Executive Summary
Collaborating for Change
Searching for evidence of good practice in participatory policy making
Why begin this search?
As a collaboration of individuals with lived experiences of socio-economic disadvantage, community workers, anti-poverty sector staff and academics, Poverty2Solutions are committed to increasing and extending participatory policymaking processes. We see this as absolutely essential if policies are to have a positive impact, rather than actually making people’s situations worse, as has happened far too often in recent years.
Our Collaborating for Change research was carried out by Alice Lemkes with the support of the rest of the Poverty2Solutions team
Our commitment to participatory approaches is part of wider efforts to ensure that the expertise that comes with lived experiences is properly valued and utilised. In our work, we are often asked to set out examples of good practice in this domain for others to learn from and to be inspired by. When released our report will document these efforts - over almost a year - to find examples of participatory policymaking within the UK, and highlights how difficult this search was, and how rare it was to find examples that stood up to scrutiny.
What is participatory policy making?
It is vital to recognise that people use the term ‘participatory policymaking’ to mean different things; and there are often very real and fundamental limitations in how it is currently operating. In fact, participatory policy making happens (and only happens) when ordinary citizens play an active role in the policy making process, as part of wider ambitions to develop better policies, which acquire greater legitimacy because of how they have been developed.
Participation can mean different things and is employed in different ways at different times. It is often used to describe the involvement of a random sample of the population, for example in citizen juries, citizen assemblies, or consultations. But these processes are one-off bolt ons, and should not be confused with actively involving people with relevant lived experience across the whole policy making process.
When we look at what is currently happening, we can see examples of involvement which range from those with lived experiences a) setting the policy agenda, b) advising on specific aspects of a policy, c) making specific funding decisions and/or d) policy evaluation. We can see examples of policy makers themselves holding (and facilitating) the whole process, or this being anchored to third sector organisations.
Through our analysis of existing practice, we found that the most effective participatory policy making processes i) involve people in different ways and at multiple points, ii) understand that there is no set framework or template for success; iii) adapt and learn from the work that is conducted.
Is there much of this happening at the moment?
Over the past year, we’ve been working hard to collect evidence of participatory policy making across the UK; and at the national, regional and local levels. Our key finding from this work is that - despite there being a lot of enthusiasm for working in this way - there is still very little evidence of it actually happening. We did find examples of participatory work - especially at the devolved national level - but this was often ad hoc, and temporary, and it is still very much the exception and not the norm.
What are the benefits of participatory policymaking?
Our analysis included a literature review of participatory processes which have been written up, and interviews with stakeholders involved. This uncovered some key benefits of participatory policymaking.
People at the sharp end of policy decisions have crucial insights that are too often missed in policy debates and technocratic discussions.
Participatory processes bring this expertise into the policymaking arena in ways that have scope to draw on and incorporate this vital knowledge and expertise
Incorporating lived experiences into policymaking can generate more effective policies, that work with and build from this expertise.
Participatory policymaking can directly draw on the practical knowledge, insights and expertise of those directly affected by the policy under scrutiny. This often leads to more appropriate, meaningful and effective policies.
Decent participation in policymaking will increase the legitimacy of policies; as they’ll have incorporated a wider range of expertise
Meaningful engagement of those with lived experiences can lead to increased support for contentious measures, when and if those directly affected have co-produced the proposals, and also sends an important, symbolic signal about valuing lived expertise. This can foster increased trust in governmental institutions.
Participatory policy making will also expand who feels ownership of policies; widening the pool of those who feel part of policy making.
At a time when trust in governmental institutions is at a historic low, participatory policymaking can counter dominant top-down models of elites out of touch with everyday lives making decisions that affect millions. Participatory processes can increase a feeling of ownership, not just in the policies themselves, but in the whole system of government.
“Civil servants don't know what it's like to operate care plans at the local level, do they? We're completely dependent on the care workers and the people that receive that care to help us with that understanding.”
Former Senior Civil Servant, Wales
In summary, lived experiences constitute a valuable form of expertise and should be – but is not yet - an essential component of evidence based policy making. Increasing opportunities for involvement will empower historically marginalised groups by creating and sustaining a legitimate platform for people involved to be listened to; have their experiences valued; and be part of change-making processes.
But what are the challenges in working in this way?
Our analysis revealed the following recurrent challenges in developing policy in a participatory way.
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It is not always easy to evidence the impact of participation in effective policy making. It can be especially difficult to pinpoint what has changed about a policy as a direct result of the participatory approach, and this may make it hard to build wider support for this way of making policy.
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Unfortunately, all too often hierarchical distinctions are made between lived and learned experts in participatory processes. This can present in parallel rather than shared processes and activities: for example, a participatory strand which is completely distinct from the other policymaking activities. When this happens, there is a risk that participation feel tokenistic to people with lived experiences, especially when communication between those holding different types of expertise is poor. Successful participatory policy making benefits from the integration of diverse forms of expertise, where collaboration and connection can be fostered.
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Relatedly, participants can feel that their contributions are undervalued or, even worse, ignored. Clear communication of expectations and feedback mechanisms throughout the process are vital; as is a commitment to keeping participants informed about the outcomes from their involvement into the longer term. This helps enable participants to feel that their inputs are valid and can help maintain engagement both on the task at hand, and in future processes.
What are the key ingredients of effective participatory policy making?
Our analysis has uncovered what we think are the key elements that together stand the best chance of ensuring participatory policymaking is meaningful and effective.
These are…
Early and Continuous Engagement:
It is vital to engaging people with lived experiences of the area under examination early in the policy cycle. Equally, it is important for involvement to continue across the policymaking process, and this will help ensure the relevance and impact of their contributions.
“There’s no point getting our voice involved at stage five or six. All the mistakes have already been made. If we were involved from stage one, you’d be amazed by the hazards and extra work you are going to miss out on - we’ve been there, seen that and can tell you the hurdles that are about to come up.”
Poverty Truth Commission Member
Collaborative Approaches:
For participatory policymaking to work, a collaborative approach is needed, which effectively values the merging of lived and learned expertise. To this end, government departments and local authorities working in partnerships with civil society organisations and pre-existing lived experience groups can strengthen participatory policy making efforts, and build more robust ways of working
All this needs strong, committed leadership
Good leadership is a vital prerequisite to ensuring that participatory efforts are taken seriously and integrated into decision-making processes. Participation needs champions; and leaders who are committed to working in radically different, and highly innovative ways. The buy in of senior leaders, such as ministers and deputy ministers, also helps signals the importance of participatory policy making, especially when they are involved in the process themselves.
“Leadership is critical to these things. If you don't demonstrate your intention, people will not will not think it's important, will they?”
Senior Civil Servant, Wales
Read the full report
Collaborating for Change: Searching for evidence of good practice in participatory policy making is to be released in the coming months. Contact us if you would like to be informed when its released.
