Communication in municipalities has developed in recent years from sender-oriented information to two-way communication. In addition, the role and position that communication takes within the policy process have also changed. Communication has shifted from the end of the policy chain to the heart of policy. Communication about, as, for and in policy is becoming increasingly important. However, until about 20 years ago, communication only came into the picture when the policy process was almost complete. In this article we consider the role of communication in the policy process from then to the present.
Communication about policy 1945-1970
In the 1970s (and earlier), communication mainly took place about policy. However, instead of communication, the word information was used. The information officer was only involved once the policy had been established and his function mainly concerned making it public to the press. Above all, it should not look like propaganda, because after the Second World War it evoked unpleasant associations with Nazis and Soviets.
An important difference with the 1950s and 1960s is that press information no longer only functions as a channel for factual information to the press, but has itself become a player in the playing field of supply and demand of government information (Gomis, 1999 pg. 12). The realization that informing citizens is important grew in the 1970s, partly due to the introduction of the Public Information Act (WOB). It was argued that citizens have a right to information and that the government was obliged to provide information. In addition to explaining and explaining, the information officer was now also given the task of explaining the policy. The main purpose of this was to influence the knowledge of target groups. Communication about policy no longer only takes place when policy has been established. Communication about policy actually means making policy public and explaining it at every policy phase.
Communication as policy 1970-1990
In the 1980s, the functioning of the (local) government came into question. The fact that information was only used when policy had been accepted by the municipal council was increasingly criticized. Making citizens and other target groups aware of social problems became increasingly central. This was mainly done through information. In addition, other forms of communication, such as advertising and public relations, were also introduced. Partly due to this development, information was no longer discussed, but the concept of communication was henceforth used.
The function of communication was therefore on the one hand to promote established policy and on the other hand it was used as a (unilateral) means of influencing the knowledge, attitude and behavior of the target groups to promote policy preparation and implementation (Gomis, 1999). In the latter case, attention is already paid to communication during the policy formulation phase. As a result, the information officers were also involved in the policy to be developed at an earlier stage of the process.
Communication for policy 1990 – present
In the early 1990s, interactive policy making was introduced, mainly at local level. Environmental awareness, thinking from the outside in, is the starting point. There is more and more interaction with citizens or other target groups, especially with regard to policy development and implementation. However, in the 1990s, interaction mainly takes place at a participatory level. Nowadays, interaction based on the delegating or collaborative style is also becoming more common. In interactive policymaking, clear communication between the different parties is an important success factor.
Communication in (the heart of) policy
There has therefore been a change in the role of communication within the policy process in recent decades. Until recently, communication was mainly used as an instrument, as a means to communicate the results of policy making and to inform citizens about them. This is a reflection of the role that communication currently plays. Effective policy communication is no longer just explaining policy clearly, but also capturing signals from society. Communication is no longer the final element of policy, but is actually seen as an integral part of the organizational and policy processes. The role of communication must be considered within each phase of the policy process. Communication in policy therefore largely covers the other policy areas (communication about, for and as policy).