1. C.H. Montin, Tbilisi 11 Tbilisi, 13 November 2014 Developing Regulatory Impact Assessment In Georgia Public Consultation as an integral part of RIA Charles-Henri Montin, Smart Regulation Consultant Former Senior Regulatory Expert, Ministry of economy and finance, Paris http://smartregulation.net

2. C.H. Montin, Tbilisi 2 Contents  Definitions  The three forms of communication  What topics?  Why consult?  Who to consult?  When?  Channels  A step-by-step approach  Lessons from experience

3. C.H. Montin, Tbilisi 3 Consulting at start of the regulatory process  “Departments are responsible for identifying interested and affected parties, and for providing them with opportunities to take part in open, meaningful, and balanced consultations at all stages of the regulatory process. “ (Canada)  Publication of proposals in the Official Gazette to allow for comments, and take comments into consideration  Standard comment period: 30 days, but it can vary based on legislative requirements, international obligations, and other considerations. 75 days at least for proposals for new and changed technical regulations that may affect international trade.

4. C.H. Montin, Tbilisi 4 What activities constitute consultation  inform and engage citizens on the nature and implications of the public policy issue based on available evidence, science, or knowledge; include citizens in developing policy objectives;  set out the process and timelines in a clear manner so that affected parties can organize and provide input; and  provide timely feedback to citizens and affected parties on the outcome of the consultations and on the priorities considered in decision making.

5. C.H. Montin, Tbilisi 5 Use feedback from consultation  Check validity of the options, and the quantification of costs and benefits  Check they endorse the key assumptions and data that contribute to the analysis.

6. C.H. Montin, Tbilisi 6 Active Participation Providing information Obtaining information and public views Identifying conflict lines Verifying consistency and acceptance Engaging the public in the formulation One way process: INFORMATION or notification Government Citizens Two-way flow: CONSULTATION Government Citizens Partnership Government Citizens Forms of public-private communication 2 Topics - Policy-making - Rule-making

7. C.H. Montin, Tbilisi 7 Why consult the public? LegitimacyCredibilityConfidenceAdded valueTransparencyAlienation and connectivityRegulatory literacyManaging conflictIncreased complianceSocial cohesion

8. C.H. Montin, Tbilisi 8 Who to consult? Subject/ Regulation Taxpayer Government department/ Regional, Local office Academic experts Charitable, not-for-profit organisation Organised interests (trade unions, employers’ associations) Private sector (companies, employers) Public sector workers (doctors, teachers) Service users / beneficiaries

9. C.H. Montin, Tbilisi 9 When to consult? The Policy Cycle Policy Formulation Policy Delivery / Implementation Policy Review / Assessment Ex-Ante Evaluation / Impact Assessment Consultation Communication Ex-Post Evaluation Interim Evaluation

10. C.H. Montin, Tbilisi 10 Adopting the right mix of channels ChannelsBest suited toLimits Advisory group Permanent contact Part of established process Lack of flexibility Possible capture Public meetings Two-way dialogue Easily relayed by media Difficult focus Capture ? Opinion surveys (incl. focus groups) Specific reform projects Lack of objectivity Little interaction WebsiteWide consultation “Open” Representativity Weak feedback

11. C.H. Montin, Tbilisi 11 Notes: Data for 2005 and 2008 are presented for the 30 OECD member countries and the European Union concerning consultation routinely used at central government level for primary laws Source: OECD Regulatory Management Systems’ Indicators Survey 2005 and 2008. www.oecd.org/regreform/indicators Channels of public consultation

12. C.H. Montin, Tbilisi 12 Developing consultation with stakeholders (1) OECD Handbook recommendations  Build a framework –Legal rights of access to information, legal status of consultation –Policies –Evaluation of activities and capactiies  Plan and act strategically –Set realistic objectives supporting government policy at different levels –Define target groups (publics) to match objectives –Assess available resources to fund activities –Set up evaluation tools  Choose and use the tools –Clear messages to disseminate on all types of channels –Interactive channels for consultation (process feedback) –Engaging citizens in agenda setting: consensus conference (DK), citizens’ juries (FR)

13. C.H. Montin, Tbilisi 13 Developing consultation with stakeholders (2)  Harness the power of ICT –Web.2 and e-government open up new field of opportunities  Put principles into practice –Commitment to citizen participation by raising awareness and providing support –Rights to be grounded in law or policy –Clear objectives and precise roles of parties, avoid false expectations –Time: early in the process, and give realistic deadlines fitting into political agenda –Objectivity of information provided, and easily accessible –Coordination across government to manage knowledge, build networks –Accountability: clear timetable, feedback to citizens –Evaluation tools to be developed, data collected. Engage citizens in evaluating events

14. C.H. Montin, Tbilisi 14 Benefits and pitfalls of C° (UK report 1999) Consultation can – · enhance the quality and effectiveness of policy making by providing additional insights Consultation can – · create delay and administrative overload. · strengthen the legitimacy of final decisions · provide a focus for the mobilisation of resistance, · increase the responsiveness of citizens · raise expectations · produce unrepresentative views

15. C.H. Montin, Tbilisi 15 Lessons of experience Why? Clarify the purpose of consultation at the outset of the process: A code of practice can help to enhance confidence in the consultation process Who? Consultation should be open & participation voluntary Be specific when selecting whom to consult be specific Identify the objectives and resources of stakeholders; their media use, location and pursued interests Revisit the stakeholder analysis throughout the public consultation process Be willing to talk. BUT: Be wary: Sometimes the “beneficiaries” can be the hardest group to deal with When? Set a clear framework and timescale for the consultation process Align purposes with tools of public consultation in different stages of the policy cycle How? Use a flexible approach that combines a range of consultation tools: Reach out to the stakeholders Respond to comments receive and use the input: Establish mechanism ensuring that public comments are adequately taken into account Develop new approaches to better use ICT

16. C.H. Montin, Tbilisi 16 Questions ?

17. C.H. Montin, Tbilisi 17 Conclusions  Consultation is a key element to make the RIA process credible  It should not be seen as an external interference, or a purely formal obligation  But an opportunity to improve the regulatory proposal

18. C.H. Montin, Tbilisi 18 More on the topic  « Engaging citizens in policy-making » (OECD, 2001): http://www.oecd.org/dataoecd/24/34/2384040.pdf http://www.oecd.org/dataoecd/24/34/2384040.pdf  “Evaluating Public Participation in Policy Making :” http://www.oecd.org/document/2/0,3746,en_2649_33735_40758338_1 _1_1_1,00.html http://www.oecd.org/document/2/0,3746,en_2649_33735_40758338_1 _1_1_1,00.html  “Citizens as partners” Handbook (2003) http://213.253.134.43/oecd/pdfs/browseit/4201141E.PDF http://213.253.134.43/oecd/pdfs/browseit/4201141E.PDF  European Commission guidelines on consultation and dialogue (2002): http://ec.europa.eu/governance/docs/comm_standards_en.pdf http://ec.europa.eu/governance/docs/comm_standards_en.pdf  « Public policy and public participation »: http://www.phac- aspc.gc.ca/canada/regions/atlantic/pdf/pub_policy_partic_e.pdfhttp://www.phac- aspc.gc.ca/canada/regions/atlantic/pdf/pub_policy_partic_e.pdf  « Civic participation in policy-making, a literature review: » http://www.scotland.gov.uk/Publications/2005/09/16120247/02496 http://www.scotland.gov.uk/Publications/2005/09/16120247/02496  (independent viewpoint ) « Public participation: » http://www.beyondintractability.org/essay/public_participation/ http://www.beyondintractability.org/essay/public_participation/