Does Public Consultation Affect Policy Formulation? Negotiation Strategies between the Administration and Citizens

While public consultation is a signature process of democratic policy formulation, many governments manoeuvre to refract citizen's opinions or conduct it perfunctorily. Using the case of a medium of instruction policy in Hong Kong, this article unveils the strategies that the state and citizens employ to put their opinion through to the final policy text, during a public consultation process. Recent literature has identified the mechanisms through which individual actors or organisations contribute to broad policy agenda-setting or policy programme development. However, yet to be investigated is how they -- sometimes with conflicting interests -- collectively negotiate a policy with the state via public consultations. This paper investigates this very phenomenon, building on previous work conducted in the public policy field, analysing 51 government-generated documents through both thematic content analysis and critical discourse analysis. The paper uncovers four strategies adopted by administrations ("non-commitment," "case closure," "disengagement for irrelevance," and "placation") to evade citizens' equity-oriented demands and stakeholders' three counter strategies ("mobilising" other stakeholders into a coalition, "reopening the case" pointing out a new problem, and "appealing" by affirming relevance). The state's discrete refusals and stakeholders' conjoint reengagement tactics draw our attention to the complexity and subtlety involved in negotiation via public consultations.