Value consultation within the framework of the International IAP2 Public Participation Spectrum framework 4 developed by the International Association for Public Participation ( Annex 5 contains a summary). This framework organises the aims and objectives of activities into a 5 stage model which demonstrates an increasing level of impact across the stages. Scottish Executive consultation activities in 2004 have previously been mapped against this model to provide a benchmark for subsequent consultation activity. Figure 3 overleaf displays the results of this previous mapping.
Section 11.7 later in this report argues that the Best Value consultation activity is distinctive in straddling the "involve", "collaborate" and "empower" bandings.
In terms of setting the baseline and context for the evaluation, the purpose of the Best Value consultation activity can be seen as atypical when compared with previous Scottish Executive activities.
Figure 3: Application of Findings on Purpose of Activity to IAP2 Model of Public
(Figure 3 was originally produced in Nicholson, 2005b.)
4.4 INNOVATION IN ACTIVITY
As outlined previously, not only were the particular techniques deployed in the Best Value consultation unusual, but the aims of the activities could also be placed at the end of the spectrum of purpose as demonstrated in Figure 3.
In addition, it could be argued that as " local government has appeared to be at the forefront of pushing forward the boundaries on innovation in techniques" (Nicholson, 2005a, p1), the promotion of such innovatory practice by central government in a very public manner is also unusual. Similarly, the pro-active strategic planning of the consultation, as opposed to a reactive scheduling of activities is of note and goes against the tide of much public sector experience.
Comparisons with previous public sector consultation experience confirm therefore that the Best Value consultation contained a number of unusual features, with little in the way of previous lessons to learn from.
4.5 SUMMARY OF KEY POINTS
- The Best Value in Public Services consultation could be described as largely top-down in approach but with some flexibility for participatory agenda-setting included. It was a multi-activity exercise and provides an example of how different ways of delivering the same techniques can impact differently on the results to emerge.
- The deliberative dimension of the Best Value consultation was in line with, and reflected, a growing movement in use of deliberative techniques by public bodies throughout Europe.
- Previous research suggests the appropriateness of using deliberative approaches within the context of the relatively concrete issues associated with Best Value.
- In relation to the International IAP2 Public Participation Spectrum framework, the Best Value consultation can be placed across the "involving" and "collaborating" dimensions of working.
- The purpose of the Best Value consultation is atypical in comparison with previous Scottish Executive consultation activities.
- The consultation was unusual in terms of the techniques it deployed, its aims and the pro-active strategic planning which went into its development.
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