Public Communication and Public Policy

An invaluable resource for shaping policies that resonate with the public and benefit democratic practices

Democracy may be widespread, but its vitality is under siege. Public trust in governments and institutions has eroded to critical levels, with many democracies failing to include citizens in meaningful consultation, engagement, and participation.

Public Communication and Public Policy: Reviving Democracy by Recalibrating Public Communication addresses this urgent need, exposing how one-way communication practices perpetuate disengagement and hinder policy effectiveness. Drawing on research across three continents, author Jim Macnamara dissects policy frameworks and government communication guidelines to uncover systemic shortcomings and offer actionable solutions.

Combining critical literature reviews, practitioner interviews, and real-world case studies, Public Communication and Public Policy delivers detailed recommendations to reform public communication—challenging conventional approaches and advocating for recalibrated consultation and citizen participation to rebuild trust and reinvigorate democratic processes.

A timely, solutions-focused analysis of democratic challenges, Public Communication and Public Policy

• Analyzes 16 widely used policy models to reveal critical gaps in consultation and engagement practices
• Provides detailed strategies to enhance public communication, consultation, and stakeholder participation
• Introduces groundbreaking frameworks such as the IP-IT model of communication
• Examines key policy failures such as Robodebt (Australia) and Post Office Horizon (UK)
• Bridges communication theory, public policy studies, and political science

Public Communication and Public Policy: Reviving Democracy by Recalibrating Public Communication is a must-read for academics, students, and professionals in public communication, strategic communication, and public policy. It is particularly relevant for policymakers, advisers, and government communication practitioners aiming to create inclusive, effective, and trust-building policies.

List of Figures ix

List of Tables x

List of Boxes xi

Acknowledgements xii

Abbreviations xiv

Key Definitions xvii

Chapter 1 The ‘Democratic Deficit’ 1

Loss of Trust 4

The Lost Public 8

Public Affairs and Lobbying 12

Types of Democracy: The Sociopolitical Context 14

References 17

Chapter 2 The Public Sphere – And Its Problems 25

The Public 26

Public Opinion 27

The Public Sphere 28

The State 32

References 44

Chapter 3 Public Policy 53

Types and Levels of Public Policy 55

Policy Sciences 56

Policy Studies 60

References 62

Chapter 4 The Public Policy Development Process 67

The Policy Environment 67

Policy Inputs 69

Policy Outputs 71

Policy Frameworks 71

The Policy Process 73

Policy Cycles 74

Policy Analysis 86

Policy Platforms 87

Finding the Policy ‘Sweet Spot’: The Overton Window 87

Public Communication and Public Policy 88

References 90

Chapter 5 Public Communication 94

Fundamentals of Communication 94

Public Communication 103

Government Communication 105

Public Sector Communication 109

Public Sphere Communication vs Public Sector Communication 110

The Public Sector Communication Ecosystem 111

European Union Initiatives 115

UK Government Communication Service (GCS) 121

French Government Information Service (GIS) 130

Open Government Partnership (OGP) 131

OECD Open Government, Civic Space, and Public Communication Unit 133

Ireland’s Open Government, Citizens’ Assemblies, and Referenda 135

Australian Public Service Approach to Engagement and Participation 137

A Home State “State of the Nation” – The NSW Department of Customer Service 140

References 144

Chapter 6 Consultation, Engagement, and Participation: Theory and Practical Insights 161

Public Consultation 163

Stakeholder and Citizen Engagement 165

Participation in Public Policy and Decision-Making 173

What Senior Public Policy and Public Communication Leaders Say 176

Findings from Senior Practitioner Interviews 197

Acknowledging Challenges 201

References 203

Chapter 7 Behavioural Insights: Is This the Answer? Or Part of the Problem? 214

How to Get People to Do Things: Biases and Heuristics 215

Who Do You Trust? 216

Behavioural Public Policy 217

Lack of Insight: The Antithetical Problem 220

References 222

Chapter 8 Recalibrating Public Communication for Public Policy 225

Applying the IP-IT

Model 225

Organizational Listening 229

CEL vs. SELL 236

Integrated Models of Public Communication and Public Policy Development 237

The Time for Government Public Communication is Now 241

References 242

Chapter 9 Why Governments Don’t Listen: Challenges to Address 247

Fear 247

Bias, Heuristics, and System 1 Thinking 249

Lack of Processes, Systems, and Tools 250

Cultural Factors: The “Talkative Species” 253

References 255

Chapter 10 Enablers of Meaningful Inclusive Engagement and Participation 258

Ten Steps for Planning and Implementing Citizen Participation 259

Data Integration and Analysis 261

Deliberation 263

Mini-Publics 264

Outreach 265

Metamodernism 271

Public Communication Knowledge and Skills 273

Watchdogs to Listening Dogs: The Role of Media 279

Citizen, Heal Thyself 280

Final Words: Summary, Conclusions, and Recommendations 283

References 287

Appendix A: Research Methodology 298

Bibliography 303

Index 306

Jim Macnamara is a Distinguished Professor of Public Communication in the School of Communication at the University of Technology Sydney. He is also a Visiting Professor at the London School of Economics and Political Science and the London College of Communication. He is the author of 19 books including Organizational Listening II: Expanding the Concept, Theory, and Practice and Evaluating Public Communication: Exploring New Models, Standards, and Best Practice.

“This book addresses a vitally important element for strengthening and maintaining democracy – the need for open two-way public communication in policy-making.”
David Goessmann Director, Open Government, Civic Space, and Public Communication Unit Organization for Economic Cooperation and Development (OECD)

“This book is a landmark contribution on public sector communication. Grounded in a close examination of relevant theory and solid, global empirical research, it is a masterly exposition of the nature of communication and a clarion call for a radical move away from ‘tell and sell’ to ‘listen and collaborate’. Jim Macnamara provides a practical framework for turning the call into reality. It is a must read for academics and practitioners who care about reviving democracy in the face of the very real threats it faces.”
Anne Gregory Professor Emeritus, University of Huddersfield, UK

“This important and deeply researched work highlights the vital role that public communication can play in improving the quality of policy-making and increasing trust in government. Its cogent demonstration of the benefits of interactive engagement between government and citizens, its use of case studies, and practical recommendations of available methods and tools make it an invaluable resource for policy-makers and anyone committed to strengthening our democratic systems.”

Carol Mills Director, Institute for Public Policy and Governance & Centre for Local Government University of Technology Sydney

Public Communication and Public Policy: Reviving Democracy by Recalibrating Public Communication reports research conducted across three continents that identifies key causes of the collapse of public trust and a looming “crisis of democracy”, offering detailed practical recommendations to redress these trends and revive democracy for the betterment of society.

A review of 16 public policy development cycles and models published in academic literature and as well as the guidelines of governments and public institutions show that half do not mention public consultation, feedback, stakeholder and citizen engagement, or public communication. When public consultation is included, it is listed after policies have been developed. Similarly, public communication is typically positioned at the end of the process to announce and promote policies and government decisions – what this analysis refers to as “tell and sell”.

A focus on one-way communication by governments and public institutions is confirmed in interviews with senior public policy and public communication practitioners.

Case studies reported such as introduction of the UK Post Office Horizon System and Robodebt in Australia confirm that a lack of stakeholder and citizen engagement, consultation, and listening to feedback through two-way public communication is a key contributor to public policy “debacles”, “scandals”, and “miscarriages of justice”.

The interdisciplinary research reported in this book shows the lack of democratic participation is both a demand- side and a supply-side problem. While many public policy advisers and analysts do not see two-way public communication as part of democratic policy-making, public communication staff are commonly focussed on the news media cycle and promotional campaigns based on marketing ideology that has infiltrated the public sector. This research informs a number of recommendations for governments, public institutions, public policy and public communication practitioners, and civil society.