MOVING FROM MERE CONSULTATION TO PUBLIC PARTICIPATION

Consultation has been described as 'a second order of citizen engagement' that aims to include the interests of the addressees of policies and/or for the general public in the decision-making process. However, the decision-making process remains in the hands of politicians. The traditional green and white paper mechanisms, exposure drafts of legislation, focus groups and surveys are familiar ways of gathering citizens' views about particular initiatives. On legislative or policy matters affecting citizens at large, plebiscites may also be used. Sometimes, where policies have a particular impact on certain categorizes of citizens, governments go to conisderable lengths to consult with the affected target groups and those who defend their interests. Nevertheless, it remains generally the case that governments define the issues for consultation, set the questions and manage the process. Consultation is widely used at the EU level.

Public participation on the other hand conveys a strong sense of being an active agent, beyond being a more responder or passive follower. Participation is the highest order of public engagement. In public participation interactions, dialogue, and, ideally, deliberation take place. Rather than simply exchanging information, members of both parties (sponsors and participants) allow the possibility of their opinions being changed. In deliberative settings participants can come to a shared understanding of issues and solutions and can thus make substantially better decisions.

The International Association for Public Participation specifies seven core values for participatory engagement practices that cover both the normative and instrumental dimensions of participation.

• Public participation is based on the belief that those who are affected by a decision have a right to be involved in the decision-making process.
• Public participation includes the promise that the public's contribution will influence the decision.
• Public participation promotes sustainable decisions by recognizing and communicating the needs and interests of all participants, including decision-makers
• Public participation seeks out and facilitates the involvement of those potentially affected by or interested in a decision.
• Public participation seeks input from participants in designing how they participate.
• Public participation provides participants with the information they need to participate in a meaningful way.
• Public participation communicates to participants how their input affected the decision.

At a time when EU citizens are getting increasingly disconnected from the EU institutions and more concerned about their own survival, it may not be a bad idea not just to consult them but to have them involved in deliberative participation. This would provide genuine opportunities for learning and for individuals' re-thinking their positions. It would be about preference formation rather than mere preference assertion.