VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Value for Money and Policy Review Communication Strategy 2007-2009 with due regard to the current Communications Strategy 2010-2012 Athbhreithniú Luach ar Airgead agus Athbhreithniú Beartais. Straitéis Chumarsáide
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Lightly redacted of information that may be considered to be commercially sensitive and where its disclosure may prejudice the outcome of current or imminent contractual or other tendering procedures.
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Chapter 1: Executive Summary, including Recommendations...... 4 Summary Recommendations ...... 11 Chapter 2: Introduction ...... 16 Overall Objective of the Review ...... 17 Terms of Reference ...... 17 Steering Committee ...... 18 Evaluation Framework ...... 19 Chapter 3: Objectives and Validity ...... 24 Conclusions ...... 28 Recommendations...... 29 Chapter 4: Inputs ...... 30 Conclusions ...... 41 Recommendations...... 41 Chapter 5: Education Programme ...... 44 Conclusions ...... 69 Recommendations...... 70 Chapter 6: Media/Press Office...... 73 Conclusions ...... 103 Recommendations...... Chapter 7: Marketing and Information ...... 107 Conclusions ...... 128 Recommendations...... 129 Chapter 8: Effectiveness ...... 131 Conclusions ...... 139 Recommendations...... 141 Chapter 9: Potential Future Performance Indicators ...... 143 Performance Indicators ...... 143 Recommendations...... 146 APPENDICES ...... 147
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Chapter 1: Executive Summary, including recommendations.
Overall Evaluation Statement 1.1 The implementation of the Communications Strategy and Plan 2007-2009 and the achievement of stated strategy outcomes scored highly in some areas, relatively poorly in others. Efficiency improvements were implemented during the period of the strategy.
Introduction 1.2 This reports presents the findings of the VFM & Policy Review of the Communications Strategy 2007-2009, with due regard to the current Communications Strategy 2010-2012. The implementation of the Communications Strategy and Plan 2007-2009 did not effectively get underway until 2008 when the Head of Communication and the Press Liaison Officers were recruited and Service staff were assigned to the Communications Unit. Accordingly, the implementation of three year Communications Plan continued into 2010. For this reason the review includes a full analysis of 2010.
1.3 The main objective of the VFM and Policy Review of the Communications Strategy is: to determine that Communications Strategy 2007-2009 objectives were achieved; to determine that the Communications Strategy 2007-2009 was delivered in the most economic, efficient, and effective way; and to inform future policy decisions and organisation approaches to the development and implementation of a Communications Strategy for the Houses of the Oireachtas.
VFM Test 1: Rationale, Objectives, Relevance o What are the objectives of the Communications Strategy? o Is there a valid rationale for undertaking the Strategy? o Is the Communications Strategy compatible with the Commission‟s strategic goals and wider public service initiatives?
What are the objectives of the Strategy?
1.4 The strategy objectives of the Oireachtas Communications Strategies are clearly specified.
1.5 There is a clear set of objectives identified for the Commission‟s Communications Strategies for 2007-2009 and 2010-2012. The Communications Strategy for 2007-2009 focused on the overarching goal of transforming the public perception and understanding of the role of the Houses and its Members. The current Communications Strategy 2010-2012 focuses on a new high-level objective of a more fundamental use of communications to build confidence in the Houses and its Members.
1.6 The need to realise savings, to maximise impact and to provide customer centric services are key objectives that are to be achieved when delivering the current Communications Strategy for the Houses of the Oireachtas, in the context of the Croke Park Agreement and
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy public service reform initiatives. Communications Strategy activities have been scaled back since 2010 and reorganised to meet these objectives.
Is there a valid rationale for having a Communications Strategy? Is the Communications Strategy compatible with the Commission’s strategic goals?
1.7 Communicating information in respect of parliament is an essential element of parliamentary democracy. The public have a right to be informed of the work of their parliament and to have access to information about the work of the Houses of the Oireachtas and its Members.
1.8 The Communications Strategy objectives are consistent with the Houses of the Oireachtas Commission‟s stated strategic priorities.
1.9 The stated rationale of the Communications Strategy 2007- 2009 was to support the key strategic objective of the Commission‟s Strategy Plan 2005-2006 „to improve public perception and understanding of the Houses of the Oireachtas and its Members‟.
1.10 The Commission‟s Strategic Plan for 2007-2009 had „promoting parliament‟ as a key objective.
1.11 Although „promoting parliament‟ is no longer a stated key objective of the current Strategic Plan for the Commission, the Communications Strategy is compatible with the right of the public to be informed of the work of their parliament and the Mission Statement of the Commission „to serve the democratic interests of our main stakeholders, the Irish people, by serving parliament through:
enabling the Houses, their Committees and their Members to do their parliamentary business, and meeting Members‟ needs as public representatives in the conduct of parliamentary business.‟
1.12 The Communications Strategy is also compatible with the Commission‟s vision to have „a World-Class Parliamentary Service‟. International Parliaments and Assemblies examined as part of this review have strategies in place to increase citizens‟ understanding of the work of parliament and/or to increase citizen engagement and participation with the democratic process.
1.13 The Strategy objectives of improving public understanding of the work of the Houses and of promoting parliament are also valid in supporting public accountability and openness of parliament.
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
VFM Test 2: Effectiveness
Is the Communications Strategy achieving its objectives?
High Level Strategy Objective
1.14 External factors that are outside the control of the Communications Unit make it difficult and at times impossible to isolate, measure and evaluate the direct impact that the Communications Strategy 2007-2009 has made to its high level strategy objectives and to the Commission‟s vision to have a world class parliamentary service.
1.15 The stated actions and targets underpinning the high level strategy objectives of the Communications Strategy for 2007-2009 were substantially achieved over a three year period.
1.16 The high level objective of the Communications Strategy 2007-2009 was “transforming public perception” and of “building confidence” in the Houses the Oireachtas and its Members. These objectives were ambitious and their achievement was significantly influenced by external factors that were outside the direct control and influence of the Communications Unit. Strategy objectives have to be reasonable, achievable and measurable and directly influenced by: strategy actions; by those implementing the strategy; and by those on whose behalf the strategy is being implemented.
1.17 The toned down high level objective of the current Communications Strategy 2010- 2012 of “the fundamental use of communications to build confidence in the Houses of the Oireachtas and its Members” is a goal that is achievable and is more amenable to measurement.
1.18 The years covered by the Communications Strategy 2007-2009 and the current strategy were periods of significant political, social and economic change. These changes, nationally and internationally, might be expected to impact on public perception of national parliaments. There is no doubt that public trust in national parliaments has been badly shaken during the 2007-2010 period1.
1.19 Research2 carried out on behalf of the Oireachtas in 2010 indicates a marked decrease in the public perception that the Oireachtas carries out its role efficiently. A minority of poll participants „ appear to have adopted such a position as much on the basis of perceived mismanagement of the broader economy by “the Government” in recent years than specific inefficiencies within the Houses‟.
1.20 The 2010 research indicates that there is now a clearer understanding of the primary
1 Roth F, Centre for European Studies, The Eurozone Crisis and its Effects on Citizens’ Trust in National Parliaments, (Dec 2010). 1 Boyle Richard, IPA, Chapter 5 , Research Paper No 6, Public Sector Trends 2011, based on Eurobarometer ‘ twice yearly measures of confidence in the national parliament (Nov 2011). 2 Onside Marketing Research, The Houses of the Oireachtas , Public Research Study (May 2010) Page | 6
VFM and Policy Review of the Houses of the Oireachtas Communications Strategy role of the Oireachtas to exercise the powers invested in it to legislate.
1.21 The stated belief that significant improvements could be made to change the level of understanding from 42% to 75% at the end of the three-year 2007-2009 strategy period was never an attainable goal. The level of knowledge of the Houses of the Oireachtas increased marginally between 2005 and 2010. 2010 research found that „44% of all adults feel they have a good understanding of the role of the Houses of the Oireachtas: almost two-thirds of those under 34 feel they don‟t have a good understanding‟. This compares well with the perceived level of knowledge during that period in the UK about the UK parliament3.
1.22 The results indicate that the process of increasing understanding of parliament follows a slow path and that the objective of increasing understanding of the role of the Houses and its Members is very much a longer term objective to be achieved and maintained incrementally over a long period of years.
1.23 Prior to 2011, communication type activities, including website and web related functions and public information functions were not integrated or fully coordinated. The responsibility for these activities was fragmented across three Directorates. This hampered development and management of these communication type functions. Following changes to the organisation structure in 2011, responsibility for these functions are now consolidated under one Assistant Secretary‟s area of responsibility (i.e. Information Services).
Sub-Strategies of the Communications Strategy
Media/Press Strategy Objectives 1.24 The achievement of objectives of the media/press strategy for 2007-2009 scored high in most areas. There was a VFM issue regarding the procurement of specialist services. This issue has since been addressed.
1.25 Members‟ level of satisfaction with the „promoting parliament‟ function and with the staff of the „public relations office‟ while relatively high, has fallen. This result must be viewed within the context of extraneous political social, economic factors that are outside the control of Communications Unit staff. However, going forward, Members‟ concerns need to be addressed when developing a new media strategy for the Oireachtas.
1.26 There was a surge of media coverage of member‟s expenses, pay and pensions after 2008. However, changes to the Members‟ allowances and expenses and the Commission‟s decision to publish Members‟ expenses appear to have halted the upward trend and since 2010 the number of references to these issues in the press has started to decrease.
1.27 A survey of Members of the Press Gallery indicates that the relationship between the Oireachtas Press Gallery and the Communications Unit is very good.
3 Hansard Society, Audit of Political Engagement No 7 (2010) Page | 7
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1.28 Facilities are provided by the Oireachtas to Members of the Press Gallery. The McCarthy Report 4 was of the opinion that some of the costs of proving these facilities should be borne by the commercial media outlets. Following negotiation with the Press Gallery the Commission approved the setting of charges for telephones, computer hardware and a charge for access to the Oireachtas LAN, resulting in savings of over 10% of costs. The Commission noted that in the current financial climate the issue may have to be revisited.
1.29 There was a marked increase in a wider range of media outlets, of coverage of the work of the Oireachtas and a significant increase in coverage of Committee work and in coverage of the work of the Oireachtas in local press.
1.30 The absence of regular evaluation of media reporting and periodic evidence-based research to provide insight and data to prove linkages between the Press Office media outputs, media reports and changes of public perception of the Oireachtas makes it difficult to assess the success or failure of the media strategy in changing public perception of parliament and to inform the development of a strong media strategy for the Oireachtas.
Education Programme Strategy Objectives 1.31 The Outreach Education Programme 2007-2009 achieved its stated strategy outcomes, but it was not cost effective. Accordingly, in 2010 the Service developed and implemented an alternative method of in-house delivery that reduced expenditure considerably.
1.32 The Oireachtas Outreach Education Programme achieved the strategy outcome target of reaching 20,000 students over a three year period. Feedback from students and teachers was very positive and indicates that the participation of Members of the Houses has been good and very much welcomed by teaching staff.
1.33 The cost, on average, per student was high (€22 direct cost; €42 full cost, including administration) and was not sustainable in the current economic climate. The adoption by the Service in 2010 of an alternative approach to deliver the programme using volunteer in-house staff reduced the direct cost per student significantly to about €6 per student. However, the number of students reached dropped to just over 1,000, compared with 8,000 pupils per year, on average, in previous years. Accordingly, the administration cost, on average, per student was very high.
1.34 The Oireachtas currently does not have the capacity or resources to sustain an on-site and off-site delivery of the education programme on a scale of best practice of comparable national parliaments or on a scale to meet any increased demand.
1.35 The Oireachtas Education Programme both complements and overlaps with the Department of Education & Skills civil social and politics education programme. An alternative approach away from the direct face-to-face delivery model to an on-line delivery programme to
4 Report of Special Group on Public Service Numbers and Expenditure Programmes ( July 2009) Page | 8
VFM and Policy Review of the Houses of the Oireachtas Communications Strategy support teachers and students is required to meet any increased demand; to contribute to the achievement of high level objectives, and to achieve the level of participation achieved by other national parliaments‟ education programmes.
1.36 An element of the off-site Outreach Programme should be maintained to ensure that schools in geographic and social disadvantage areas that cannot visit Leinster House for Oireachtas education workshops are included in the programme.
Marketing and Information Strategy Objectives 1.37 The marketing and information work programme and key initiatives identified in the marketing and information strategy plan were substantially completed during a three year timeframe.
1.38 Overall, there was expenditure control and value for money issues regarding expenditure on events and goods and services. However, lessons were learned after the first year of the strategy and more economic and efficient ways of implementing strategy actions (events, information material etc.) were achieved.
1.39 Updated project management guidelines for the Service are currently being developed to further improve control of „project expenditure‟ to „project budget‟ reporting mechanisms across the Service.
1.40 While the large public events organised by the Oireachtas were deemed successful, the cost, on average, per person attending these events was high. The Oireachtas Family Day gave the attending public a positive experience of their national Parliament and created a positive image of the Oireachtas by attracting positive and widespread media coverage. However, hosting large Oireachtas events is not sustainable and cannot be considered a priority in the current social, economic and political climate. In 2010, the Oireachtas cancelled the holding of large Oireachtas events. This means that the Oireachtas does not currently have an annual event that promotes a positive image of the Oireachtas. Cross promotional events (e.g. Culture Night and Open House) have proved successful and can be delivered at relatively low cost and with low levels of disruption. However they do not have the same positive impact and coverage for the Oireachtas as Family Days.
1.41 During the period of the review, the Communications Unit produced a series of information materials, films on the work of the Oireachtas and redeveloped the Oireachtas website, including the development of media zone, events and education website areas.
1.42 Since the Oireachtas Commission‟s first Communications Strategy there has been a dramatic expansion generally in social media usages in all age ranges and demographics. The Communications Strategy for 2010-2012 acknowledges this phenomenon and has prioritised new media, including social media networks, for attention during the current strategy period.
1.43 While the number of Oireachtas „networking followers‟ is currently low (about 8,000, which is on a level of comparable parliaments), they are increasing gradually each month.
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1.44 It is recommended that the Oireachtas Service develops guidelines regarding the purpose, usage, and style for the Oireachtas social network presence, in order to maximise its benefits while minimising any risks associated with social networking.
1.45 It can be anticipated there will be a significant increase in the use of mobile devices to access information on the Oireachtas website with the distinct possibility that mobile access will exceed desktop computer access within a relatively short number of years. Currently (mid 2012), over 5% of visitors access the website using mobile devices/smart phones, up from under 3% in 2011.
1.46 Mobile sites and mobile “apps” are likely to become the preferred choice of users to access information. This presents fresh challenges and opportunities to the development of the Oireachtas website strategy objectives, the design of the site and materials, and the protection of the site and Oireachtas network.
VFM Test 3: Efficiency Is the maximum being delivered with the resources? 1.47 The Communications Strategy was delivered significantly within its overall budget allocations. However, the per-unit cost of providing some of the strategy services was high. Most of these high cost activities were either discontinued or the delivery method was changed to reduce costs. The budget was significantly reduced in 2010 and 2011. The Communications Unit‟s expenditure in 2011 was less than half of what is was in 2009.
1.48 Overall, there was value for money issues regarding expenditure on goods and services that were not conducive to achieving value for money. These issues have been addressed.
1.49 Communications Strategy expenditure (pay and non-pay) is a low proportion of the Service‟ operating costs and low compared with other Parliaments. Expenditure for 2007-2010 was equivalent 0.7% of the Service‟s operating costs for the same period. For 2011, Communications Unit expenditure accounted for 0.5% of operating costs compared with 1% in 2009.
Communications Unit’s Expenditure 2007-2011 2007 2008 2009 2010 2011 €000’s €000’s €000’s €000’s €000’s Pay 117 (29%) 433 (39%) 623 (41%) 566 (66%) 536 (75%) Non Pay 281 (71%) 685 (61%) 890 (59%) 292 (34%) 180 (25) Total €m €0.397m €1.119m €1.513m €0.859m €0.716m Figures rounded to nearest €1,000.
1.50 Total pay and non-pay expenditure for the 2007 to 2010 period was €3.888m. Non pay costs dominated spend between 2007 and 2009. In 2010 and 2011 pay dominated costs (66% in 2010 and 75% in 2011). The full cost (direct expenditure and indirect costs) of implementing the Communications Strategy is estimated at over €5m for the 2007 to 2010
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy period.
Summary of Recommendations
Objectives [Chapter 3] 1. In the context of the development of future Communications Strategies for the Oireachtas, ensure that the high level Strategy goals are attainable in the strategy period and that the achievement of desired outcomes can, in so far as is possible, be influenced and/or controlled by the Communications Unit, and can be measured and evaluated.
Inputs [Chapter 4] 1. Strengthen project expenditure controls and recording of running totals of project expenditure against project budgets. The Service‟s Project Management Guidelines are currently being updated to further improve „project spend‟ to „project budget‟ reporting mechanisms across the Service. 2. Ensure the continued use of National Procurement Framework Agreements, where appropriate and beneficial, and ensure that the procurement of specialist services by the Communications Unit follows the Service‟s procurement guidelines.
Education [Chapter 5] 1. Create and promote the use of an online education resource for primary and secondary schools (including Transition Year and Leaving Certificate if CSPE subject is added to syllabus, as proposed) in partnership with national agencies and organisations to support teachers of citizenship education and their students. The alternative approach away from the direct face-to-face delivery of the programme to an indirect web-based on-line programme is required to meet demand and to achieve the level of participation achieved by other national parliaments‟ education programmes. 2. Maintain on-going liaison with the National Council for Curriculum and Assessment Board (NCCAB) regarding the development of the civic and social curriculum and supporting materials for primary, junior cycle and senior cycle students. There is the potential to have an inexpensive, accessible and low maintenance on-line education resource presence by creating networks and partnerships with existing official on-line education resource developers and providers. Agencies such as the National Centre for Technology in Education (NCTE) www.scoilnet.ie; NCCAB, Central Statistics Office (CSO) www.censusatschool.ie, Blackrock Teachers Centre provide education material on-line that goes into a secure network of primary and secondary schools. 3. Explore, in consultation with the ICT Unit, the potential to use free open-source course management system applications (e.g. Moodle) that are available to create effective on- line learning sites. 4. Maintain a level of the external outreach element to the Oireachtas education programme to be aimed primarily at geographic and social disadvantage areas to ensure their inclusion in the programme. 5. It is recommended that the participation of Members in the education programme is continued, facilitated and supported.
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6. Future evaluation surveys of the Education Programme should include a more direct input from students. 7. The potential to schedule more Oireachtas Education school visits on Mondays and Fridays should be considered further, to make greater use of Usher‟s time on non- sitting days and to reduce the waiting time that school currently have to wait for a tour. 8. A dedicated visitor space for school workshops should be considered as part of the Service‟s longer term strategic precinct development plan. The absence of a dedicated visitor space for school workshops, reduced staffing capacity to organise and present workshops, combined with competing demands for Oireachtas tours significantly restrict the number of requests from schools for on-site visits that can be promoted and facilitated and the speed with which they can be facilitated. 9. Develop new indicators to measure the effectiveness (Outcomes) of the Education Programme.
Media/Press [Chapter 6] 1. Periodic evidence based research and evaluation of media reporting is recommended to provide insight and data to prove linkages between the Press Office media outputs, media reports and public perception changes and to inform the on-going development of a strong media strategy for the Oireachtas. Examples of industry standard media evaluation measures are as follows: Quality of news reports over period of years. Tonal Bias – positive, neutral or negative slant. Tone of the media – what reflects the mood of the press. Core message tracking – what publications are picking up core message. Press Release Tracking – how much of press releases are being published verbatim. 2. Reassess the use of resources and time spent on the preparation of traditional press releases to ensure the optimum use of staff resources. 3. Arising from marketing research findings5 and the potential derogation6 from the statutory requirement of the 20% news and current affairs requirement for the licensing by the Broadcasting Authority of Ireland (BAI) of broadcasting services, it is recommended that consideration be given in future Oireachtas media/press strategies to include strategies that are designed to enhance the amount and quality of information, including broadcast or new media coverage of the work of the Oireachtas, that is specifically aimed at a younger audience (e.g. under 34 years old) with the spotlight placed on new ways of explaining legislation. 4. Review the setting of charges for media rights and facilities on an on-going basis. 5. Make greater reuse of the commissioned This Week in the Oireachtas radio reports and commissioned regional Oireachtas Reports by making them, available on the Oireachtas website and to the new media market, where appropriate.
5 Onside Marketing , The Houses of the Oireachtas, Public Research Study ( May 2010) 6 Broadcasting Authority of Ireland (BAI) Broadcasting Services Strategy (2012). Page | 12
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Marketing & Information [Chapter 7] 1. Make published information on Members‟ expenses etc. more visible and more accessible on the website and comparable to best international parliamentary services practice. 2. There needs to be a clear statement of the principles governing the Oireachtas social networking presence. It is recommended that the Oireachtas Service develops guidelines regarding the purpose, usage, and style for the Oireachtas social network presence, in order to maximise its benefits for the Houses and its Members while minimising any risks associated with social networking. Aligned with this is the need to have a clear statement on what are the Service‟s priorities and objectives regarding the Oireachtas website. 3. Ensure, in so far as is possible, that public information material on the roles and functions of the Oireachtas (including web based information, online games and films) is generic in order to minimize the cost of preparing new information material after each general and Seanad election or changes to Members‟ ministerial portfolios etc. 4. Avail of opportunities to extend partnerships with cross promotional events, where appropriate, and in keeping with the decorum and dignity of a national parliament. 5. Review and reissue the guidelines on the usage of the visual identity of the Houses and assign responsibility for the implementation of the guidelines across the Service to a member of staff of the‟ Information Services‟ area. 6. Promote greater awareness of, and compliance with obligations under the Official Languages Act in all communications activities. 7. There is a need to reduce the fluctuation of demand for tours as much as possible. A preliminary business process improvement (BPI) assessment is recommended in this regard, in order to make best use of resources; to minimise disruption to the work of the Houses; and to enhance the effective management of visitor numbers. 8. The potential to schedule more Oireachtas Education Programme school visits on Mondays and Fridays should be considered further to level out tour demand, to increase the number of students participating in tours and to respond more timely to school requests for tours. While this would lessen the experience of the Oireachtas for students, this is somewhat alleviated by the workshops on the work and procedures that are given to students as part of the Outreach Education Programme. Alternative experiences (audio visual, role playing exercises in the chambers and/or committee rooms etc.) could be developed for students visiting at non-sittings times.
Effectiveness [Chapter8] 1. Develop updated KPIs to measure the impact and outcome of Communications Strategies. A sample list of potential effectiveness KPIs is included in Chapter 9, Table 9.1, page 144 of this report. 2. See recommendations above regarding [Objectives Chapter 3] the need for achievable and measurable strategy objectives and [Media Chapter 6] the need for evidence based research to evaluate progress towards strategy goals.
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Future Performance Indicators [Chapter 9] 1. Develop KPIs for the Communications Strategy that address Strategy outcomes as well as outputs that are measurable and that can, in so far as is possible, be influenced by those implementing the strategy. A sample list of potential KPIs for the different elements of the Communications Strategy is included in Chapter 9, Table 9.1, page 144. 2. The KPIs should, in so far as is possible, feed into the achievement measures of the Service‟s high level strategic goals. 3. Surveys undertaken to evaluate progress towards strategy goals and objectives should be designed so that the results, in so far as is possible, are comparable with surveys of perception and understanding of comparable parliaments carried out in other jurisdictions.
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Chapter 2: Introduction
The Houses of the Oireachtas Service 2.1. The Houses of the Oireachtas Commission was established in January 2004 and recognised the right of the Oireachtas to determine priorities and manage its own budgets over 3-year periods. The Commission, on its establishment, assumed governance responsibility for the existing organisation of civil servants of the Office of the Houses of the Oireachtas.
2.2. The Office of the Houses of the Oireachtas was renamed as the Houses of the Oireachtas Service (“the Service”) with effect from 1 Jan 2010 under the provisions of the Houses of the Oireachtas Commission (Amendment Act) 2009. The function of the Service is to provide advice and support services to the Commission, to the Houses of the Oireachtas and their Committees and to Members of the Houses.
Communications Strategy 2007-2009 2.3. One of the key strategic objectives of the Houses of the Oireachtas Commission for the period 2005 to 2006 was to improve the public perception and understanding of the role of the Houses and its Members. A Committee consisting of Commission representatives and senior officials was established in late 2005 to review existing Communications policies and strategies.
2.4. Following a comprehensive audit of communications and public relations practices, surveys of major stakeholder groups, and a nationally representative opinion poll of citizens, consultants produced a report to provide the basis for an integrated communications strategy that would deliver clear, consistent and relevant information on the Houses of the Oireachtas and its Members.
2.5. The Commission approved the broad principles underpinning the strategy and agreed that an implementation plan should be prepared by the Service to include prioritisation and sequencing of actions and resourcing and cost implications.
2.6. The Communications Strategy was published in March 2007. The document set out a three year plan to transform the public perception and understanding of the role of the Houses and its Members. This goal was one of the key strategic objectives of the Commission‟s Strategic Plan 2007-2009.
Table 1.1 shows the expenditure incurred by the Communications Unit in implementing the strategy plan 2007-2010.
Table 1.1 Communications Unit’s Expenditure 2007-2010 and as % of Commission’s Outturn Year Pay Non Pay Total Commission % of Outturn Outturn 2010 €0.566m €.0292m €0.858m €107.238m 0.80% 2009 €0.623m €0.890m €1.513m €123.206m 1.23% 2008 €0.433m €0.685m €1.118m €122.769m 0.91% 2007 €0.117m €0.281m €0.398m €113.868m 0.35%
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Value for Money and Policy Review Initiative 2.7. The Value for Money and Policy Review (VFM) initiative is part of a framework introduced by Government to achieve better value for money from public expenditure and to provide greater accountability. Implemented by the Service on the basis of best practice in public service, this review was undertaken under the aegis of a Steering Committee. The review was conducted in accordance with the Department of Finance‟s VFM Guidance Manual.
2.8. The Value for Money and Policy Review of the Communication Unit is taking place within the context of the Secretary General‟s responsibilities under section 16(1) (e) of the Houses of the Oireachtas Commission Act 2003 (as amended in 2006 and in 2009), to ensure that the relevant provision of the 1993 Comptroller and Auditor General Act are met.
2.9. Under this provision, the Secretary General must be able to give evidence on the economy and efficiency of the use of resources and that the Houses of the Oireachtas Service has systems, procedures and practices in place to be able to evaluate its own effectiveness.
2.10. The Service‟s VFM review programme was agreed by the Management Advisory Committee on 1 November 2010 and included a VFM and Policy Review of the Communications Strategy and Implementation Plan 2007-2009, with due consideration to the current Communications Strategy for 2010-1012.
Overall Objective of the Review 2.11. The main objective of the Review of the Communications Strategy & Implementation Plan 2007-2009 are as follows: To identify the Strategy objectives and examine the validity of the objectives and their compatibility with the overall strategy of the Houses of the Oireachtas Service. To determine that the Communications Strategy outputs and outcomes are being achieved and determine the impact of the Strategy outcomes. To determine that the Strategy is being delivered in the most economic, efficient, and effective way. To determine the continued relevance of a communications strategy for the Commission. To inform future policy decisions and alternative policy or organisational approaches regarding communications strategy.
Terms of Reference 2.12. The Terms of Reference for the Review of the Communications Strategy 2007-2009 are as follows:
1. Identify the Communications Strategy 2007-2009 objectives. 2. Examine the current validity of those objectives and their compatibility with the overall strategy of the Houses of the Oireachtas Service.
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3. Define the outputs associated with the Communications Strategy and identify the level and trend of those outputs. 4. Examine the extent that the Communications Strategy objectives have been achieved, and comment on the effectiveness with which they have been achieved. 5. Identify the level and trend of costs and staffing resources associated with the Communications Strategy and thus comment on the efficiency with which it has achieved its objectives. 6. Evaluate the degree to which the objectives warrant the allocation of public funding on a current and on an on-going basis and examine the scope for alternative policy or organisational approaches to achieving these objectives on a more efficient and/or effective basis (e.g. through international comparison.) 7. Specify potential future performance indicators that might be used to better monitor the progress and impact of the Communications Strategy.
Scope and Boundaries of the Review 2.13. The scope included a review of the delivery, progress and impact of the Houses of the Oireachtas Commission‟s Communications Strategy 2007-2009 in the context of the objectives, tasks and key outcomes set out in the Strategy and in the context of Houses of the Oireachtas Service‟s overall strategic vision, values, strategies and actions.
2.14. While the current Communications Strategy 2010-2012 is not the object of the VFM review, consideration of the current strategy was included in the review for completeness.
Period under Review 2.15 The VFM and Policy Review covered the implementation period of the Communications Strategy 2007-2009 with due regard to the 2010-2011 period for the implementation of the current Communications Strategy 2010-2012.
Financial 2.16. The review covered all expenditure from the Houses of the Oireachtas Commission financial allocations.
Steering Committee 2.17. The Steering Committee was the primary driver for the VFM Review and was delegated decision making powers from the MAC. The Steering Committee determined: The terms of reference of the review the precise scope and boundaries of the review; the subsidiary requirements of the review, for example, consideration of the horizontal principals of Quality Customer Service; the commencement and finish date for the review; the appropriate milestones, review plan and deadlines of the review.
2.18. The Steering Committee and comprising the following: 1. Mark Mulqueen: Head of Communications 2. Derek Dignam PO : Chair Jan-June 2011
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3. Clíona O‟Rourke PO : Chair Oct- April 2012 4. Declan Bale: Lead Evaluator
Evaluation Framework 2.19. The Programme Logic Model was used as the evaluation model for this review. It is the evaluation framework considered most useful by the Central Expenditure Evaluation Unit of the Department of Public Expenditure & Reform for VFM reviews. The Model is also sometimes referred to as the “Input-Output Model”.
2.20. This approach enabled the Communications Strategy to be analysed in terms of inputs, activities, outputs and outcomes that are arranged to achieve specific strategic objectives. The Communications Strategy and Implementation Plan 2007-2009 had clearly stated tasks and outcomes to be achieved over the period of the plan.
2.21. Table 1.2 on the following pages shows the Application of Programme Logic Model (PLM) to the Communications Strategy 2007-2010.
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Table 1.2 Application of the Programme Logic Model (PLM) to the Communications Strategy and Implementation Plan 2007-2009
Service Strategy Commitment: Promote Public Understanding of the Work of Parliament Inputs Activities Outputs Outcomes Overall Strategy Impacts ♦Financial allocation Appointment of ♦Communications ♦Effective and integrated communications programme. ♦Staff resources Director of Strategy Implemented ♦Best practice communications model, benchmarked. ♦Support Services Communications and Monitored and ♦Transformed view of the Houses of the Oireachtas and the activities and role of its Members. Press Officers. Evaluated. ♦Greater public understanding and appreciation of the work of the Oireachtas. Input Indicators ♦No. and level of staff Activity Areas: Output Indicators Outcome Indicators: ♦Pay Costs ♦Education ♦Director Appointed ♦ Specified Strategy Outcomes Tasks Achieved. ♦Non Pay costs ♦Marketing and ♦Press Offices ♦ 2010 public poll findings compared against 2005 public poll findings. ♦Consultancy Costs Information recruited ♦ Outreach School Programme Feedback and Evaluation. ♦Media/Press Office ♦No. of Strategy Plan ♦ International comparison with other Parliaments. tasks implemented ♦ Comparison with similar organisations’ communications strategies. Inputs Activities Outputs Outcomes Education: Impacts Outreach Schools Outreach Schools Outreach Schools Outreach Schools Programme Programme Programme Programme ♦Schools participating in Outreach Programme. ♦Financial allocation to ♦Recruiting and ♦Advisory Group ♦School having new resources. Programme Training of Outreach established. ♦Young voters will have a deep and lasting understanding of the functions of the Houses. ♦Staff Resources Officers ♦Outreach Officers ♦ Setting up recruited and trained Outcome Indicators: Input Indicators Educational Advisory ♦Programme ♦Schools evaluation and level of satisfaction with Outreach Programme. ♦Programme Pay Group. developed, advertised ♦Cost per student Costs ♦Producing Outreach and rolled out. ♦Number taking Democracy Action in the CSPE ♦Programme Non Pay educational material ♦Education material ♦Members’ level of satisfaction with Schools Outreach Programme. Costs ♦Targeting, managing, produced ♦Comparison with other organisations and parliaments. ♦Administration Costs monitoring and ♦ Material design and evaluating Outreach Output Indicators production costs programme ♦No. of schools participating ♦No. of pupils
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Inputs Activities Outputs Outcomes Marketing and Impacts Information: (1) Branding of Branding of Service ♦Visual Identify ♦Oireachtas will have a cohesive visual identity Service ♦Tendering for established. ♦Quality, consistent and accessible information material. ♦Financial allocation branding expert and ♦Information material ♦Greater public understanding and appreciation of the work of the Houses. ♦Staff Resources report. improved, consistent ♦ Setting up marketing and accessible. and information Output Indicators Input Indicators structure across ♦Branding report Outcome Indicators: ♦No. and level of staff Houses produced and applied. ♦ Communications Marketing & Information Strategy Plan Outcomes Achieved ♦Pay Costs ♦Rolling out of ♦No. of marketing and ♦ 2010 public poll findings compared against 2005 public poll findings. ♦Non-Pay Costs marketing and information material ♦Comparison with other organisations and parliaments • Consultancy Costs information programme produced and ♦Cost per Oireachtas event visitor • Design Costs and materials. disseminated. • Event Costs ♦ Organising ♦No of information • Other Oireachtas events requests ♦No. of events /attending (2) Website Website Website Website ♦Financial allocation ♦Developing ♦General/Media ♦New general/media information area on Website ♦Staff Resources communications/media Information area on ♦Quality and accessible information material. website pages for website ♦Greater public understanding and appreciation of the work of the Oireachtas public visitors to Output Indicators Input Indicators website. ♦Website redeveloped Outcome Indicators: ♦Non pay costs ♦No. of views of ♦Level of usefulness of website • Website Costs general information ♦Levels of usage of website • Consultancy Costs webpage. ♦ 2010 public poll findings compared against 2005 public poll findings. • Other (3) Visitor Visitor Programme Visitor Programme Visitor Programme Programme ♦Organise Training for ♦Visitor Programme ♦A revitalised Visitors’ Programme ♦Financial allocation Visitor Programme. revitalised. ♦Greater public understanding and appreciation of the work of the Oireachtas ♦Staff Resources ♦ Develop visitors ♦More open and people friendly public face of the Houses of the Oireachtas. material and Output Indicators Input Indicators information ♦No. of visitors Outcome Indicators: ♦No. and level of staff ♦ Visitor material ♦Visitors’ feedback and level of satisfaction with Visitors Programme ♦Pay/ Non-Pay Costs ♦ Tour Guide Training ♦ 2010 public poll findings compared against 2005 public poll findings.
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Inputs Activities Outputs Outcomes Media/ Press Office Impacts (1) Media/Press Office Media/Press Office Media/Press Office Media/Press Office
♦Financial allocation ♦Extending Media ♦Enhanced coverage in ♦Enhanced coverage of the work of the Members in the Oireachtas in a wide range of media outlets and ♦Staff Resources relationships. a wide range of media particularly of Committee work. ♦Implementing Media outlets. ♦Improved media relationships Input Indicators Programme. ♦Enhanced public perception of Oireachtas Members. ♦No. and level of staff ♦Handling Oireachtas Output Indicators ♦Pay Costs media stories ♦ No of media strategy Outcome Indicators: ♦Non-Pay Costs ♦Responding to media tasks completed. ♦Press Gallery level of satisfaction with communications service delivery. •Media management of and public queries. ♦ No. of media requests ♦ Members’ level of satisfaction with Communications Unit. events costs. ♦ Issuing Press ♦ No. of articles. ♦Feedback on Oireachtas Week •Media monitoring costs Releases ♦ No. of media reports ♦ 2010 public poll findings compared against 2005 public poll findings. •Advertising costs ♦Organising media ♦ No. of media ♦Comparison with other organisations and parliaments •Design & Printing costs briefing/ media events responses issued. Other ♦Logging, monitoring ♦No. of Press and evaluating of media Releases. coverage. (2) Committee Press Committee POs Committee POs. Committee Press Officers. Officers (POs). ♦Recruiting POs. ♦Enhanced coverage of ♦Enhanced coverage of the work of the Committees in a wide range of media outlets. ♦Financial allocation ♦Providing services to Committee work ♦Improved media relationships ♦Staff Resources Committees. ♦Enhanced public perception of Oireachtas Members. ♦Developing Committee Output Indicators Input Indicators Communications Plans. ♦No. of Committee Outcome Indicators: ♦No. of Committee POs Press Releases. ♦Media level of satisfaction with service provided in communicating work of committees. recruited. ♦No. of Committee ♦Members’ level of satisfaction with Communications Unit. ♦Pay Costs media events. ♦ 2010 public poll findings compared against 2005 public poll findings. ♦Contract costs ♦ Committee ♦Comparison with other organisations and parliaments ♦Non-Pay Costs Communications Plan. (3) Regional Media Regional Media Regional Media Regional Media ♦Recruiting regional ♦Enhanced coverage of the work of the Members in the Oireachtas in a wide range of regional media ♦Cost of regional correspondent ♦No. of featured outlets. correspondent ♦Providing articles to articles. regional media Outcome Indicators: ♦Logging, monitoring ♦No. of media reports in ♦Media level of satisfaction with regional media service and evaluating regional regional media outlets. ♦ 2010 public poll findings compared against 2005 public poll findings. media coverage.
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Chapter 3: Objectives and Validity
3.1 This chapter addresses two of the reviews Terms of Reference, namely
Identify the Communications Strategy 2007-2009 objectives with due regard to the current Communications Plan 2010/2012.
Examine the current validity of those objectives and their compatibility with the overall strategy of the Houses of the Oireachtas Commission.
Introduction 3.2 One of the key strategic objectives of the new Houses of the Oireachtas Commission, established in 2004, was to improve the public perception and understanding of the role of the Houses and their Members. This was reinforced by the high level commitment made in the Commission‟s Strategic Plan for the three year period 2007-20097 to promote the work and tradition of our parliament and provide information and opportunities for engagement to the Irish people.
3.3 In this chapter, the objectives of the communications strategy are identified and the continued validity of those objectives and their compatibility with the overall strategy of the Houses of the Oireachtas Commission are examined.
3.4 This chapter also considers the Commission‟s current communications plan8 in the context of any developments regarding the longer-term communications strategy objectives of the Commission and any changes to the approach to the implementation of a communications strategy for the Commission.
Context of Objectives 3.5 The years covered by the Communications Strategy 2007-2009 and the current Communications Strategy 2010-2012 were periods of significant political, social and economic change. These changes, nationally and internationally, might be expected to impact on public perception of national parliaments. There is no doubt that public trust in national parliaments has been badly shaken during the 2007-2010 period9.
Identifying Objectives 3.6 The VFM Steering Group has identified the Communications Strategy‟s 2007-2009 high level strategic goals and key outcomes across the three pillars of the strategy, education,
7 Excellent Service- Enabling a World Class Parliament, Houses of the Oireachtas Commission Strategic Plan 2007-2009. 8 Communications Plan 2010/2012 - Building confidence and trust through better communications. 9 9 9 Roth F, Centre for European Studies, The Eurozone Crisis and its Effects on Citizens’ Trust in National Parliaments, (Dec 2010). 9 Boyle Richard, IPA, Chapter 5, Research Paper No 6, Public Sector Trends 2011, based on Eurobarometer ‘twice yearly measures of confidence in the national parliament (Nov 2011).
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy media and marketing and information. Allied to this, the Steering Group has identified the strategic deliverables designed to drive the implementation of the Communications Plan.
High Level Goals 3.7 The objectives of the Commission‟s Communications Strategies are explicitly started in the published Communications Strategy 2007-2009 and the Communications Strategy Plan for 2010 to 2012.
3.8 The Communications Strategy 2007-2009 focused on the overarching goal of transforming the public perception and understanding of the role of the Houses and its Members and on the following objectives: To implement an integrated communications strategy that will deliver clear, consistent and relevant information on the Houses of the Oireachtas and its Members. To achieve a best practice and innovative communications model that is a benchmark for other parliaments internationally.
3.9 Following a consultation process with Members and other stakeholders, the current Communications Plan 2010/2012 moved away from a focus on promoting parliament to the new high level objective of a more fundamental use of communications to build confidence in the Houses and its Members.
Specific Outcomes 3.10 Both the 2007/2009 plan and the 2010/2012 plan have specified outcomes to be achieved over the period of the respective plans.
Communications Strategy & Plan 2007-2009 3.11 The strategic outcomes in the 2007/2009 plan are linked to the three pillars of the Communications Strategy, namely education, media, and marketing and information.
3.12 The overall outcome is to implement a highly effective and integrated communications programme energetically and with measurable results in terms of public understanding and appreciation of the work of the Oireachtas and; to have a best practice and innovative communications model that is a benchmark for other parliaments internationally.
3.13 The specific outcomes for the three pillars of the strategy, education, media and marketing are as follows:
Education Outcome 3.14 At the end of the three year period, „230 schools and over 20,000 second level students should have participated in the programme. All primary and secondary schools will have new resource materials including workbooks, fact sheets and DVDs‟.
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Media Outcome 3.15 At the end of the three year period, „media relationships will have dramatically improved, with enhanced coverage of the work of Members in the Oireachtas in a wide range of media outlets and particularly of Committee work‟.
Marketing and Information Outcome 3.16 By the end of the first year, „the Oireachtas will have a cohesive visual identity, the visitor programme will have been revitalised and enhanced and the quality of materials will be improving‟.
3.17 By the end of the third year, „ the visual identity will be fully established opposite all audiences, information materials will be highly professional and accessible to their audiences and the website will have a general information area just as valuable to its audience as the technical and information aspects are at the moment‟.
Communications Plan 2010/2012 Strategic Aims 3.18 The following strategic aims in the 2010/2012 plan were designed to underpin the overarching objective of a more fundamental use of communications to build confidence in the Houses are its Members:
The functions of the Houses and the role and responsibilities of Members will be communicated using clear and easy to understand language; Every member of the public will have opportunities to engage with the Houses of the Oireachtas; Unfair and ill-informed media coverage of the Houses of the Oireachtas will be robustly challenged; Information will be provided in an open and transparent fashion; The public experience of Leinster House through its guided tours will be engaging and targeted; The public and Members will have on-going two-way communication through social media and public events.
Strategic Deliverables 3.19 Both strategies identify specific tasks, initiatives and measurable impacts that are to be achieved over the period of the respective communications plans.
Communications Strategy & Plan 2007-2009 3.20 The following strategic deliverables were developed to drive the implementation of the 2007-2009 communications plan. The deliverables are as follows:
There will be a dramatic improvement in press coverage of both Houses of the Oireachtas and of their individual Members within three years. There should be enhanced coverage of Oireachtas committees, a weekly column in regional and local press and a reduction in traditional reporting of official travel and other issues;
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
By the time of the election to the 31st Dáil some 40,000 young voters will have received an education about the workings of the Oireachtas which has not been available to any generation before – 20,000 in the first phase of the programme; The public face of the Houses of the Oireachtas will be transformed, making it more open and people-friendly and giving the public a rightful sense of ownership of the institution; The vast majority of the population should know and appreciate what a TD or Senator does. We believe that significant improvements can be made to change the existing level of understanding from 42% to 75% at the end of this three-year programme. These outcomes will combine to enhance greatly the public respect for the Oireachtas and its Members.
Communications Plan 2010/2012 3.21 Strategic deliverables are identified in the 2010/2012 Communication Plan across areas of the plan: Media, Information, Outreach, Access and Public Events and Using Technology for Communications.
3.22 The prioritising of new, direct communications is identified as being paramount to achieving new and improved results. Building new media platforms (social media, on-line, etc.) for greater dialogue between the public, the national Parliament and its Members is seem as an important longer term means of dealing with „the current low levels of esteem, trust and understanding‟.
3.33 Better and more robust engagement with the traditional media is proposed in the plan and the plan identifies the challenges, and the required the steps and actions that need to be taken to achieve this more active engagement.
Validity of Communications Strategy Objectives 3.34 Providing information in respect of the Parliament is an essential element of parliamentary democracy. The public have a right to be informed of the work of their parliament and to have access to information about the Houses of the Oireachtas.
3.35 The stated rationale of the Communications Strategy 2007- 2009 is to support the key strategic objective of the Commission‟s Strategy Plan 2005-2006 „to improve public perception and understanding of the Houses of the Oireachtas and its Members‟.
3.36 The Commission‟s Strategy Plan for 2007-2009 had „promoting parliament‟ as a key objective.
3.37 Although „promoting parliament‟ is no longer a stated goal of the current Strategy Plan 2010-2012, the Communications Strategy is compatible with the Mission Statement of the Commission „ to serve the democratic interests of our main stakeholders, the Irish people, by serving parliament through:
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
enabling the Houses, their Committees and their Members to do their parliamentary business, and meeting Members‟ needs as public representatives in the conduct of parliamentary business.
3.38 The Communications Strategy is also compatible with the Commission‟s vision to have „a World-Class Parliamentary Service‟. International Parliaments and Assemblies examined as part of the review have strategies in place to increase citizens‟ understanding of the work of parliament and/or to increase citizen engagement and participation with the democratic process.
3.39 The Communications Strategy objectives of improving public understanding of the work of the Houses and of promoting parliament are also valid in supporting public accountability and openness of parliament.
3.40 A new Communications Strategy for the Houses of the Oireachtas Commission is currently at an advanced stage of development. It is intended that the strategy will focus on the overarching goals to improve public perception of the national parliament and to increase understanding of the Houses of the Oireachtas and its Members.
3.41 It is proposed to have three core objectives that will be achieved through a series of strategies. These objectives are as follows: To provide accurate and timely information about the Houses of the Oireachtas to the media. To improve public access to and engagement with the Houses of the Oireachtas and its Members. To communicate the functions and work of the Houses of the Oireachtas to a wide range of stakeholders.
3.42 The achievement of these objectives will be benchmarked and supported by a national and local media strategy and a more active social media and web strategy integrated with existing media and communications strategies.
Conclusions 3.43 The Steering Group found that Communications Strategy objectives are valid. They are consistent, compatible and mutually supportive of the strategic objectives of the Houses of the Oireachtas Service, its stated mission and vision and to the principles of parliamentary democracy.
3.44 The objective of transforming public perception was considered to be an ambitious goal of the Communications Strategy 2007-2009 that were not fully attainable within the three year period of the 2007-2009 strategy and was not within the direct and sole influence of the Communications Unit. This was acknowledged in the 2010-2012 communications strategy with a move away from a focus on transforming public perception to a more toned down attainable Page | 28
VFM and Policy Review of the Houses of the Oireachtas Communications Strategy high level objective of a more fundamental use of communications to build confidence in the Houses and its Members
3.45 Research and analysis conducted as part of this review indicate that external factors that are outside the control of the Communications Unit make it impossible to isolate, measure and evaluate the impact the Communications Strategy 2007-2009 has made, to the high level goal of transforming public perception and of building confidence in the Houses the Oireachtas and its Members .
3.46 The research also supports the conclusion that there is confusion about the difference between parliament and government and the very distinct function of each. Any measures of public perception of parliament will inevitably be influenced by, and include a measure of public perception of government.
3.47 The objective of the Communications Strategy for 2010-2012 of “increasing public understanding of the role of the Houses of the Oireachtas and its Members” is a goal that is more amenable to measurement.
Recommendations In the context of the development of future Communications Strategies for the Oireachtas, ensure that high level Strategy goals are attainable in the strategy period and that the achievement of desired outcomes strategies can, in so far as is possible, be influenced and/or controlled by the Communications Unit and can be measured and evaluated.
The Communications Unit has already moved in this direction in its Communication‟s Strategy objectives for 2010-2012 and in the development of new communications strategy objectives for 2012-2014.
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Chapter 4: Inputs Introduction 4.1. This chapter addresses item 5 of the Terms of Reference, namely;
Identify the level and trend of costs and staffing resources associated with the Communications Strategy and thus comment on the efficiency with which it has achieved its objectives.
4.2. To evaluate the efficiency and economy of the Communications Strategy the following was considered in respect of inputs:
. The cost of the resource inputs, including staff costs for 2007-2010 . The quality and mix of the inputs
4.3. Data on expenditure was extracted from the Service‟s financial management system, Integra. Integra reports expenditure figures on a cash accounting basis. The system allows for the allocating of costs against specific sections of the Houses of the Oireachtas Service, including the Communications Unit. It also allows for the allocation of costs to project within cost centres.
4.4. The Communications Strategy inputs include the following: . Annual Budget Allocation to the Communications Unit. . Permanent staff resources and costs, including imputed pension costs plus associated employers‟ PRSI contribution. . Overheads that encompass costs for accommodation, utilities, support and back office staff, training, travel etc. . Contract staff costs. . Outsourced goods and services – these costs are included in the annual financial allocation and include the following: Events Design and Print Outreach Education Programme Contract Staff Strategy Consultancy Media Services, including regional press and radio correspondents Website Redevelopment Other Goods and Services
4.5. The costs assigned to the Communications Unit by Integra do not include the costs of centrally provided administrative support services. These costs are estimated later in this report, based on Department of Public Expenditure & Reform (D/PER) guidelines, with a view to establishing the full costs of implementing the Communications Strategy.
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
4.6. The effects of price inflation and pay awards were taken into account when calculating value for money gains in order to compare prices on a like-for-like basis.
4.7. The Consumer Price Index was used to bring non-pay historical costs to 2010 prices and the Central Statistics Office (CSO) „Average Earning for Civil Service Sector‟ table was used to bring pay costs to 2010 levels.
Organisation Structure 4.9. The Deloitte and Touché10 report on the staffing numbers and grades in the Houses of the Oireachtas, commissioned in preparation for the establishment in 2004 of the statutory Houses of the Oireachtas Commission, recommended „a new Deputy Director post, which consolidates the public facing functions of parliament under one manager.‟
4.10. The report envisaged that the new Deputy Director post would cover oversight of the following functions: Public Relations Broadcasting Freedom of Information Printing and Publications e-Democracy Joint Services Committee
4.11. It was not until 2011, when approval for the creation of a new Assistant Secretary post was received, that these functions were consolidated under one Assistant Secretary Area of responsibility, the Parliamentary Services Division.
4.12. Prior to 2011, communication type activities were not integrated. The responsibility for these activities was fragmented across three Directorates: 1. Houses Services Directorate 2. Corporate and Members Services Directorate 3. Houses Services Directorate.
Website activities were fragmented across all four Service Directorate areas (i.e. including Parliamentary Services Division)
See Table 4.1 below.
10 Houses of the Oireachtas International Benchmarking Review (IBR 2002) Page | 31
VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Table 4.1 Organisation Structure Function PO and Directorate PO and Division pre- 2010 2011 Public Relations Head of Communications PO Communications, Broadcasting Information and and Publications Communications Directorate Parliamentary Services Division Broadcasting PO Broadcasting and Public PO Communications, Broadcasting Information and Publications Information and Parliamentary Services Division Communications Directorate Freedom of Information PO Broadcasting and Public PO Library &Research Information Parliamentary Services Division Information and Communications Directorate Printing and Publications PO Members Services PO Communications, Broadcasting Corporate and Members and Publications Services Directorate Parliamentary Services Division e-Democracy PO House Services PO Communications, Broadcasting Houses Services Directorate and Publications Parliamentary Services Division Joint Services Committee. PO Members Services PO Committees Corporate and Members Parliamentary Services Division Services Directorate
4.13 Following changes to the organisation structure in 2011, responsibility for the Communications Unit, the website, printing, e-publications, broadcasting and the Print Unit are consolidated under one Principal Officer/Head of Communications. The e-Democracy function is now part of the Communications area.
4.14 The Communications Unit has been located in a number of different buildings separate from Leinster House during the period of the Communications Strategy. Ideally, the Communications Unit or its Press/Media Office should be located within Leister House where many of its activities are centred. There would better opportunity for more direct engagement with Members and political correspondents. It would also reduce the „no value added‟ time that staff spend travelling to and from their offices in Kildare Street to Leinster House. However, it is acknowledged that there are pressing demands on the limited space available within the Leinster House complex.
Staffing 4.15 A Head of Communications at PO level was recruited in 2008 to implement the Communications Plan 2007-2009. The Communications Unit was fully established during 2008 with the recruitment of two Press Liaison Officers and with the allocation of civil service staff to the Unit. Accordingly, the implementation of the three year Communication Plan did not effectively start until 2008 and continued into 2010.
4.16 The Strategy and Plan provided for: The appointment of a Head of Communications (PO pay scale) The recruitment/appointment of Education, Press and Information & Marketing Officers
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The recruitment of four Outreach Officers at Junior Clerk level The recruitment of two Committee Press Officers
4.17 The Plan was approved by the Commission on 29 March 2007 and the Commission was requested, in principle, to sanction an additional 9 posts required to implement the plan. This was in addition to the Head of Communications post which was previously sanctioned. The total indicative costs were €295,000 (excluding overheads and employers‟ PRSI costs) and a projected 3 year cost of €475,000. The individual posts to be drawn down on an incremental basis based on the staged deliverables outlined in the Plan.
4.18 The Management Committee also recommended that the existing Public Relations Officer post be re-designated as an established post at the appropriate level within the Communications Unit. The resource plan was approved by the Commission on 25 April 2007.
Table 4.2 Sanctioned Posts for newly structured Communications Unit 2007 PO2 AP1 HEO HEO/Press Outreach CO Total Liaison (EO) Officers 2007 1 3 1 HEO 2 4 2 13
4.19 The implementation of many of the staff changes recommended in the Communications Strategy Plan is evident in the increase of the staffing levels of the Communications Unit during the Plan period.
4.20 However, the four sanctioned Outreach Officer posts at Junior Clerk/EO level were not filled. Instead, following a pilot Outreach Education Programme, it was decided on a cost basis (especially high travel and subsistence costs) to recruit 13 regionally and locally based part- time Outreach Officers on a contract basis. The Outreach Officers were recruited on contract from November 2008 to May 2010 at a total cost, including travel and other expenses, of €0.287m.
4.21 The total cost of four Junior Clerks/EOs, excluding travel and subsistence (T&S) costs, which would have been substantial as the staff would have been based in Dublin, is estimated at €0.305m. Accordingly, the decision to recruit Outreach Officers on part-time contract was the right decision from the point of view of cost, both short term and longer term.
Table 4.3 Costing of Junior Clerk/EO Posts, excluding notional T&S cost Junior Clerk Annual Including Pay cost of 4 Senior clerks Mid-Point Overheads +20%* for the period 2008 (Nov-Dec) €40,678 €48,814 €32,543 2009 €40,678 €48,814 €195,256 2010 (Jan-May) €38,377 €46,052 €76,753 Total pay €304,552 *the lower rate used by the Service for serving staff
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
4.22 The recruited officers also had previous experience in delivering education programmes. It also gave the Communications Unit greater flexibility when the cost of the education programme had to be reduced significantly due to budgetary constraints after 2009. This was achieved by not renewing the Outreach Officers contracts and by using permanent staff of the Oireachtas to deliver the Education Programme in addition to their normal work duties.
4.23 The administrative staffing of the Communications Unit remained fairly constant during the 2008 to 2011 period.
4.24 The Communications Unit consisted of a Head of Communications at PO level and three Principal Clerks/Assistant Principals. Each of the APs had responsibility for a sub strategy of the Communications Strategy i.e. Education, Marketing & Information and Media/Press Office. Two Committee Press Officers support the Media/Press sub strategy. The APs are supported by administrative civil service staff. Table 4.5 below shows the staffing levels of the Communications Unit 2007-2011. The Education and Information & Marketing functions are now under one Principal Clerk resulting in a saving of one Principal Clerk post since 2011.
Table 4.5 Staffing of Communications Unit 2007-2011 PO2 AP1 HEO HEO Outreach CO Total, Press Officers excluding Liaison part-time Outreach Officers Officers 2007 0 1 1 0 0 1 3 2008 1 3 0.6 2 13 2 8.6 2009 1 3 0.6 2 13 2 8.6 2010 1 3 0.6 2 13 2 8.6 2011 1 2 0.6 2 13* 2 7.6 * Outreach Officers contracts ceased in May 2010.
4.25 The Head of Communications post (PO2 level) and the two Press Liaison Officers (HEO level) posts were recruited by competitions on a contract basis to deliver the communications strategy plan 2007-2009. Their contracts were extended to deliver the 2010- 2012 communications strategy plans. The 13 part-time Outreach Officers were recruited on a part-time basis following a competition that attracted over 400 applications. Their contracts ceased in May 2010 and were not renewed.
4.26 A part-time Oireachtas Correspondent was also engaged in 2007 for regional and local press at a cost of approximately €xxxxx per annum. This was supplemented in 2010 with the engagement on a part-time basis of a regional radio correspondent. The cost for 2010 was €xxxxx.
4.27 A survey of international parliaments' shows that the staffing levels of the Communications Unit during the review period was relatively low compared with other parliaments. However, the survey also reveals that the number of functions and levels of
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy activities of the Public Relations Offices of parliaments varied markedly from parliament to parliament. See Appendix 1: ECPRD Survey of Public Relation Offices in Parliaments.
Total Expenditure 2007-2010 4.28 The Communications Unit is 100% State funded. The entire unit‟s expenditure is deemed to be current expenditure and is reported on a cash accounting basis. The Communications Unit does not generate revenue for the Houses of the Oireachtas Service.
4.29 The total direct costs of implementation the Communications Strategy for the 2007 to 2010 period was €3.888m. The costs were relatively low when compared with other parliament. See Appendix 2: Comparison of Parliamentary Communications Budgets
4.30 The costs were a low proportion of the Service‟s expenditure. The costs for 2007-2010 are equivalent 0.7% of the Service‟s operating costs for the same period. For 2011, Communications Unit expenditure accounted for 0.5% of operating costs compared with 1% in 2009.
4.31 Communications Unit‟s expenditure increased by 281% between 2007 and 2009. However, the budget available to the Communications Unit to implement the Communications Strategy has fallen significantly since 2009. For each year of the 2007-2010 strategy and for subsequent years, the communications strategy has been delivered significantly below budget.
Table 4.6 Budget versus Spend variance 2007-2010 Non-Pay Budget Non-Pay Spend Variance Variance 000’s 000’s 000’s % 2007 783 281 502 -64% 2008 1,110 685 425 -38% 2009 1,840 890 950 -52% 2010 854 292 562 -66% Figures rounded to nearest €1,000
The variance in 2011 was minus 71% on a non-pay budget projection of €0.614m
4.32 The Unit‟s total expenditure ranged from a low of €0.397m in 2007 to a high of €1.513m in 2009.
Table 4.7 Total Expenditure 2007-2010 Pay Non Pay Total * €000’s €000’s €000’s 2007 117 281 397 2008 433 685 1,119 2009 623 890 1,513 2010 566 292 859 Total 1,739 2,148 3,888 *Figures rounded to nearest €1,000
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Total expenditure in 2011 was €0.716m (Pay €0.536m: Non-Pay €0.180m), which is less than half of 2009 expenditure
4.33 In 2010, the total expenditure of the Communications Unit was €0.859m. The 43% decrease in expenditure in 2010 is primarily due to civil service pay cuts, the cancellation of public events and the decision to deliver the education programme using in-house Service staff in place of contracted Outreach Officers.
4.44 Table 4.8 takes the effects of inflation and pay awards on expenditure into account in order to compare expenditure on a like-for-like basis.
Table 4.8 Actual Expenditure 2007-2010 Indexed to 2010 rates and prices* Pay Pay Actual Non Pay Actual Total Actual Total at at Non at Total at Total 2010 2010 Pay 2010 2010 Base Prices Rates Prices Rates Year Base and 2007=100 Year Prices 2007=100 €000’s €000’s €000’s €000’s €000’s €000’s 2007 117 117 281 276 397 393 100 100 2008 433 421 685 648 1,119 1,069 282 272 2009 623 594 890 881 1,513 1,475 381 376 2010 566 566 292 292 859 859 216 219 Total 1,739 1,698 2,148 2,097 3,888 3,796 Figures rounded to nearest €000‟s. Based on CSO CPI and CSO Civil Service Earning Tables and the CPI. The CSO methodology for estimating Civil Service Earning changed in 2008 to include Health Sector earnings. The CSO has now discontinued this measurement.
4.45 With negative CPI values in 2009 (-4.5%) and 2010 (-1%) and an average 4.7% decrease in Civil Service earnings in 2009, there was no significant variance between actual expenditure and spend adjusted to 2010 prices. See Table 4.8 above and Fig 4.1 below „Expenditure 2007-2010 and at 2010 prices‟
Fig 4.1 Expenditure 2007-2010 and at 2010 Prices
1600 1400 1200
1000 800
000's 600 € 400 200 0 2007 2008 2009 2010
Actual Spend Spend at 2010 prices
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4.46 Expenditure increased steadily between 2007 and 2009 and decreased sharply between 2009 and 2010. The expenditure levels reflect the roll out of the Communications Strategy Plan‟s staffing, activities and programmes across the implementation period, 2007-2009 and the reduced programme of activities in 2010.
4.47 Total spend decreased further by 17% to €0.716m in 2011.
Full Costs of the Communications Unit 4.48 The Service‟s financial system (Integra) captures „direct‟ expenditure from the Communications Unit financial allocation but does not currently apportion „indirect‟ costs i.e. administrative overhead and other „notional‟ costs.
4.49 It is estimated by D/PER11 that an addition of 40% to direct salary cost is required to recover overheads. This is a composite figure applicable to the generality of civil service situations and encompasses costs for accommodation, utilities, support and back-office staff, training, travel and so on.
4.50 Allowance is also made for pensions. The pension contribution is based on gross salary and not direct salary cost, because employers‟ PRSI is not reckonable for pension purposes. In general, the Guidelines recommend a further cost of the order of 25% of basic pay, excluding PRSI, as an appropriate additional charge.
This is set out in summary form in the table below: A Pay Direct pay [Integra] B Direct Salary Cost Pay + Employers PRSI C Total Salary Cost B + Imputed pensions cost (typically 25% of A) D Total Staff Cost C + 40% of A in respect of „overheads‟ Source: Department of Finance RIA Guidelines - Public Service Implementation Costs Table 4.9 shows the total staff costs of the Debates Office for 2001 to 2008.
Table 4.9 Communications Unit – Estimated Full Costs 2007-2010 Basic Pay plus Pension Total Over Overtime, Full Non Full Pay Employers Costs Salary Heads Gratuity Staff Pay Costs [A] PRSI 25% Costs 40% Costs [B] [C] [D]
€000’s €000’s €000’s €000’s €000’s €000’s €000’s €000’s €000’s 2007 105 117 26 143 57 0.5 201 281 482 2008 360 403 90 493 197 51 741 685 1,426 2009 557 592 139 731 292 32 1,055 890 1,945 2010 525 558 131 689 276 9 974 292 1,266 1,547 1,670 386 2,056 822 92.5 2,971 2,148 5,119
11 Department of Finance Regulatory Impact Analysis Guidelines - Public Service Implementation Costs (2005) Page | 37
VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
4.51 The full cost (direct expenditure and indirect costs) of implementing the Communications Strategy is estimated at over €5m ranging from a low of €0.482m in 2007 to a high of €1.426m in 2009.
Pay Expenditure 4.52 Expenditure is broken down into pay and non-pay. Figure 4.2 and Table 4.10 show the breakdown for 2007 to 2010.
4.53 Pay costs amounted to €1.7m for the 2007 to 2010 period. This represented almost 45% of Communications Unit‟s costs.
Fig 4.2 Percent Pay and Non Pay Costs 2007-2010
44.75% 55.25%
Pay Non Pay
4.54 Pay costs started to dominate Communications Unit‟s costs from 2010 after a sharp drop in non-pay spend in 2010. In 2011, pay accounted for 75% of spend. Table 4.10 below shows „pay as a percentage of total spend for 2007-2010.
Table 4.10 Pay as % of total costs 2007-2010 Total Pay as % of Total Pay Non Pay Expenditure Total 2007 €116,611 €280,674 €397,285 29% 2008 €433,439 €685,212 €1,118,651 38% 2009 €623,323 €889,951 €1,513,274 41% 2010 €566,442 €292,425 €858,867 66% Total €1,739,815 €2,148,262 €3,888,077 44.75% Per Cent 44.75% 55.25% 100% Source: Integra
4.55 Pay costs increased almost fourfold (€0.5m) between 2007 and 2009. Pay costs fell by 9% between 2009 and 2010. In 2011, pay costs fell by a further 5% to under €536,000.
Non Pay Expenditure 4.56 Non-pay costs amounted to €1.7m for the 2007 to 2010 period. This represents over 55% of the Communications Unit‟s expenditure. Communications Unit‟s costs were dominated
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy by non-pay costs for 2007, 2008 and 2009. However, non-pay costs fell below pay costs in 2010 following a 67% (€0.6m) drop in non-pay expenditure.
Fif 4.3 Pay and Non-Pay Costs 20027-2010
€1,000,000
€800,000
€600,000
€400,000
€200,000
€0 2007 2008 2009 2010 Pay Non Pay
4.57 The decrease in non-pay costs was achieved primarily by the cancellation of public events and by the delivery of the Outreach Education Programme by in-house staff of the Service instead of contracted part--time Outreach Officers. The savings achieved are examined in more detail in the chapters of this report dealing with the sub-strategies of the Communications Strategy.
4.58 Non-pay costs fell by a further 62% (€0.112m) to €180,000 in 2011.
Breakdown of Non Pay Expenditure 4.59 The total non-pay expenditure for the 2007 to 2010 period under review can be broken down as follows:
Events Design & Print Outreach Officers Strategy Consultants Media Website Redevelopment Other
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Table 4.11 Breakdown of Non-Pay 2007-2010 Consultants Outreach Strategy, 2007- Education Design Research Media & Website 2010 Events Officers & Print Training Press Redevelopment Costs €0.463m €0.359m €0.358m €0.209m €0.198m €0.192m % of non- pay 21% 17% 17% 10% 9% 9%
4.60 „Events‟ is the highest category of non-pay spend followed by „Outreach Education Officers‟ and „Design and Print‟. „Design & Print‟ costs were mainly incurred across the „Education‟ and „Marketing & Information‟ sub-strategies – it was not possible to allocate a breakdown of these costs to each sub-strategy or to individual projects.
4.61 While the Service‟s Integra financial system does have the facility to allocate costs to individual projects, this facility has not been successfully implemented across all the Service‟s cost centres, including the Communications Unit cost centre.
4.62 It was difficult and at times impossible to determine the budget, if any, that was allocated to certain individual activities and projects of the Communications Strategy and to determine the allocation of costs against budgets and the running total of project/programme budgets. Expenditure was often allocated to general project codes (e.g. consultancy, communications strategy) or to the wrong project code in Integra. The monitoring and control of some project/programme spend could have been stronger. A review of Integra codes for the Communications Unit is recommend in order to delete obsolete and inactive codes and in order to cost the various individual activities and projects of the Communications Unit.
4.63 The Service‟s project management guidelines issued in 2008 are currently being updated and, in consultation with the Finance Section, will include updated control of project/programme expenditure procedures for the whole Service.
4.64 “Other” costs over the four year period include films/DVD (€100,000), branding (€89,000) etc.
4.65 Over eighty suppliers provided goods and services to a value of over €2m to the Communications Unit over the four year period 2007-2010.
Table 4.12 Supplier Spend 2007-2010 Supplier Value 2007-2010 No. of Suppliers More than €100,000 2 More than €50,000 9 More than €25,000 9 More than €10,000 14 Less than €5,000 47
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4.66 The high number of suppliers suggests that a more strategic approach to the procurement of goods and services could have increased the potential to achieve savings e.g. aggregating demand and tendering.
4.67 63% of spend paid to suppliers on goods and services, valued at over €5,000, were procured under contracts put in place by the Communications Unit, the Oireachtas Print facility and central National Procurement Service (NPS) contracts. However, higher levels of procured contract spend on all goods and services could have been achieved during the strategy period.
4.68 After the first year of implementing the Communications Strategy, lessons were learned and more economic and efficient ways of implementing strategy actions were achieve, particularly in relation to the organising of public events e.g. scaling back of activities, reorganising the delivery of services, greater use of Oireachtas and public service in-house services.
4.69 Inputs are examined in more detail in the separate Chapter on each of the sub strategies of the Communications Strategy i.e. Education, Marketing & Information, and Media & Press with separate comments on the efficiency with which the objectives of the sub strategies have been achieved.
Conclusions 4.70 The Communications Strategy has been delivered within and significantly below budget.
4.71 The implementation of the Communication Plan 2007-22009 did not effectively start until 2008 when the Head of Communication and the Press Liaison Officer were recruited and staff was assigned to the newly established Communications Unit. Accordingly, the implementation of the three year plan continued into 2010.
4.72 A shift away from expensive activities (e.g. large Oireachtas events) and reorganised and reduced delivery of services (Education Programme) has helped to achieve lower expenditure.
4.73 A more strategic approach could have been adopted in the purchase of goods and services. There was a high level of non-contract spend for some categories of goods and services.
4.74 The monitoring and control of some project/programme spend could have been stronger
Recommendations 1. Strengthen project expenditure controls and recording of running total of project expenditure against project budgets. The Service‟s project management guidelines are
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
being updated to further improve project spend to project budget reporting mechanisms across the Service. 2. Ensure the continued use of National Procurement Framework agreements, where appropriate and beneficial, and ensure that the procurement of specialist services by the Communications Unit follows the Service‟s procurement guidelines.
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy
Chapter 5: Education Programme
Introduction 5.1 Chapters 5 and 6 and address the third and fourth Terms of Reference for the review, namely
Define the outputs associated with the Communications Strategy and identify the level and trend of those outputs. Examine the extent that the Communications Strategy objectives have been achieved, and comment on the effectiveness with which they have been achieved
5.2 The Communications Strategy was support by three sub-strategies – Education; Marketing & Information and Media/Press Office and a separate chapter is devoted to the outputs of each of the sub strategies and the achievement of their objectives.
Education Programme Objectives 5.3 The objective of the Education Programme 2007-2009 was to increase understanding of the role of elected representatives, the legislative functions of the Oireachtas and ultimately, voter participation‟12 by younger people.
5.4 The Education Programme was also developed as part of the creation of a parliamentary service comparable to best practices of parliamentary services worldwide.
5.5 The Education Programme supports a key Strategic Plan 2007 -2009 deliverable „to promote parliament‟ and to the Commission‟s Mission Statement „to promote public understanding of our parliament „
5.6 Promoting greater knowledge and perception of Parliament though the Education Programme is identified as an action in the Commission‟s Strategic Plan for 2010-2012. Greater focus is put in the Strategic Plan on „what is key to delivering quality public service in significantly changed and straitened economic times‟.
5.7 The Department of Education through its civil, social and political education (CSPE), Transition Year programme and Leaving Certificate Applied curriculum is also responding to the need to promote understanding and knowledge of the Oireachtas.
Background to the Education Programme 5.8 The Deloitte&Touche Benchmarking Review Report (2002) recommended the development of an Education Unit within the then Oireachtas Public Relations Office in line with international parliamentary service best practice.
12 Page 17, Commission’s Communications Strategy and Implementation Plan (March 2007) Page | 44
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5.9 The Commission‟s Communications Strategy and Plan 2007/2009 identified „an effective communications programme for students and teachers as essential to increasing understanding of the role of elected representatives, the legislative functions of Oireachtas and ultimately, voter participation‟13 .
5.10 The Communications Plan identified actions for a 2nd level school Education Programme, including: Appointing an Education Officer Establishing an Educational Advisory Group Recruiting and training Outreach Education Officers Developing and rolling out a Schools Education Programme Producing and disseminating new education material to all CSPE and to Primary Schools Achieving international best practice
5.11 The decision to bring the Education Programme out of Leinster House into the classroom was to avoid geographic and social disadvantage.
5.12 The Houses of the Oireachtas Education Outreach Programme was launched in October 2008 and commenced on 7 November 2008 following a pilot project in spring 2008. The programme was advertised and schools were invited to participate.
5.13 The programme was reviewed in 2010 following consultation with Members, the Department of Education and Skills, management and former Outreach Officers. It was decided to: Maintain the programme for those classes that intend using the Education Programme as part of their Civil, Social, and Political Education (CSPE) Action Project.14 Develop a programme for Transition Year and for the Community & Voluntary Sector. Ensure that the programme is properly administered and represents value for money.
5.14 Due to budgetary and resources constraints, it was decided subsequently not to extend the Education Programme to Transition Year students and to the Community & Voluntary Sector.
5.15 If the proposal to extend the CSPE subject to the Leaving Certificate is implemented, “Democracy” will become part of the points system and demand for the Oireachtas Education Programme should increase accordingly.
5.16 It was also decided that permanent staff of the Houses of the Oireachtas Service would deliver the Education Outreach Programme in place of contracted Outreach Officers, and that
13 Page 17, Commission’s Communications Strategy and Implementation Plan (March 2007) 14 CSPE Action Project accounts for 60% of the marks available for the Junior Certificate CSPE examination. The CSPE was made a mandatory junior cycle examination subject in 1997. Page | 45
VFM and Policy Review of the Houses of the Oireachtas Communications Strategy greater use would be made of the Leinster House facilities to deliver the education programme workshops.
5.16 The Oireachtas Education CSPE programme was delivered by permanent Oireachtas Service staff in addition to their normal duties to schools on a pilot basis at the end of 2010 and was mainstreamed in 2011.
Education Programme 2008-2010 5.17 A Principal Clerk (AP) was appointed as Education Officer in 2008 and attached to the Communications Unit.
5.18 The Commission‟s Communications Strategy had envisaged the recruitment of four full-time Outreach Education Officers, for Dublin, rest of Leinster, Munster and Connaught/Ulster. Following the pilot scheme during March to May 2008, travel and subsistence were identified as an area that could provide cost savings in the programme. For that reason, a decision was taken to organise the programme across thirteen smaller regions and to recruit Outreach Officers locally on a contract basis for each of the smaller regions. The Outreach Officers to be paid on the basis of each workshop that they presented to classes.
5.19 An invitation for proposals from interested parties attracted over 400 applications. People with teaching experience and a strong knowledge of Irish politics were sought for the positions. Thirteen Outreach Education Officers were recruited in 2008 to cover specific regions nationwide. They were engaged on a part-time 2-year contract basis and were contracted to deliver 50 classes to junior cycle student during the period of the agreement. The cohort of Outreach Officers included officers that could present the classes through Irish.
5.20 A fee of €500 was paid for the facilitation of each classroom programme to include advance preparation, follow up support and a half-day in-classroom session. It is not possible from available documentation or enquiries to determine the reason why the recommended fee of €300 was increased to €500 per facilitation (workshop). The recommended fee of €300 was used for the pilot programme in 2008. Following the pilot project the fee was increased to €500.
5.21 In March 2009, a general reduction of 8% in the fee was implemented pursuant to Government Decision S180/210/10/0964C regarding professional fees.
5.22 In 2010, there were changes made to work practices and the fee payable for each classroom facilitation was further reduced to €350 following a cut to the programme budget.
5.23 The Outreach Officers were entitled to claim travel costs based on predetermined travel rates and to claim for other expenses incurred.
5.24 The Outreach Officers telephoned schools, arranged to meet with the relevant CSPE teachers and agreed a programme to be covered based on the material and the level and ability
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy of the class. This was completed in advance of the morning workshops which typically lasted for 2.5 hours. The workshops were generally scheduled for Mondays and Fridays to ensure the availability of Members. Once the school was agreeable to the workshop the Outreach Officer notified the Communications Unit in the Houses of the Oireachtas Service and arrangements were put in place to notify Members of the Houses of the proposed workshop and also to arrange to issue the student packs to the school.
5.25 The contracts finished at the end of the 2009/2010 school year (i.e. 31 May 2010) and were not renewed following the introduction of revised Education Programme from October 2010.
Programme Inputs 2008-2010 5.26 Table 5.1 below show the direct cost of the Outreach Education Programme for 2008 to 2010. The most significant cost is in respect of the fees and allowances paid to the thirteen Outreach Officers.
5.27 In the final quarter of 2010, following a review of the programme, a pilot project was undertaken to train staff of the Oireachtas Service staff to deliver and facilitate the outreach education programme as a way of reducing costs. This pilot project was considered successful and the revised education programme was mainstreamed.
5.28 Since 2011, the Education Outreach Programme is delivered by staff from across the Oireachtas Service. They deliver a two hour presentation to classes who visit Leinster House and they also visit schools to deliver the workshops. There is no extra remuneration made to the staff who participate in the Outreach Programme. However, they are entitled to claim for travel and subsistence. Participating staff were paid just over €2,000 in total for travel and subsistence for Jan-June 2011.
Direct Costs 2008-2010 5.29 Total direct expenditure on the Education Programme totalled over €450,000 for the 2008-2010 period.
Table 5.1 Direct Expenditure on Outreach Education Programme 2008-2010 Outreach Officer Other, includes Total No. of Direct Fees and design, printing, students Cost, on expenses consultancy, average, excluding evaluation, per withholding tax training, student merchandise. ‘2008 €56,088 €36,156 €92,244.00 4,800 €19 (Nov-Dec) ‘2009 €182,564 €82,831 €265,395.00 8,228 €32 ‘2010 €48,508 €44,694 €93,202.00 7,064 €13 (Jan May) Total €287,160 €163,681 €450,841 20,092 €22 * Pilot Project from Oct-Dec 2010 to deliver programme to CSPE classes using permanent staff of the Houses of the Oireachtas in place of Outreach Officers on contract
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5.30 The direct cost on average per student for the 2008 to 2010 period is high at €22. The average cost per student ranged from a low of €13 in 2010 to a high of €32 in 2009. The cost of the Outreach Officers, excluding all „other‟ costs, works out at €14.29 on average per student.
Administration Costs 2008-2010 5.31 The Educational Programme is administered by permanent staff of the Communications Unit. Their tasks involved the coordination and management of the work of the Outreach Officers; co-ordinating the participation of Members of the Houses in the school programme; organising the training of Outreach Officers; production of educational material and managing the schools‟ visits to the Houses of the Oireachtas.
5.32 A database was developed „Outreach Meeting Tracker‟ to automate the administration of the Education Programme. The database allowed for the automatic generation of emails to Members notifying them of the workshops in their constituencies and notifying schools and the Outreach Officers of Members attending workshops. The database was also used to generate emails notifying courier services to deliver education material to participating schools. As a cost saving measure the cost of courier services to deliver material to schools has ceased.
Table 5.2 shows a breakdown of the administration costs and the administration cost per on average per student,
Table 5.2 Administration Costs 2008-2010 AP/Principle HEO/Senior CO Total Including No. of Cost Clerk Pay Clerk Pay Pay overheads Students per at 20% Student FTE* 60% 90% 60% 2.1 FTE ‘2008 €48,229 €48,118 €18,377 €114,724 €137,669 4,800 €29 ‘2009 €48,229 €48,118 €18,377 €114,724 €137,669 8,228 €24 ‘2010 €44,906 €45,184 €17,449 €107,539 €129,047 7,064 €18 Total €141,364 €141,420 €54,203 €336,987 €404,385 20,092 €20 *Full Time Equivalent. Pay based on mid-point of scale
5.33 The average administration cost per student for the 2008 to 2010 period is high at €20.
5.34 The total cost (direct and indirect costs) of the Education Programme for the 2008 to 2010 period was €0.855m. The cost per student on average was €42.
Table 5.3 Total Cost of Education Programme 2008-2010 Education 2007 2008 2009 2010 2007-2010 Programme €m €m €m €m €m Direct Costs - €0.092m €0.265m €0.093m €0.451m Indirect Costs - €0.138m €0.138m €0.129m €0.404m (administration) Total Costs - €0.230m 0.403m €0.222m €0.855m Service’s Operating - €153.984m €152.330m €137.001m €443.315m Costs* As % of Operating - 0.15% 0.26% 0.16% 0.19% Costs Figures rounded to nearest „000. *Source: Commission‟s Annual Accounts
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5.35 The total cost as a proportion of the Service‟s operating cost is very low - equivalent to almost 0.2% of the Service‟s Operating Cost for 2008 to 2010.
5.36 The parliamentary education budget was shown to be generally lower than other parliaments when compared in 2009, as follows: . Germany: €5.91m . UK: €1.68m . Scotland: €0.713m . Denmark €0.560m . Holland €0.150m
Revised Education Programme from October 2010 5.37 When putting a Communications Strategy in place for the 2010 to 2012 period, it was decided that any new education programme must maintain the existing level of accessibility whilst serving a wider public. The new strategy proposed that the education programme will be available in two formats designed to serve targeted groups.
1. School Outreach: serving CSPE and Transition Year students. 2. Community Outreach: serving all civil and community organisations.
5.38 The main changes to the new Education Programme format included: A smaller and more targeted approach - CSPE classes must first commit to taking politics as their Junior Cert CSPE Action Project, thus demonstrating a real commitment to learning about our parliamentary and political system. The new Outreach Programme to be delivered directly by Oireachtas staff when capacity exists within their core duties. More workshops to be delivered on-site in Leinster House using the AV Room and considerably less Outreach sessions will happen in the constituency. Where they are delivered in the school, the advance notice to Members will go from two to four weeks. A very limited Outreach service will be provided to both Transition Year Groups and Community groups from next year.
5.39 Following a pilot project during Oct-Dec 2010, the Education Programme was being delivered by 12 volunteer staff of the Houses of the Oireachtas Service were trained to deliver education workshops, in addition to their normal core Oireachtas duties. A core group of 8 were used on an on-going basis.
5.40 Since 2011, the Education Programme is made available on-site in Leinster House and off-site nationwide. Almost 70% of the school programmes workshops were delivered on-site in Leinster House for the first six months of the new education programme (Jan-June 2011). All outreach school visits were outside of Dublin.
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5.41 A new tour of the Houses of the Oireachtas is now provided to cater for students undertaking CSPE Action Projects and another has been designed for older teenagers who are on the cusp of reaching voting age.
5.42 The Community Outreach Programme will involve a two-hour workshop with the objective of explaining the way the Houses of the Oireachtas works and to place this in the context of the participating group‟s experience.
5.43 The delivery of Education Programme workshops used the equivalent of 30 working days of Oireachtas staff resources across various grades. About 70% of workshop programmes were delivered in Leinster House using permanent staff of the Oireachtas Service.
Table 5.4 Outreach Schools Programme Jan – June 2011 Staff Grade In Leinster House In Schools (half work days) (1 work day) 1 Principal Clerk 3 (1.5) 2 2 Principal Clerk 2 (1) 1 3 Principal Clerk 2 (1) 2 4 Principal Clerk 3 (1.5) 2 5 Senior Clerk 2 (1) 0 6 Junior Clerk 4 (2) 1 7 Junior Clerk 2 (1) 1 8 Clerical Officer 6 (3) 1 9 Clerical Officer 3 (1.5) 2 10 Senior Researcher 3 (1.5) 0 11 Parliamentary 2 (1) 2 Reporter 16 work days 14 work days
Cost Savings. 5.44 The value of maximising resources of staff from across the business areas to deliver the education workshops during the Jan to June 2011 period is estimated at about €7,000. See Table 5.5 below.
Table 5.5 Value of using Permanent Staff to deliver Education Programme Jan-June 2011 Jan – June 2011 Annual Pay Per Workday Equivalent Value (mid-point) Cost Work Days Principal Clerks €74,843 €305 12 €3,660 Senior Clerk €50,204 €205 1 €205 Junior Clerks €38,377 €157 5 €785 Clerical Officers €29,081 €119 7.5 €893 Senior Researcher €93,702 €378 1.5 €567 Parliamentary Reporter €47,813 €195 3 €585 Total - - 30 €6,695 Number of students - - - 1,056 Average Cost per - - - €6.34 student Travel Costs - - - €2,082 Average Cost per - - €8.31 student, incl travel * 245 workdays 2011
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5.45 Using in-house staff of the Oireachtas Service to deliver the workshops, including travel and excluding materials etc. works out, on average, at €8.31 per student compared with over €14.29 using part time contract Outreach Officers.
Administration Costs 2011 5.46 In 2011, the staff resources allocated to administer the Education Programme were significantly reduced. See Table 5.6 below.
Table 5.6 Estimated Administration Cost Full Year 2011 Grade 2011 2011 Pay Costs FTE (based on mid-point) Staff Principle Clerk 20% €14,969 Senior Clerk 50% €25,102 Clerical Officer 20% €5,816 Sub Total 0.9 FTE €45,887 Overheads @ 20% of basic pay - €9,377 Total Admin Costs - €55,064
5.47 The cost of the administration staff for 2011 was less than half the cost of administration staff for 2010. However, the number of students participating in the programme dropped significantly.
5.48 The total cost of delivering the Education Programme for Jan-June 2011 came to almost €72,000.
Table 5.7 Education Programme Costs 2011 (Jan-June) Costs Jan-June 2011 Staff Value €6,695 Administrative Costs €27,532 Material Costs €7,000 Travel and Subsistence €2,082 Other e.g. catering €1,101 Total €71,942 No. of Pupils 1,056 Cost per pupil €68
5.49 The number of students reached during this period was very low. The number dropped to just over 1,000 students during 2011, compared to 8,000 per year, on average, in previous years. Accordingly, the cost on average per student was very high at €68, notwithstanding that the administrative costs were halved and the cost of delivering the education workshops was significantly reduced i.e. an economies of scale issue.
5.50 The findings indicate that the Oireachtas does not have the capacity in the current climate of the moratorium of recruitment and incentivised early retirement schemes to achieve the levels of delivery of other parliaments where similar levels of voter understanding exists using the current model of delivery.
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Education Programme Outputs 5.51 The Communications Strategy Plan 2007 to 2009 identified tasks to be achieved in order to have an effective communications programme for students and teachers to increase understanding of the role of elected representatives and the legislative functions of Oireachtas.
5.52 Most of these tasks were completed during the period of the Strategy. See Table 5.8 below. Table 5.8 Communications Strategy Tasks 2007-2009 Areas of Focus Communications Strategy Tasks Status Education Establish Education Advisory Group Did not proceed Develop 2nd level schools programme Achieved Recruit and train Outreach Officers Achieved Roll out schools programme Achieved Advertise programme in national and regional press Achieved Produce and disseminate new education materials Achieved Set up system to target, manage, monitor and evaluate In place Schools Programme
5.53 The idea of an Education Advisory Group was originally recommended to allow for external opinions and ideas to be brought to the outreach programme. Numerous consultations were held with the National Coordinator for CSPE before the programme commenced. It was decided that following the appointment of 13 external experienced Outreach Officers, with each offering their own opinions, ideas and experience it was no longer required for an Education Advisory Group to be set up.
Number of Students and Workshops 5.54 The principal output attached to the Education Programme is the number of students participating in the programme. The strategy target of over 20,000 students participating in the programme over a three year period was achieved. However, in 2011, the number of students participating dropped significantly to just over 1,000 students from an average of 8,000 students per full year between 2008 and 2010.
5.55 Previously, Outreach Officers instigated the contact with schools to promote the programme. The Education Programme is now partially a demand led service with schools also contacting the Communications Unit directly to provide workshops.
5.56 Pupils completed classroom workshops within their own schools aimed at explaining the role of the Houses of the Oireachtas. The workshops were informed by the approach taken by other national parliaments and the need to connect with students participating in the Civil, Social and Political Education (CSPE) Junior Cycle programme.
5.57 The Oireachtas Education Programme reached about 12% of students taking the CSPE subject. See Table 4.9 below
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Table 5.9 No of Students participating and as % of all CSPE Students Total CSPE Students Total CSPE % of Total in Ireland Students reached 2008* 54,532 4,800* 9% 2009 54,071 8,228 15% 2010 54,769 7,064 13% Total 163,372 20,095 12% *Oireachtas Education CSPE Programme did not commence until late 2008, following pilot project
5.58 The holding of workshops in schools was restricted to the days that Members are available to participate in the workshops. Informal feedback from schools indicates that the participation of Members in the workshops is seen as a very important element of the education programme. See Figure 4.1 below
Figure 5.1 Number of Outreach days and Number of Workshops.
No. of Outreach Days and No. of Workshops
No. of Days No. of Workshops
70 60 50 40 30 20 10
0
Jan Apr Jan Apr
Nov Oct Nov
Feb Mar Feb Mar
Dec Dec
May May May
April
March
January
October
February
November December 2008 2009 2010 2011
5.59 Fig: 5.1 above shows a rapid rise and fall in the number of workshops delivered on outreach days over a two and a half year period. There was significant variance in the number of workshops delivered on any given month. The number of workshops delivered dropped significantly after May 2010, when the Outreach Offices contracts expired.
Workshop Workshops Ratio days 2008 17 82 1: 5 2009 66 318 1: 5 2010 53 170 1: 3 2011 23 26 1: 1 Totals 159 596
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5.60 In 2008 (part) and 2009 there was an average of five workshops presented for each day that Outreach Officers visited schools. This decreased to three workshops per day in 2010 and one workshop per day in 2011.
5.61 School workshops were generally scheduled for Mondays and Fridays of a school week i.e. non-sitting days of the Dáil. There are approximately 30 Fridays and 30 Mondays in a post primary school year, allowing for schools‟ discretionary days.
5.62 The annual total capacity was about 780 workshops per year based on 13 Outreach Officers presenting one workshop each Mondays and Fridays of the school year. Occasionally, workshops were also scheduled for Tuesday mornings and Thursday afternoons of sitting weeks.
5.63 Outreach Officers were recruited on the basis of delivering 50 workshops each over a two year period i.e. 650 workshops. 92% of anticipated workshops were delivered. Since the new format programme was rolled out after October 2010, the majority of class workshops are presented on-site in Leinster House as part of the wider Visitor Programme. Currently there is no dedicated visitor space within the Leinster House complex for student groups visiting the Houses.
5.64 School visits are generally organised for Tuesdays, Wednesdays and Thursdays of sitting weeks, with one school visit facilitated for each sitting day. The visits are planned for sitting days because Members are available to participate in the workshops or meet with the students and the students can experience the parliament in action by sitting in the public galleries of the Dáil and Seanad.
5.65 With between 90 and 100 sitting days in a parliamentary year, the current maximum capacity based on sitting days is 100 class visits bringing in approximately 3,000 students. In 2011, a total of over 1,000 students participated in the Education Programme both in-house and externally.
5.66 School visits are both demand led (e-mail or phone calls from schools) and strategically promoted. For example, the Education Unit recently issued a letter to 25 schools recently based on geographical spread and the period of time that had elapse since a class from the school visited the Oireachtas. However, promotion of the scheme is currently low and has to be tailored to the capacity to facilitate visits.
5.67 The Education Unit can facilitate the current level of requests from schools for visit to the Oireachtas. However, schools can expect to wait 3-4 months to visit.
5.68 There are two elements to a school visit to Leinster House (1) standard Oireachtas tour given by the Ushers (2) education workshops given by training Oireachtas Service staff.
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5.69 Oireachtas tours need to be booked 3 or 4 months in advance due to the high level of demand for tours emanating from Members. The Education Unit tends to book Oireachtas Tour slots in advance for school visit. However, a school visit can only proceed on a given sitting day if there is also a room available to present the education workshop to students.
5.70 The school visits are also dependent on the on-going flexibility of the trained volunteer staff of the Houses of the Oireachtas Service to give workshops within their standard working hours.
5.71 Currently, a training room in Kildare House is used to present class workshops. The Audio Visual Room in Leinster House is occasionally used but is not suited to workshop and role playing activities. A recent roll out of training on upgraded ICT programmes meant that for the 1st quarter of 2012 that the room was only available to the Education Unit on a Thursday, reducing the capacity to hold workshops to one a week instead of three.
5.72 The absence of a dedicated visitor space for school workshops, reduced staffing capacity to organise and present workshops, combined with competing demands for Oireachtas tours significantly restrict the number of requests from schools for on-site visits that can be promoted and facilitated and the speed with which they can be facilitated.
5.73 The potential to schedule more Oireachtas Education school visits on Mondays and Fridays should be considered further. While this may lessen the experience of the Oireachtas for students, this is somewhat alleviated by the workshops on the work and procedures that are given to students as part of the Outreach Education Programme. Alternative experiences (audio visual, role playing exercises in the chambers and/or committee rooms etc.) could be developed for students visiting at non-sittings times. This would also increase the potential to increase the number of students participating in the Outreach Education Programme and reduce the waiting period that schools currently experience when booking tours as part of the Outreach programme.
5.74 The Corporate Business Plan 2010-2012 includes an action to prepare a feasibility study on the short and long term options for a visitor area within the Leinster House complex of buildings.
Cost compared with Student Numbers and Workshops 5.75 Figure 5.2 below compares the cost of the education programme with the annual number of public and schools participating in the programme.
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Figure 5.2: Cost compared with number of Pupils and Schools.
Education Programme 2008-2010 Cost compared with no. of pupils and no. of schools 350
300
250
200 Expenditure
150 No. of Pupils No. of School
100 Base year 2008 = 100 2008 year Base 50
0 2008 2009 2010
5.76 While costs appear to have risen at a far quicker rate and disproportionately to the level of outputs in the chart above, this may be misleading. Because of cash based accounting rather than accrual accounting many of the non-pay start-up cost associated with the Education Programme, including the design and printing of material for the full three year programme, are attributed to 2009.
5.77 The fee paid to Outreach Officers was reduced in 2009 and again in 2010. The Outreach Officer contract ceased at the end of May 2010 contributing to the 65% reduction in costs. The number of pupils participating in the programme in 2010 fell by just 14%. In 2011, the number of public participating fell by 85% to just over 1,000 pupils.
5.78 The education programme never reached the stage where there was a direct correlation between the number of schools visited/ students participating and the annual cost of the programme.
Education Section on Oireachtas Website 5.79 As part of the redevelopment of the website, the Communications Unit developed an education area of the Oireachtas website. The area contains resources for teachers and students including educational online games, key speeches and debates, CSPE Teachers‟ Guides and Action Projects, information leaflets and a glossary of terms. The investment in developing a media, communications and education elements of the website is examined in more detail in Chapter 5 of this report.
5.80 Some online material and games are only available in the English language. The capacity to fulfil the Service‟s obligations under the Official Languages Act in the development of education material, both online and in hard copy needs to be reviewed.
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5.81 Best practice procedures for monitoring and updating of education material on the website also need strengthening to ensure that the material is constantly updated so that it remains current, particularly after general and election and any Ministerial portfolio changes.
5.82 The development of generic educational material on the role and functions of the Oireachtas (including web based material, games and films) would minimize the cost of preparing new education material after each general and Seanad election or a change of Minister or Ministerial portfolios.
Teacher and Student Packs 5.83 The education material was designed in consultation with the National CSPE co- ordinator, the Department of Education & Science and a number of other experts in the field. The high concept look of the pack comes from a conscious decision to try and duplicate the high quality media and products that young people are exposed to on a daily basis.
5.84 Feedback received, mainly from Outreach Officers, suggests slight adjustment to the pack may be required. Some suggestions in relation to this included:
Style and layout of the pack - content be more Oireachtas focused and include actual photographs of both houses. Improved posters (real photographs of both the Dáil and the Seanad). A poster outlining all the stages of a Bill. A word search. The look of the pack to be less childish. Include a one page outline of the information available on the website www.oireachtas.ie
5.85 It is noted that the Education Programme Packs for schools were not available in Irish. However, it is envisaged that education material will be made available in Irish.
5.86 There was a general VFM issue identified in Chapter 4 of this report regarding the potential for greater use of procurement contracts and tendering for the purchase of goods and services, including design and print services. This issue also applies to the design and printing cost of producing education material. However, there is now greater use of the in-house Oireachtas Printing Facility and framework agreements to produce educational material.
Comparable Parliaments.
Scottish Parliament 5.87 The Scottish Parliament Outreach Education Programme reaches about 9,000 students per year compared with 8,000 on average per full year for the Oireachtas programme during 2008-2010. In 2009/2010 academic year the Scottish programme reached 10,319 students over 389 sessions. The Outreach Education Programme reaches almost as many pupils per year as
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy the inward service that has five staff working part time across five days each week. Both programmes are very popular and generally oversubscribed.
5.88 There is a full time Outreach Education Manager. Her role is to plan the calendar of visits for the year, develop the sessions, collate evaluations and feed into the development process, and manage the three part time Outreach Education Officers.
5.89 The Outreach Officers carry out the majority of the actual delivery. They work three days a week, over 42 weeks (not over winter and summer recess). One Outreach Officer has to be able to deliver sessions in the Gaelic medium. The main purpose of their Outreach Programme is to get to the locations or schools that cannot get to the parliament building i.e. the islands, remote highland areas and hard to access mainland locations.
Northern Ireland Assembly 5.90 During the 2010/2011 academic year, 16,950 students from 560 school groups participated in the Northern Ireland Assembly‟s educations programme.
5.91 The external Outreach option was first introduced for the 2010/2011 academic year. About 10% of students participated in the Outreach programme.
5.92 The Education Programmes, whether inward or external, are delivered by Education Officers. Education Officers are trained and experienced teachers. The Education Officers are permanent staff and they deliver programmes in Parliament Buildings and at outreach events. The Educational Officers also oversee programme delivery and development, as well as a number of other curriculum-focused projects.
5.93 The only expense that stands apart from normal expenditure in relation to the Northern Ireland external Outreach groups is mileage. For the 2010/2011 academic year, the total cost of mileage was about £1,000 or £0.59 per student.
5.94 Pupils visiting at A level (ROI equivalent is Leaving Cert) meet with MLAs and a Committee Clerk as standard (in addition to receiving a presentation). The Education Service liaises with political parties and MLAs to organise this. Generally speaking, students below A level do not meet with MLAs. The facility exists for them to do this, but it involves the group securing sponsorship from the MLA(s) that they want to meet. For external outreach workshops and with permission of the school involved, MLAs are notified of these events. It is up to the MLA to decide if they wish to attend.
5.95 The inward and external outreach visits are considered to be separate elements of the Education Service programme. Therefore, groups are more than welcome to have both an internal and external visit as each contains different content.
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Effectiveness of Education Programme
5.96 Effectiveness is the extent to which outputs achieve objectives or policy aims15.The aim of the Education Programme is stated cleared in the Communications Strategy i.e.‟ to have an effective communications programme for students and teachers to increase understanding of the role of elected representatives, the legislative functions of Oireachtas and ultimately, voter participation.„
5.97 Currently, the KPI for the Education Programme measures the number of pupils and number of classes. The Education Unit provides survey forms to Members and teachers to assess their levels of satisfaction with the programme.
Feedback from Members 5.98 Members are invited by the Communications Unit to participate in the workshop in schools in their constituency areas. 79% of Members (TDs and Senators) participated in the workshops during the 2007 to 2010 period. The Members‟ role at school workshops is to represent the Houses of the Oireachtas and to explain its working and relevance.
5.99 An issue arose about the best use of Members‟ time with regard to the Education Programme. For example, when the full cohort of public representatives (TDs and Senators) in a constituency responds to the invitation to participate in a workshop, there could conceivably be up to 7 or 8 Members at workshops. The average attendance at workshops tended to be 2 Members, with an average of up to 5 Members participating in workshops in some constituencies.
5.100 In July 2009, the Head of Communications wrote to all Oireachtas Members with a briefing note on the Outreach Education Programme. The briefing included a survey form for Members to complete. The response rate was relatively low and accordingly, the results, while considered valid, should be considered in the context of the low representative sample. Three questions were asked of Members
Q1: Are there any changes you would propose to how your attendance of the schools is coordinated?
5.101 The results from the survey showed that most of the Members that responded preferred more notice of upcoming programmes in their local schools.
5.102 This issue was addressed. From September 2009, Members were notified by email four weeks in advance, with a reminder e-mail issued one week before each programme was due to be held. The revised Education Programme (Oct 2010) included a change to the advance notice to Members to go from two to four weeks.
Q2: Are you happy with the performance of your local Outreach Officer?
15 Ref : Mulreany M, Editor (2005) Economic and Financial Evaluation Page | 59
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5.103 The Members were generally very happy with the performance of their local Outreach Officer but there were concerns raised about the cost of the programme in the current economic climate and the target group.
„…the Outreach Officer was always pleasant and well briefed‟
The process and content is very good‟
„…very good vibes between class and Outreach Officer‟
…. but in current financial climate is this good value for money? ‟
……. in the current economic climate I feel that this is an unnecessary burden on the taxpayer‟
„Ideally the students should be Leaving Cert … failing that the students should be Transition Year.‟
Q3: Are there any other changes you propose to ensure that students learn how their National Parliament works?
5.104 42% of respondents stated that they would not change the current format of the delivery of the programme.
The Members suggested some improvements:
1. To deliver the Education Programme to students in-house at Leinster House.
The revised Education Programme that commenced in 2011 includes an option for schools to visit Leinster House to participate in the Oireachtas Classroom workshops, to go on a tour of Leinster House and to meet with their local TDs and Senators. Most workshops are now delivered in-house.
2. To produce an informative DVD detailing the work of the Oireachtas with clips from both the Dáil and Seanad.
An Oireachtas DVD that provides an insight into the national parliament has been produced and is available to schools and on the www.oireachtas.ie website.
3. To provide an Oireachtas TV channel.
The possibility and feasibility of an Oireachtas Parliamentary TV channel was and is currently being explored.
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4. The need to ensure value for money in the delivery of the Education Programme in the current economic climate.
The programme was reviewed in 2010 and the programme is now delivered in-house and by school visits by permanent staff of the Houses of the Oireachtas Service. This has greatly reduced overall expenditure on the programme but has also reduced significantly the number of students who participate in the programme.
5.105 A member also expressed the view outside of the survey that the Education Programme type work „ was always done on a voluntary type basis by TDs and Senators in the past, and that there was absolutely no need for this [Education] Programme especially in view of the very severe financial constraints.
Feedback Members’ Informal Feedback Forum (IFF) 5.106 The survey results were presented to the Members‟ Informal Feedback Forum (IFF) and the following observation were made:
That there is a disconnect regarding communicating arrangements to Members – “member handling” aspects are not well co-ordinated by the Service as it is lost in the wider roll-out and the child-focussed aspects of the event. Some Members of the Forum saw no reason to spend money on the Education Programme as Members normally visit the schools in their constituency as a norm in any event and that this approach is better than the Oireachtas-based centralised approach. The need to ensure value for money. The Education package is good – the interaction is good so there are undoubted education benefits (can count as a CSPE module for exam purposes). Members experienced difference levels of interaction with students - some Members viewed that the students have no interest in politics while others stated they were grilled by the students and that the whole economic situation is now filtering through to the students. An independent person should go to the schools and interview the kids individually and ask them what they gained from the experience. The operation of the programme needs to be radically reviewed.
5.107 Overall, Informal Feedback Formal (IFF) for Members welcomed the reduced budget for the new Education Programme. The projected budget for the new Outreach Programme for 2011 was €65,000 compared with the 2009 budget of €230,000 – a reduction of 72%.
5.108 The reduction in the budget was achieved by the new format Education Programme that was designed by the Communications Unit in consultation with Members, CSPE teachers, participating students and the former Outreach Officers. The new programme was to be delivered by trained permanent staff of the Houses of the Oireachtas Service. The Members held the view that internal staff of the Oireachtas Service have a far better knowledge of the
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy workings of Leinster House and the duties of Members than outside facilitators would have. However, some Members expressed disappointment at the reduced Outreach Programme due to the budgetary constraints.
Feedback from Outreach Education Officers 5.109 The contract Outreach Officers were asked to give feedback about the programme. The Outreach Officers reported that the feedback from students and teachers is very positive and that participation of Members of the Houses has been good and is essential and very much welcomed by teaching staff.
5.110 It was noted that the programme material and the visit by the Outreach Officers and Members are being used by students as part of the CSPE exam action project.
5.111 Generally, the Outreach Officers consider the programme a success and that there was potential to develop the programme further to extend it to Transition and Senior Cycle level. The need to create a link between the Oireachtas and to local issues, to school issues and to student‟s home life issues was identified as an area for development.
„In general the response to the programme has been excellent‟
I feel that there are very real and tangible benefits accruing to the delivery of this programme‟
„I feel that this is a programme with enormous potential for further development at all levels. Indeed, many school have expressed an interest in having similar workshops for Transition and Senior Cycle students‟
5.112 The Outreach Officers were very satisfied with the level of training provided and felt comfortable with their level of knowledge of the Houses of the Oireachtas and its structure. They provided constructive suggestions regarding programme material, workshop presentation and on the further development of the education programme that fed into the development of the new Education Programme as part of the Commissions Communications Strategy 2010/2012.
Feedback from Schools 5.113 Schools were asked to complete an evaluation survey of the Oireachtas Education Programme for the 2008 to 2010 period. Thirty seven schools returned forms. The forms were completed by CSPE teachers.
5.114 Students were not directly surveyed for their views on the Outreach Programme. However, it is probable that they had an input to the replies to the survey questionnaires submitted by their teacher. Ideally and for completeness students who are the main beneficiaries of the Oireachtas Education Programme should be included as part of the survey population in future evaluation surveys.
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Levels of satisfaction 5.115 The survey indicated very positive results and comments with the Oireachtas Outreach Education Programme. The education programme was judged to be a success by the teachers.
5.116 Schools were asked to rate the workshop presentations made by the Oireachtas Education Officer and to rate the materials used during the presentation (poster, DVD etc.). 100% of respondents answered these questions.
In summary, 89% of the schools that responded to the survey rated the Education Officers as „very good‟ and the balance i.e. 11%, rated the Education Officers as „good. 73% of schools rated the education materials used during the presentations as „very good and the balance i.e. 23%, rated the material as „good‟.
Fig 5.3 Rating of Education Officer and of Education Material 2008-2010
Workshop Presentations Rating of Educational Officers and of Education Material
100%
80%
60%
40%
20%
0% Very Good Good Fair Poor
Educations Officers Education Material
5.117 Unsolicited comments written on the evaluation forms supported these findings.
„I found the information, presentation…extremely helpful‟
„[Education Officer] was superb. She made sure all students were fully included and ensured full participation‟
„The education officer was excellent with the students. His organisational skills and planning was first rate‟
Education Programme Workshops 5.118 Schools were asked to rate the effectiveness of the two sections of the Education Programme workshops.
The workshops included two sections:
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1. What it means to live in a Democracy 2. Need for Rules and Laws
86% of schools surveyed indicated that they completed the „Democracy Section‟ and 81% of schools indicated that they completed the „Need for Rules and Law Section‟. Lack of time was cited as the reason that some schools did not complete individual sections. 72% of schools that completed the „Democracy Section‟ indicated the section was „very effective‟ in communicating key learning points: 28% indicated that the section was „effective‟. 66% of schools that completed the „Need for Rules and Law Section‟ indicated the section was very effective in communicating key learning points: 28% indicated that the section was „effective‟: and 7% indicated that the section was „somewhat effective‟.
Fig 5.4 Effectiveness of Education Programme 2008-2010
Effectiveness of Democracy and Rules & Law Section of Education Programme
80% 70% 60% 50% 40% 30% 20% 10% 0% Very Effective Somewhat Not Effective Effective Effective
Democracy Rules & Law
Education Programme Action Projects 5.119 Students taking the CSPE subject in the Junior Certificate examination must prepare a report on an Action Project undertaken by them as part of the CSPE exam.
5.120 The Evaluation Survey included a question that asked schools if students completed any of the action projects suggested by the Oireachtas Education Programme.
5.121 51% of school indicated that their students did not complete suggested Oireachtas Education Programme action projects. This appears high. However, when asked why they did not complete Oireachtas projects it transpired that it was mainly due to a question of timing - students had already either completed or chosen their action projected for the CSPE before
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy the Oireachtas Programme or were still in the process of selecting action projects. Some indicated that they intend to include an Oireachtas action project as part of their CSPE exam.
5.122 When designing the education programme a decision was taken by the Communications Unit to target the two years cycle of CSPE in order that student would have, in so far as was possible, attended workshops in advance of selecting their action projects.
5.123 When asked to rate the level of usefulness of the guidance given in the teachers‟ pack when action project were being done, 67% of respondents indicated that the guidance was very useful; 27% found them useful and 6% found then either „somewhat useful‟ or „not useful‟.
Fig 5.5 CSPE Action Projects Guidance Packs
Action Projects Level of Usefullness of Teachers' Packs
70%
60%
50%
40%
30%
20%
10%
0% Very Useful Useful Somewhat Not Useful Useful
Support for Teachers 5.124 The evaluation form included a section on issued raises by students that were explored during the Oireachtas workshop and the level of support given to teachers to enable them to reply to questions asked on these issues.
5.125 The „Role of the Oireachtas‟, Right to Vote‟ and the „Importance of using your vote‟ were the three most issues raised by students.
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Issues Raised by Students
35 30 25 20 15
Frequency Frequency 10 5 0
Equality Oireachtas Right to Vote Using your Vote Voting Practices Women in Politics Your Representatibe
92% of teachers surveyed replied that the Oireachtas Programme provided them with enough support to deal with questions from students on the issues raised during the workshop.
Other Measuring of Effectiveness
State Examinations Commission (SEC) 5.126 CSPE programme data was sought from the State Examinations Commission (SEC) to help assess the impact of the Houses of the Oireachtas Outreach Education Programme.
5.127 The number of students taking the CSPE subject, which is a mandatory subject, has remained relatively constant at about 55,000 pupils per year. The percentage breakdown of candidates by grade awarded in the CSPE subject has remained relatively constant also.
Table 5.10 Number of CSPE Candidates and Grades Achieved 2006-2011 Grades 2006 2007 2008 2009 2010 2011 Pupils 56,165 55,857 54,532 54,071 54,769 55,564 taking CSPE subject A 23.6 23.0 24.1 23.4 23.2 20.9 B 40.7 40.3 40.9 41.4 42.8 41.8 C 24.8 25.0 24.4 24.7 23.8 26.2 D 8.5 8.9 8.1 8.0 8.1 8.4 E,F,NG 2.4 2.9 2.7 2.4 2.2 2.5
5.127 The pass and honours rate achieved by candidates in the CSPE exams in very high relative to other subjects. On-going liaison with the National Council for Curriculum and Assessment Board is recommended to ensure an input to the development of the politica1 education curriculum that both supports the Department of Education curricula needs while supporting the Oireachtas Education Programme high level objectives.
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5.128 There is a gap in the statistical data that is available from the State Examination Commission (SEC) to measure conclusively the effectiveness of the Oireachtas Education Programme.
5.129 The SEC does not maintain data on the breakdown of concepts selected by students for their Action Projects. However, following discussions with the Chief Examiner it is possible for the SEC to say that, in the view of the Chief Examiner and based on a small sample of scripts that are retained by the SEC as part of their quality assurance process, over the past ten years approximately 23% of candidates present reports based on action projects specific to the concept, 'Democracy'. The Chief Examiner is further of the view that it would be reasonable to assume that this percentage would also exist in the overall cohort of candidates. The Institute of Public Administration (IPA) report Education for Citizenship and Diversity in Irish Contexts (2008) 16 noted that almost 20% of Action Projects titles were generated from the „Democracy‟ category in 2004, up from 14.4% in 2001; and almost 20% in 2004 of projects were generated from the „Law‟ category.
5.130 The subject of democracy is not treated exclusively under the discrete heading of 'Democracy'. It also appears under other concepts such as 'Law', 'Development' and 'Interdependence'.
5.131 While we do not know if the Education Programme is directly influencing the number of candidates that opt each year for the „democracy action project‟, anecdotally, it is reported by teachers and the Outreach Offices that the number of students selecting the „democracy‟ concept in their CSPE action-projects is increasing. The response from the SEC combined with the findings of the IPA report support the view that the trend is upward. However, overall there is insufficient data collected to fully evaluate and verify the impact of the Oireachtas Education Programme on the CSPE programme.
Voter Participation 5.132 While marks achieved for action projects relating to the work of the Oireachtas are indicators of the effectiveness of the core aim of raising awareness and broadening knowledge of the Oireachtas, a wider measure is the future participation of students in Irish society, including voter participation.
5.133 Overall, voter participation did increase between the 2007 and the 2011 general elections. However, it would be disingenuous to suggest that this is due to the impact of the Commission‟s Education Programme. Many of the students who participated in the 2007 to 2009 programme would not have reached voting age by 2011 and there were many other factors that influenced voter participation in the 2011 general election. Table 5.11 below shows the electoral turnout for 2002 and 2011.
16 IPA (2008) Education for Citizenship and Diversity in Irish Context, edited by Gerry Jeffers and Una O’Connor – Chapter 16, Máirín Wilson, The Action Project as a teaching/learning tool, pp. 181-182. Page | 67
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Table 5.11 Electoral Turnout 2002 and 2011 2002 2011 Electorate 3,110,914 3,209,244 Turnout % 67.03% 69.9% Turnout (Votes Cast) 2,085,245 2,243,176 Sources: 2011 Department of the Environment 2007 http://www.oireachtas.ie/documents/publications/Electoral_Handbook1.pdf
5.134 However, the CSO‟s Quarterly National Household Survey (Q2 2011) indicates that the turnout of younger people increased considerably between the 2002 and 2011 general elections. The turnout question was not included household survey for 2007 (i.e. year of general and Seanad elections).
In the 2002 survey 50% of those aged between 18 and 24 said they voted in the general election, compared with 62% in 2011. While 52% of students stated that they voted in the 2002 general election, 71% said they voted in 2011. Over one third of all respondents who did not vote in the 2011 general election were not registered to vote. Of those who did not vote, 11% said that the main reason they did not vote was that they were not interested in politics and 10% said that they were disillusioned with politics. While 45% of non-voters in the youngest age category (18-34 years) were not registered to vote, this compares with just 13% of those aged 55 and over.
5.135 The National Youth Council of Ireland produced a report „The Truth About Youth‟ (June 2009) following a national quantitative research survey of young people aged 18-25.
5.136 On the issue of electoral participation, the survey reveals that the main barrier young people face in relation to voting is the current registration system. Many young people are not voting because they are not registered to vote. The survey results indicated to the researchers that the current system is failing and must be overhauled. Currently, there is no single entity responsible for improving voted participation.
5.137 The report recommended introducing a system of automatic registration to ensure more young people are enfranchised to use their vote. It noted that a move in this direction should be possible given that all residents in Ireland have a PPS number and once a person reaches 18 they should be automatically added to the relevant electoral register. It further noted that this may only be possible, however, if the voter registration system is controlled and managed by a central agency (e.g. An Electoral Commission), as recommended by the report of the Taskforce on Active Citizenship17. Ultimately, this issue is a matter for the Department of Environment, Community and Local Government.
17 17 The Report of the Taskforce on Active Citizenship (2007) http://www.wheel.ie Page | 68
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5.138 The findings on „Voting Participation‟ are as follows;
71.2% of young people aged 18 – 25 were registered to vote. 64% of young people between 18 – 21 years of age were registered to vote. Online voting and automatic registration were seen by young people as the most effective methods of encouraging voter participation. Only 20% of young people (aged 18 – 25) have ever had personal communication with their local T.D./Councillor.
Conclusions 5.139 The rationale for having an Oireachtas Education Programme remain valid and are compatible with the Commission‟ strategic objectives and remain relevant to Government policy and the principles of parliamentary democracy. Accordingly, the continued allocation of public funds to the education programme is warranted.
5.140 The Oireachtas Education Programme both complements and overlaps with the civil social and politics education programmes that are being delivered to CSPE, Transition Year and Leaving Certificate Applied students.
5.141 The programme has achieved its target of reaching 20,000 students over a three year period (2008-2010) and is supporting teachers in delivering the CSPE action projects that relate to the work of the Oireachtas. The education programme was judged to be a success by teachers and the Oireachtas Outreach Officers. However, the number of students currently participating in the programme is very low because of the reduced capacity to deliver the programme.
5.142 Since the new format education programme was rolled out after Oct 2010, 75% of workshops were presented on-site in Leinster House as part of the wider Visitor Programme.
5.143 The participation of Members in the workshops is seen as a very important element of the education programme. Members‟ participation in the programme was high and the Members were generally happy with the 2008-2010 programme. However, Members have concerns that the programme may be duplicating work traditionally carried out by themselves and have concerns about the cost of the programme in the current economic climate.
5.144 At the early stages of the development and roll out of the education programme there was potential to achieve greater economies and efficiencies by the use of framework agreements and tendering for the design and printing of education material. The level of fee paid initially to Outreach Officers during 2008 and 2009 to deliver a workshop appears generous when viewed in the current economic climate and in the absence of documentation giving the basis for the fee amount. The fee was subsequently reduced by 30%.
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5.145 Reduced public finances, the need to reduce costs, incentivised early retirement and incentivised career break initiatives and the government moratorium on recruitment has brought an increased focus on the need for more efficient and economic use of staff resources and the need to achieve economies in the delivery of the education programme.
5.146 The funding of the Education Programme has been significantly reduced since 2010. While the cost of the programme is a very small proportion of the Service‟s operating costs and is low compared with other parliaments, the cost per student of delivering the education programme was too high and was not sustainable. The Service recognises that a more streamlined way of delivering the education programme is required in the current economic climate.
5.147 Under the current delivery model and because of the moratorium on recruiting staff and the incentives retirement schemes, the Oireachtas Service does not have the capacity to sustain the level of education activity and outputs achieved during the 2008-2010 period or the capacity to extend the education programme to Transition Year students and community outreach programme as envisaged in the Communications Plan for 2010-2012.
5.148 Currently the aim is to maintain a programme in the knowledge that the Oireachtas Service already compares poorly against other national parliaments where similar levels of voter understanding exists.
5.149 Demand for the Oireachtas Education Programme is likely to increase when the CSPE subject is added to the Leaving Certificate syllabus, as proposed.
5.150 An alternative approach away from the face-to-face delivery of the programme to web- based on-line is required if the Oireachtas is to meet demand.
5.151 The absence of a dedicated visitor space for school workshops, reduced staffing capacity to organise and present workshops, combined with competing demands for Oireachtas tours significantly restrict the number of requests from schools for on-site visits that can be promoted and facilitated and the speed with which they can be facilitated. There is a gap in the information available to fully measure the impact of the Educations Programme on the CSPE programme and to determine conclusively that the programme is influencing the number of candidates that opt each year for the „democracy‟ action project as part of their CSPE exam and increasing their knowledge of parliament.
5.152 However, research, though incomplete due to lack of raw data, suggests that the number of students taking the subject of democracy for their CSPE action projects is increasing. This view is supported by anecdotal evidence.
Recommendations 1. Create and promote the use of an online education resource for primary and secondary schools (including Transition Year and Leaving Certificate if CSPE subject is added to
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syllabus, as proposed) in partnership and other national agencies and organisation to support teachers of citizenship education and their students. The alternative approach away from the direct face-to-face delivery of the programme to an indirect web-based on-line is required to meet demand and to achieve the level of participation achieved by other national parliaments‟ education programmes. 2. Maintain on-going liaison with the National Council for Curriculum and Assessment Board (NCCAB) regarding the development of the civic, social and politica1 education curriculum and supporting materials for primary, junior cycle and senior cycle students. 3. There is the potential to have an inexpensive, accessible and low maintenance on-line education resource presence by creating networks and partnerships with existing official on-line education resource developers and providers. Agencies such as the National Centre for Technology in Education (NCTE) www.scoilnet.ie; NCCAB, Central Statistics Office (CSO) www.censusatschool.ie, Blackrock Teachers Centre provide education material on-line that goes into a secure network of primary and secondary schools. 4. Explore, in consultation with the ICT Unit, the potential to use free open-source applications (e.g. Moodle) that are available to create effective on-line learning sites. 5. Maintain a level of the external outreach element to the education programme to be aimed primarily at geographic and social disadvantage areas to ensure their inclusion in the programme. 6. It is recommended that the participation of Members in the education programme is continued, facilitated and supported. 7. Future evaluation surveys of the Education Programme should include a direct input from students. 8. The potential to schedule more Oireachtas Education school visits on Mondays and Fridays should be considered further, to make greater use of Usher‟s time on non- sitting days and to reduce the waiting time that school currently have to wait for a tour. 9. A dedicated visitor space for school workshops should be considered as part of the Service‟s longer term strategic precinct development plan, resources permitting. 10. Develop new indicators to measure the effectiveness (Outcomes) of the Education Programme.
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Chapter 6: Media/Press Office Introduction 6.1 This Chapter is devoted to the outputs of the Media and Press Office sub strategy of the Communications Strategy and to the achievement of the sub strategy objectives
6.2 A communications audit (April 2006)18 identified media as the single most important source of information about the activities of Members and the Houses of the Oireachtas for the general public. Members also identified improved relations with and coverage by the media as a priority for the communications strategy.
6.3 The audit informed the development of the first Communications Strategy and Plan 2007/2009 of the Houses of the Oireachtas Commission.
Media/Press Office Objectives 6.4 The objective of the strategy was that at the end of the three year period that media relationships will have dramatically improved with enhanced coverage of the work of the Members of the Oireachtas in a wide range of media outlets and particularly of the work of Oireachtas Committees.
6.5 It was envisaged that a revitalised press office will not only interface with media in a more proactive and broader way but would also provide information and service to Members, including the development of a communications programme for each of the Oireachtas Committees.
6.6 The Communications Plan for the 2010/2012 period adopted a new high level strategy objective of a more fundamental use of communications to build confidence in the Houses and its Members. The strategy includes the prioritising of new direct communications, including the building of new media platforms (social media, on-line etc.) for greater dialogue with the public.
6.7 The current Plan proposes better and more robust engagement with the traditional media including:
(1) Three spokespersons roles: The Ceann Comhairle who represents the official and ceremonial voice of the Houses of the Oireachtas; A cross-party committee of Members that speaks on behalf of Members and the institution, as required; The Head of Communications who speaks on behalf of the institution.
(2) Proactive responses to inaccurate, imbalanced and misinformed media coverage. (3) A more targeted approach to specialist and sectoral media in respect of Committees.
18 Office of the Houses of the Oireachtas, Communications Audit and Strategy 2006 Page | 73
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(4) Supply of a recorded audio report of Oireachtas business highlights to local radio station each sitting week. (5) Fast and effective ease of media access system to the Houses of the Oireachtas (6) The creation of a media centre.
Media/ Press Office Staffing 2007-2010 6.8 Media services in the Oireachtas are delivered by both permanent staff of the Oireachtas and staff on contract to the Oireachtas.
6.9 The Communications Plan 2007-2009 included a recommendation that the Press Office be staffed by a Press Officer, two Committee Media Liaison Officers and a freelance journalist to prepare articles for regional and local press. The Press Office staff report to a Head of Communications.
6.10 The core Press Office services included: - Media queries relating to the business of the Oireachtas, for both the Dáil and Seanad and Committees e.g. procedures, expenses and allowances, committee work, Members travel, Commission minutes etc.; - Providing a media service to Committees; - Preparing and issuing press releases; - Media campaigns associated with the Houses of the Oireachtas public events - Committee Reports launches and other Oireachtas Press events; - Commissioning of weekly local/regional newspapers articles, highlighting importance of parliamentary work undertaken by Members; - Advice on media strategy (e.g. FOI requests, committees); - Liaison with political party press offices, government departments, agencies, local authorities; - Photography and image supply service.
6.11 The Communications Strategy made provision for a Head of Communications post at PO level on a full time basis.
6.12 A Head of Communications was recruited in November 2007 to implement the Communications Strategy. His responsibilities include the Outreach Education Programme, information and marketing and press and public relations activities.
6.13 The post of Head of Communications was advertised in the press initially as a two-year fixed term contract post. The contract was extended for a second two-year fixed term contract and extended to a third term as a fixed term specified purpose contract to 31 December 2012. This brings the contract up to the end of the current Communications Strategy 2010-2012.
6.14 The Head of Communications is also the designated spokesperson for the Houses of the Oireachtas Commission. However, during the period of the Communications Strategy
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2007-2009 there was no formal clear policy and demarcation set for the spokesperson. The policy is currently evolving with the identification of three spokespersons and their roles in the Communications Strategy 2010-2012, as described above.
6.15 The Communications Strategy 2007-2009 envisaged the retention of the AP/Public Relations Offices post under the proposed new structure The Public Relation Officer manages the work of the Press Office. See Appendix3: Proposed Organisation Chart for the Communications Unit 2007-2009.
Table 6.1 Staffing of Oireachtas Press Office 2007-2010 Press and Media Office 2007 2008 2009 2010
Press & Public Relations 1 1 1 1 Officer at AP level Committee Press Officers 0 2 2 2 at HEO level HEO 1 - - - CO 1 - - - Total 3 3 3 3
6.16 Before 2007, there was three staff working in the Oireachtas Public Relations Office. The office was originally established in or about 1994 with an AP. A HEO was assigned to the Office in 2005 with responsibility for developing an Education Programme and a CO joined the PR Office in 2005.
6.17 The PR Office was responsible for all communications elements of the work of the Oireachtas - media and public enquiries, school tours, public information material, issuing press releases, sending out of weekly schedule to media and interested third parties, organising launches and media monitoring. The Communications Strategy 2007-2009 separated the education and information function away from the press and media function.
Appointment of Committee Press Officers 6.18 The Communications Strategy 2007-2009 allowed for the appointment of two Press Liaison Officers to communicate and promote the work of Oireachtas Parliamentary Committees. It was decided to recruit externally because the expertise that was required for the posts was not available from within the existing cadre of Oireachtas staff.
6.19 Essential requirements for the posts included three years‟ experience of working in the media or public relations and in-depth knowledge of the Irish media and the Irish political system.
6.20 The two vacancies were filled though an external competition that was run in March 2008 by the Oireachtas Personnel Unit and advertised in the press. The duties of a Committee Press Liaison Officer include the following: The development of a media plan for Oireachtas Committees. Briefing of media correspondents and liaison with local media.
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Preparation of press releases (previously prepared by Committee Clerk and approved by Chair), media launches and press conferences. Production of media articles. Providing advice to Chairs of Committees.
6.21 The posts were filled on a temporary three year fixed term contract basis at HEO scale of pay. The contracts were extended to 31 December 2012 (end of Communications Strategy 2010-2012 period) on a fixed-term specified purpose contract. One post became vacant in September 2011 and was filled in December 2011.
6.22 A service agreement was drawn up that details the media and public relations services to be provided to Committees by the Committee Press Liaison Officers based on a staffing level of two press officers.
Staffing Comparisons 6.23 Large departments‟ Press Officers are generally appointed at AP level and smaller departments at HEO level. The positions are generally filled by permanent staff of the Departments. The Oireachtas Press Office is unique among Government Departments regarding the use of externally recruited press officers. However, Ministers may appoint Media Advisors on contract to work within departments during their terms of office.
6.24 The Oireachtas also uses the services of freelance journalists for regional and local press and radio coverage of the work of the Oireachtas.
6.25 The staffing level of three staff of the Oireachtas Press Office compares well with other Government Departments.
6.26 The staffing level of Departments‟ Press Offices ranges from 2 to 5 staff. Some Department Press Offices also provide Information services.
6.27 Of 16 Press Offices surveyed, the Oireachtas is in 8th place in terms of overall staffing numbers combined with grade levels. See Table 6.2 on the page below for the staffing levels of Government press offices and the number of press releases issues by each Department.
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Table 6.2 Staffing of Government Press Offices and Number of Press Releases Issued 2010 Press Offices /Press and Press Releases Press Grade Average No. Information Offices* 2010 Office of PRs per Staff PO staff 2011 Finance and Public Expenditure 88 5 APx2 18 and Reform HEO,EO,CO Health* 122 5 AP,HEO,EOx3 24 Agriculture, Fisheries and Food* 250 5 AP, HEO. EOx2, 50 COx2 Taoiseach/GIS Taoiseach: 85 5 HEOx5 24 Government: 35 Foreign Affairs and Trade* 167 4 AP,HEOx2,CO 42 Revenue 62 4 AP,HEO,EO,CO 16 Jobs, Enterprise & Innovation 262 4 HEO,EO,COx2 66 Oireachtas 397** 3 AP, HEOx2 132 Arts, Heritage and the Gaeltacht 110 3 HEO, EOx2 37 Transport., Tourism and Sport* 67 3 HEO,EO,CO 22 Communications, Energy and 92 3 HEOx2,CO 31 Natural Resources Environment, Community and 121 3 HEO,EO,CO 40 Local Government* Justice and Equality 96 3 EOx3 32 Defence 42 2 AP,EO 21 Education and Skills 137 2 HEOx2 69 Social Protection 103 2 HEO, EO 52 * Press and Information Offices. ** Number of PRs published to the website – the actual number of PRs may be higher as all PRs are not necessarily published to the website for operation reasons.
6.28 A direct comparison with international parliaments is difficult because of the range of activities carried out by the various Press and Public Relation Offices e.g. media, tours, information, website, petitions etc. However, a comparison of staffing levels for the Press and Public Relations function only of 12 parliaments shows Ireland at the lower end of the scale in 5th place with Estonia. The Belgium parliament has 1 press office staff and the French Parliament Press Unit has 20 staff. See Appendix 1: ECPRD Survey 2009 Staffing of Public Relations Offices in Parliaments
Media/Press Office Inputs 2007-2010
Total Expenditure 6.29 The total direct inputs relating to media and press activities are estimated at €1.3m for the 2007 to 2010 period. The full cost, including Oireachtas Service administrative overheads, is estimated at €1.5m. The cost of the Press Office fell by 5% between 2009 and 2010.
6.30 The Press Office is 100% State funded. All expenditure is deemed to be current expenditure and is reported on a cash accounting basis.
6.31 The Service‟s financial information system Integra allocates expenditure by cost centre i.e. Public Relation Office/ Communications Unit. However, it does not allow for the breakdown of expenditure into the separate functions under the Communications Unit i.e.
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Education, Marketing & Information and Media/Press Office. Accordingly, the allocation of non-pay costs to the Media/Press Office is estimated based on the description of expenditure gleaned from Integra.
6.32 Expenditure is broken down into pay and non-pay. See Fig 7.1
Fig 6.1 Pay and Non- Pay Costs 2007-2010 Media/Press Office Pay and Non Pay Costs 2007-2010 €300,000
€250,000
€200,000
€150,000 Pay Non Pay €100,000
€50,000
€0 2007 2008 2009 2010
6.33 Pay dominates the Media/Press Office costs.
68% (€868,000) of Press Office expenditure was in respect of pay, including Head of Communications pay costs whose responsibilities extend beyond the Press Office.
Pay costs increased by over 225% between 2007 and 2010. The largest increase was 160% between 2007 and 2008 - the first full year of the Communications Strategy. Pay costs decreased by 5% between 2009 and 2010.
64% of basic pay is in respect of staff on contract to the Oireachtas. Contract pay scales are linked to PO and HEO grade civil service pay scales.
Press Office costs were a very small proportion of the Service’s operating costs for 2007- 2010 i.e. 0.25%.
Table 6.3 on the page blow gives an estimated breakdown of Press Office expenditure for 2007 to 2010
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Table 6.3 Estimated Press Office Expenditure (Pay and Non-Pay) 2007-2010 Press and Media Grade ‘2007 ‘2008 ‘2009 ‘2010 ‘2007-2010 level Head of PO and €76,508.00 €178,751.00 €178,751.00 €165,876.00 €599,886.00 Communications AP Recruited: Dec 2007 and PRO pay Costs Committee Press Senior 0 €26,732 €53,464 €50,204 €247,434 Officers (2) Clerk €13,366 €53,464 €50,204 (HEO) Recruited: June and Oct 2008* Basic Pay ** - €76,508 €213,849 €280,679 €266,284 €837,320 Overtime - €8,000 €6,000 €8,000 €9,000 €31,000
Total Pay Costs - €84,508 €219,849 €288,679 €275,284 €868,320 Total Non-Pay - €42,857 €135,136 €118,048 €109,800 €405,841 Costs Total Direct - €127,365 €354,985 €406,727 €385,084 €1,274,161 Costs
Overheads @20% - €16,902 €43,970 €57,736 €55,057 €173,665 of basic pay Total Costs - €144,267 €398,955 €464,463 €440,141 €1,447,826 including pay overheads % of - 0.1% 0.3% 0.4% 0.4% 0.31% Oireachtas €113.868m €122.769m €123.206m €107.197m €467.040m Outturn % of 0.1% 0.3% 0.3% 0.3% 0.25% Operating Costs €142.875m €153.984m €152.330m €137.001m €586.190m * A Press officer resigned in Sept 2011 and was replaced in Dec 2011 **Pay estimates are based on mid-point of pay scales. 6.34 The total direct cost (pay and non-pay) of the Press Office function is low compared with other parliaments as follows: Ireland: €0.385m Holland: €0.450m Denmark: €0.560m Scotland: €0.713m Canada Senate: €0.847m UK: €1.97m
Non pay expenditure 6.35 Estimated non-pay expenditure for the 2007-2010 period amounted to over €0.4m or 32% of total expenditure. Non pay expenditure increased by 156% between 2007 and 2010, i.e. from €43,000 in 2007 to €110,000 in 2010.
6.36 Non-pay expenditure can be broken down as follows:
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Fig 6.2 Non Pay Expenditure Breakdown 2007-2010
Regional Press Correspondent Photography
Newspaper Supplements
Media/Aertel/News
Other
Table 6.4 Non Pay Expenditure 2007-2010 Press and Media 2007 2008 2009 2010 Total Goods & Services Regional Press €xxxxx €xxxxx €xxxxx €xxxxx €162,999 Services Photography €xxxxx €xxxxx €xxxxx €xxxxx €73,601 Services Newspaper €23,300 €0 €41,505 €0 €64,805 Supplements Media/Aertel/News €0 €42,098 €0 €2,777 €44,875 Research Surveys €0 €0 €0 €28,000 €28,000 Local Radio Services €xxxxx €xxxxx €xxxxx €xxxxx €10,500 Newspapers €800 €1,542 €4,539 €3,487 €10,368 (regional and national ) Broadcasting €4,160 €0 €776 €1,885 €6,821 Services Radio technical €0 €0 €0 €3,872 €3,872 services Total €42,857 €135,136 €118,048 €109,800 €405,841
6.37 A VFM issue that has arisen is the low level of procured contract spend for non–pay services. Procured contract spend accounted for only 5% of the non-pay spend for 2007-2010.
Photography Services 6.38 A total of €xxxxx was spent by the Communications Unit on photographic services from a single supplier during the 2007 to 2010 period, including the Marketing and Information Section and the Outreach Education Programme. See Table 6.56 below
Table 6.5 Communications Unit Photography Costs 2007 2008 2009 2010 Total Photography €xxxxx €xxxxx €xxxxx €xxxxx €xxxxx
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6.39 The supplier also provided photographic services to other areas of the Oireachtas (e.g. Library & Research, Committees, Secretary General), which brought the total cost of photographic services from the one supplier to over €xxxxx.
6.40 The provision of photography services to the Oireachtas was put out to tender in late 2009 and attracted two tender submissions. The request for tenders was for a single supplier contract for the duration of one year with an option to renew for up to a further year.
6.41 There has been a significant decrease in the use of external photographic services by the Press Office since 2009. Photography costs for both 2010 and 2011 were about €xxxxx per annum, down 64% from almost €xxxxx in 2009. The use of in-house staff for routine photographs has reduced costs considerably. A survey of parliaments‟ PRO offices showed that a number of parliaments (e.g. Turkey, Belgium Senate, Slovakia) employ full time photographers.
Newspaper Supplement [€45,000] 6.42 The cost of newspaper supplements is once-off to commemorate special events e.g. 90th Anniversary of the Dáil etc.
Media Aertel/News [€45,000] 6.43 The Press Office ceased using this service.
Regional Oireachtas Correspondent [€xxxxx] 6.44 The largest recurring non-pay cost for the Media/Press Office is the cost of engaging an Oireachtas Correspondent for regional press. The cost is about €xxxxx per year.
6.45 One of the objectives of the Communications Strategy 2007/2009 was to broaden the coverage of the work of the Members in the Oireachtas through non-traditional media i.e. not just parliamentary correspondents. It identifies regional newspapers and radio stations as essential areas of focus.
6.46 The Strategy (2007-2009) included provision for the tendering for the services of a freelance journalist to provide material for local and regional newspapers covering Dáil, Seanad and Committee business. It was planned that the correspondent would provide ten top local newspapers with a „This Week in the Oireachtas‟ column.
6.47 A freelance correspondent was selected based on his experience and knowledge of the regional and local press. The correspondent provided the service from mid-2007 on a trial basis and the service was retained to January 2011.
6.48 The correspondent was paid €xxxxx plus VAT per Oireachtas Report column published. The fee was reduced by 8% in 2009 to €xxxxx plus VAT in line with a Government decision on consultancy services.
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6.49 This rate compares favourably with the rate reported by Members of the NUJ for a column in Irish regional papers i.e. €138 in 2009. 19 However, this service was not put out to tender, which is not conducive to achieving value for money. This was addressed in August 2011 when a request for tender was issued by the Houses of the Oireachtas Services for the provision of a local media (press and radio) services to the Oireachtas.
6.50 Local radio reports are provided on behalf of the Houses of the Oireachtas by a correspondent at the cost of €xxxxx plus VAT per article, broadcast. Four regional stations carry the reports. Articles are compiled on Thursdays and emailed to stations for broadcast on Friday mornings. Average length of each package is seven minutes.
Press Gallery [€184,000 per annum, excluding accommodation] 6.51 The Oireachtas makes a sizable commitment and investment (in the region of €184,000, excluding accommodating) in providing facilities „desks‟ to correspondents to ensure that there is extensive media access to Leinster House. The McCarthy Report (200920) estimated that the full cost of the facilities provided to the press gallery to be worth about €300,000. The facilities include telephones, computers, Local Area Network, WiFi, accommodation and parking.
6.52 The McCarthy Report recommended that the Oireachtas charges for media rights and facilities. Discussions were opened with the Press Gallery in this regard and the Commission approved the setting of charges for telephones, computer hardware and a charge for access to the Oireachtas LAN, resulting in savings of over 10% of costs. This charge is currently being charged by the ICT Unit. The Commission noted that in the current financial climate the issue may have to be revisited.
6.53 The Parliamentary Press Gallery is considered to be an integral part of the functioning of the Oireachtas. The Gallery has 44 accredited Members (June 2010) that represents 22 public and private media outlets i.e. national daily papers, Sunday papers, national radio stations, national television stations and Irish language media. The Press Office provides office- hours and after-office hour‟s and weekend services to the reporters.
6.54 There are also „accredited‟ media personnel who have access to the Leinster House complex but do not have any office accommodation „desks‟ in Leinster House. These include „specialist‟ correspondents (e.g. health, education), local and regional press, journalists covering Committees and broadcast support crews. In total, there are about 110 media personnel who are issued with passes for access to Leinster House.
6.55 The Parliamentary Press Gallery is a longstanding independent entity with an elected Chair and committee. They oversee the implementation of the Leinster House Media Protocol provides guidance in relation to how the Oireachtas facilitates the media in Leinster House. They also lobby on behalf of their Members regarding facilities and conditions.
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6.56 The Committee for Procedures and Privileges (CPP) of both Houses set out the policy and protocols for media activity with the aim of having workable balances between Members‟ interactions with the media and protecting the privacy of Members and the decorum of the Houses. The protocol was review in late 2010.
6.57 The Press Gallery have complete autonomy over their affairs. The chair of the Press Gallery provides a list of „accredited‟ reporters to the Oireachtas Service. The Oireachtas does not have any function, whatsoever, in the accreditation of reporters for the Parliamentary Press Gallery.
6.58 The Communications Unit and the Superintendent‟s area both have roles and responsibilities in relation to the Press Gallery and to working relationships with media personnel.
6.59 The Superintendent‟s area is tasked with the „Protocol Function‟ and providing facilities to the media. The Communications Unit interface with the media on a daily basis and provide information to the media.
Media/Press Office Outputs 2007-2010 6.60 The Communications Strategy identified 14 specific tasks to be achieved during the period of the strategy. Most these tasks were partially or substantial achieved.
6.61 The Strategy Plan 2007/2009 identified key actions to enhance media coverage of the work of the House and their Committees in a wide range of media outlets. These are as follows: Recruit Committee Press Officers. Negotiate „This Week in the Oireachtas‟ feed for local newspaper editors. Tender for services of freelance journalist to provide material for local newspapers. Put a media section on Oireachtas website. Set up media forum. Build relationships with a wide range of media. Develop communications programme for Committees.
6.62 All, but one of these key tasks were fully completed during the Strategy period. A media forum was held in June 2009. However, it was decided that there would be no added value to setting up a media forum for each year of the strategy, as was originally envisaged.
Media Queries 6.63 The Press Office set up a Media Query Database in late 2009. However, the database does not capture most of the media queries received by the Press Office. The database is used primarily to track replies to media queries and to ensure consistency in the replies to press queries. The Press Office responds to queries received in English and in Irish.
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6.64 The Service‟s Management Information Framework (MIF) recorded that 177 media queries were received during 2009 and over 400 received during 2010. By the end of August 2011, 418 media calls were reported to MIF i.e. an average of 60 per month.
6.65 Media query requests are under-recorded. „Quick call‟ queries that are answered immediately tend not to be recorded. Accordingly, any data available on the total number of media queries needs to be treated with caution.
6.66 The capability and capacity to log queries and to log rebuttals to inaccurate articles and reports is very limited. The staff work in a dynamic media environment where much of the day-to-day media contact, including rebuttals, is by phone, by text or by one-to-one and on- going direct contact between reporters and the Oireachtas spokesperson and press officers. Developing relationships with the press to actively promote the work of the Oireachtas are not activities that are easily measured. The office doesn't have a media monitoring service either, so the capacity to log rebuttals or inaccurate articles is further limited.
Press Releases 6.67 The current KPI for the Press Office is the number of press releases it issues. Over 800 press releases were issued during the 2007 to 2010 period.
6.68 For 2010, the Press Office issued over six times the number of press releases it issued in 2007. Almost 90% of the press releases related to the work of the Oireachtas Committees. It was a key objective of the Communications Strategy to dramatically increase the coverage of the work of Committees in a range of media.
Table 6.6 Number of Press Releases 2007-2010 2007* 2008 2009 2010 Total** Committees 48 92 232 376 748 Commission/Service 2 2 5 6 15 Ceann Comhairle 12 12 13 3 40 Photo-call/Events 3 6 17 11 37 Total 65 112 267 396 840 +67% +138% +49% *General and Seanad Election ** published to website
6.69 The Oireachtas Service Press Office issued the highest number, by far, of press releases (397) of any Government Department during 2010. The second highest department was the Department of Jobs, Enterprise & Innovations at 262 press releases. The Oireachtas Press Office issued 296 press releases during 2011.
Fig 7.3 below shows the number of press release issued in comparison with government departments.
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Fig 7.3 Press releases issued by Departments and by the Oireachtas 2010
Press Releases Issued by Department 2010
400 350 300 250 200 150 100 50
0
Arts
Jobs
Health
Social
Justice
Comms
Finance
Defense
Revenue
Transport
Foreign A Foreign
Education
Taoiseach
Agriculture
Oireachtas Environment
6.70 The number of Oireachtas Press Releases is equivalent to 132 press releases on average per Press Officer in the Oireachtas Press Office. The Departments of Education and Skills has the next highest at 69 press releases per Press Officer, about half that of the Oireachtas.
6.71 Press Releases are issued almost exclusively in English.
6.72 There is no in-depth monitoring or analysis of media coverage carried out by the Press Office. Media monitoring software commissioned by the Library & Research Service of the Oireachtas is available to the Press Office to monitor press reports on a day to day basis. However, no on-going evaluation of the overall impact of Press Releases on coverage and no evaluation of press reports (e.g. quality, tone of the media, tonal bias) is carried out.
Regional Oireachtas Reports 6.73 About 1,200 Oireachtas reports were published in regional papers during the period 2007-2010 i.e. about 380 per full year, on average.
Table 6.7 No. of Commissioned Oireachtas Reports carried by Regional Papers 2007 2008 2009 2010 Total No. of regional Oireachtas 71 365 376 390 1,202 Reports published* *based on invoices i.e. total cost/ cost per article
6.74 An analysis of provincial papers shows a significant increase in press coverage of the Oireachtas and of Committees in regional and local press between 2006 and 2010.
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Fig 6.4 References to the Oireachtas in local and regional papers
References to the Oireachtas and Committees in Provincial Papers 2006-2010
700
600 500
400 Oireachtas
300 Committees Frequency 200 100
0 2006 2007 2008 2009 2010
6.75 The analysis indicates there was a 272% increase in references to the Oireachtas in provincial papers between 2006 and 2010. The largest increase was between 2008 and 2009 (+130%). This increase coincided with the first full year of the engagement of a Regional Oireachtas Correspondent. The strategy target of negotiating with top 10 local newspaper editors‟ to carry the „This Week in the Oireachtas‟ feed was achieved.
6.76 Coverage of the work of Oireachtas Committees in regional papers increased by almost 120% between 2006 and 2010. The largest increase was between 2008 and 2009. Two Press Officers were recruited in 2008 specifically to enhance coverage of the work of Committees in national and regional press.
Regional Newspapers Circulation
6.78 An analysis of provincial papers shows a significant increase in press coverage of the Oireachtas (+272%) and the work of Committees (+120%) between 2006 and 2010.
6.79 JNLR (Joint National Listenership Research) figures show that regional papers manage to reach 64% of the population, taking in established local papers and smaller circulated papers that appear in limited geographical areas every two weeks. The figures profile the local newspaper reader as older, rural, C2DE (working class) or farmers.21
Table 6.8 Readership and circulation of the participating Regional Papers
21 http://www.ilevel.ie/media-blog/print/10738-regional-newspaper-readership 2011-07-19
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Targeted Catchment Area Readership Circulation Regional Paper Group
Jan-June Jan-June Jan-June 2010 2009 2008 Western People Mayo and parts of 70,000 Over 15,000 Sligo, Galway, Roscommon Limerick Leader Limerick City and 115,000 17,600 19,034 21,102 County Connaught Tribune Galway City and 100,000 22,136 22,933 24,407 County Donegal Democrat County Donegal 54,000 10,408 11,878 12,572 Thurs Donegal Democrat 7,632 7,970 8,882 Tues Tullamore Tribune North and East 40,000 Over 10,000 Offaly and parts of Westmeath, Laois and Kildare The Nationalist Clonmel and Co 55,000 11,227 12,063 13,328 Tipperary The Corkman (INM) Cork 44,000 7,196 7,504 8,017 Tipperary Star County Tipperary 30,000 7,759 8,468 9,072 Drogheda Drogheda, Co 30,000 7,587 8,801 10,050 Independent (INM) Louth Total - 538,000 Sources ABC audit, JNLR, newspapers‟ own websites, http://www.ilevel.ie/media-blog/print/10738- regional-newspaper-readership
6.80 The targeted regional newspapers have a combined readership in the region of 550,000 each year or 12% of the population. The cost of engaging the Regional Oireachtas Correspondent works out at approximately €0.09 cent per reader.
6.81 The data shows, however, that in common with national papers, the circulation figures for regional papers are steadily falling. There is scope to further increase the number of targeted regional papers in order to maintain and increase the readership level of the Oireachtas Reports.
6.82 There is also scope to reuse the commissioned This Week in the Oireachtas radio reports and the commission regional newspaper Oireachtas Reports by making them available on the Oireachtas website and available to the new media market, where appropriate.
Local Radio Reports 6.83 In 2010, a political journalist was engaged by the Communications Unit to provide a „This Week in the Oireachtas‟ local radio reports that feature highlights of Oireachtas contributions made by Members. The journalist was engaged based on his experience and knowledge of local radio combined with his knowledge of the Irish political system. The provision of this local radio service was put out to tender in late 2011. It is envisaged that a
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy feed of 6 reports per week for the 30 sitting weeks of the Houses would be made available to local radio stations.
6.84 Previously, the Communications Unit invited local and regional stations to come-in and broadcast live from the studios in Kildare House. However, since the Communications Unit now has a weekly programme sent electronically to four local radio stations, the same demand from stations to use the Oireachtas broadcasting facility isn't there. In 2011, three local stations came in to broadcast whereas in other years there was about five or six annually.
6.85 The Oireachtas is still happy to facilitate this service but is not actively seeking local and regional stations to broadcast from Kildare House. There is a sizable cost to the stations. They would require a minimum of three staff (presenter, producer and researcher). It may not be an attractive proposal for them in the current environment of reduced advertising revenue.
National Press 6.86 A strategic deliverable of the 2007-2009 Communications Plan was to achieve a dramatic improvement in press coverage of both Houses of the Oireachtas, to enhance coverage of Oireachtas Committees and to achieve a reduction in traditional reporting of official travel and other member related issues (e.g. Members‟ pay, pensions, expenses etc.).
6.87 An analysis of national papers (daily and Sunday papers) conducted as part of this review shows that there has been a significant increase in references to the Oireachtas and to the work of Oireachtas Committees in the national press during the period of the Communications Strategy 2007-2009. The results are summarised in Fig 6.5.
Fig 6.5 Analysis of coverage of the Oireachtas 2004-2010 in the National Press
References to the Oireachtas and to Committees in National Press 2004-2010
4500 4000 3500 3000 2500 2000
1500 Frequency Frequency 1000 500 0 2004 2005 2006 2007 2008 2009 2010
Committees Oireachtas
Source: 2011 Factiva Inc.
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6.88 In 2007 there was a drop in the number of references to the Oireachtas and to Oireachtas Committees in the national press. This is to be expected because there were fewer sitting days and Committee meetings in 2007 because of the general and Seanad elections. The number of references to the Oireachtas and to the work of Oireachtas Committees increased significantly between 2008 and 2009.
6.89 An analysis of the content of the references to Oireachtas Committees shows that the references can be directly linked to the press releases issued by the Committee Press Officers recruited in 2008. References in the national press to Oireachtas Committees increased by over 50% between 2008 and 2010, from 1,550 references in 2007 to 2,344 references in 2010.
6.90 The Committee Press Officers issued 232 press releases relating to the work of Committee in 2009, an increase of 152% over 2008.
Table 6.9 Oireachtas Press Releases 2007-2010 2007* 2008 2009 2010 change Committee PRs 48 92 232 376 +328 % change +92% +152% +62% +683% * General and Seanad Elections
6.91 An analysis of the content of the reference in the national press to the Oireachtas shows an increased focus on the issues of Members‟ and former Members‟ pay and allowances, travel, expenses and pensions.
6.92 Other repeated references excluding references to legislation and the work of the Houses included: the Moriarty and Mahon Tribunals; staffing of Oireachtas, Parliamentary Assistants posts, Oireachtas envelopes; Dáil and Seanad reform; Members‟ passport facility; Oireachtas Family Day; Leinster House car park; refurbishment on Leinster Houses complex; Oireachtas TV channel; public sector strike; Seanad elections; 31st Dáil; Presidential nominations; 90th Anniversary of the Dáil; Members „clocking in‟ and retention of teaching posts by sitting TDs.
6.93 It was envisaged that there would be a reduction in the reporting of payments (e.g. allowances, expenses, travel) made to Members by the end of Communications Strategy period and a greater focus on reporting the work of the Houses of the Oireachtas and its Members. The reduction in the level of reporting of Members‟ expenses and allowances did not happen. The reporting of these issues increased during the strategy period. Factors that are outside the direct control of the Media/Press Office severely limit the impact that the Press Office can have on the issues that the media reports.
6.94 Following revelations in the UK press on MP expenses in May 2009 there was a renewed focus on Oireachtas Members‟ pay, travel and expenses that also resulted in a high level of media coverage of individual TDs‟ and Senators‟ expenses from 2009 onwards.
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6.95 In 2008, the Oireachtas started to release records requested under the Freedom of Information Acts on individual Members‟ allowance and expense claims. This could have contributed to the increase level of reporting of allowances and expense claims. Prior to 2008 there was no breakdown of individual Members‟ claims – a global amount was released.
6.96 The number of Freedom of Information Requests (FOI) made to the Oireachtas on Members expenses increased considerable between 2008 and 2010. The number of requests started to decrease in 2011. The decrease coincided with the 2010 decision of the Commission to publish details of Members‟ expenses to the Oireachtas website. Records release under FOI on Members expenses are also published to the website.
6.97 The number of FOI requests received relating specifically to Members‟ expenses is as follows:
Table 6.10 FOI Requests Relating specifically to Members’ Expenses 2008 2009 2010 2011 FOI Requests 6 36 52 16
6.98 In line with a decision of the Houses of the Oireachtas Commission at its meeting of 28 April, 2010, records of allowance payments to Members of both the Dáil and the Seanad are now published to the Oireachtas website on a monthly basis. It is envisaged that regularly disclosing of these costs will result in a greater level of accountability and will bring more public confidence to the payments system. However, it is difficult to find these payment details on the website. Consideration should be given to having a dedicated page for Members‟ expenses on the website to ensure accessibility, openness and transparency.
6.99 While the disclosure of payments contributes to a greater public understanding of the costs attached to the fulfilment by Members of their parliamentary and public representative duties, it has led to a tendency by the media to prepare league tables of individual levels of spend and to focus on „highest‟ spend Members at any given month. This is a very simplistic account of what is actually a very complex system with various factors influencing the amount of expenses claimed by Members e.g. distance from Oireachtas, attendance, timings of payments, aggregated claims, payments options and different categories of allowances etc.
6.100 A renewed focus on explaining why public money is required to pay for certain aspects of Members parliamentary and constituency duties and why it is required in the amounts allowed might help to increase public understanding of the expenses system and to improve public perception of the national parliament.
Expenses 6.101 Fig 6.6 shows an analysis of the reporting on Members‟ expenses, pay and pensions by the press.
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6.102 The total number of combined references to the Oireachtas and to expenses surged from 87 in 2008 to 531 references in 2009, almost a six fold increase in one year.
Fig 6.6 References to Oireachtas Expenses in National Papers 2004-2010
Oireachtas Expenses References in National Press 2004-2010
600 500
400 300
200 Frequency 100 0 2004 2005 2006 2007 2008 2009 2010
Oireachtas Expenses TD Expenses Senator Expenses
Source: 2011 Factiva Inc.
6.103 References that related specifically to TDs‟ expenses increased fivefold, from 41 in 2008 to 232 in 2009, and fell slightly in 2010. References that referred to Senators‟ expenses increased from 18 in 2008 to 102 in 2009 and to over 300 in 2010. The increase in 2010 was primarily due to a high level of media coverage of one member‟s expense claims.
Pay 6.104 The total number of combined references to the Oireachtas and to pay more than doubled between 2008 and 2009, from 429 in 2008 to 937 references in 2009.
Fig 6.7 References to Oireachtas Pay in National Papers 2004-2010
Oireachtas Pay References in National Press 2004-2010
1000
800
600
400 Frequency Frequency 200
0 2004 2005 2006 2007 2008 2009 2010
Oireachtas Pay TDs Pay Senators Pay
Source: 2011 Factiva Inc.
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6.105 References that referred specifically to TDs‟ pay increased from 98 in 2008 to 245 in 2009, a 150% increase. References that referred to Senators‟ pay increased from 48 in 2008 to 129 in 2009, a 148% increase. The number of references to Members‟ pay started to decrease in 2010.
Pensions 6.105 The total number of combined references to the Oireachtas and to pensions increased fourfold between 2008 and 2009, from 85 references in 2008 to 349 references in 2009.
Fig 6.8 References to Oireachtas Pensions in National Papers 2004-2010
Oireachtas Pensions References in National Press 2004-2010
400 350 300 250 200 150 Frequency Frequency 100 50 0 2004 2005 2006 2007 2008 2009 2010
Oireachtas Pensions TDs Pension Senators Pension
Source: 2011 Factiva Inc.
6.106 The number of references to Senators‟ pensions was relatively low – between 5 in 2004 to 48 references in 2010. References to TDs‟ pensions hovered at about 20 per year between 2005 and 2008 and increased to 118 references in 2009. The number of references to Members‟ pensions started to decrease in 2010.
Oireachtas Coverage by Individual Newspapers 6.107 The analysis also shows that there are more references to the Oireachtas across a broader range of national press since 2006. The analysis is based solely on the frequency of references to the Oireachtas in the press and does not include an analysis of column inches of text or an analysis of the Oireachtas related issues reported. Accordingly, the results should be viewed only as indicators of the level of coverage by individual newspapers.
6.108 References to the Oireachtas in newspapers in the category of „other‟ (e.g. tabloid etc.) increased from 6% of all references in 2006 to 22% of all references in 2010, excluding UK newspapers that do not provide their Irish edition online.
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6.109 References to the Oireachtas in Sunday papers have remained fairly constant i.e. at about 15% of all Oireachtas references in national papers. However, circulation of Sunday papers has declined steadily after the high circulation of the „Celtic tiger‟ years i.e. from 1.3 million in 2004 to under 1 million in 2011.
6.110 A web-based analysis of the combined coverage rates by national papers and the circulation/readership of national papers rank the Irish Times 1st, the Irish Independent 2nd, and the Sunday Independent 3rd in terms of Oireachtas coverage and reach.
Fig 6.9 References to the Oireachtas in the National Papers 2006-2010
Coverage of the Oireachtas in the National Press 2006-2010
45 40 35 30 25 2006 20 15 2007
10 2008 % of References % of References 5 2009 0 2010
Other
Irish IndoExaminer Irish Times Daily Mirror Sunday Indo Sunday Times Business Post Sunday Tribune
Source: 2011 Factiva Inc
6.111 Table 6.11 shows the percentage breakdown by newspaper of coverage of the Oireachtas and the current (June 2010) number of Parliamentary Press Gallery reporters attached to each newspaper.
Table 6.11 Oireachtas Coverage by Newspapers 2004-2010 Press Gallery 2004 2005 2006 2007* 2008 2009 2010 reporters Irish Times 8 36% 41% 41% 35% 35% 32% 30% Irish Independent 7 21% 23% 19% 15% 14% 15% 14% Examiner 3 19% 15% 5% 9% 13% 12% 13% Sunday 1 5% 4% 5% 6% 3% 3% 4% Independent Sunday Business 2 5% 1% 4% 5% 5% 4% 4% Post Daily Mirror (UK) 1 3% 4% 3% 3% 3% 3% 4% Sunday Tribune 2 3% 3% 4% 5% 4% 5% 4% Sunday Times 2 2% 3% 3% 3% 3% 4% 5% (UK) Other 8 6% 6% 16% 19% 20% 22% 22% Total 'Oireachtas' 34 100% 100% 100% 100% 100% 100% 100%
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Source: 2011 Factiva Inc. * General and Seanad elections
6.112 The Irish Times and the Irish Independent combined accounted for 44% of references to the Oireachtas in 2010 down from 60% in 2006.
6.113 The Irish Examiner accounted for 13% of references in 2010 compared with a high of 19% in 2004 and a low of 5% in 2006.
6.114 References to the Oireachtas in the Sunday papers have remained fairly constant at about 15% -17%. However, circulation of Sunday papers, including UK Sunday papers in Ireland has declined steadily after high circulation figures during the Celtic Tiger years.
Fig 6.10 Sunday Papers Circulation 2004-2010
Source:http://www.ilevel.ie/media-blog/print/101829-irish-sunday-newspaper-circulation-jan-june-2011
6.115 There was a marked increase in the category of „other‟ sources – from 6% of references in 2004 and 2005 to 22% of references in 2010. The „other‟ sources include: The Evening Herald; the Sun; Business & Finance; The Star; Press Association News; The Sunday World; The Irish News (N Irl), specialist magazines and regional papers.
6.116 The analysis is web-based. Accordingly, there is no data available on certain newspapers that do not carry their Irish editions on dedicated websites.
6.117 Table 6.12 below shows a combination of the Oireachtas coverage rate for each newspaper with its circulation and readership figures.
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Table 6.12 National Press Circulation and Readership 2010 Oireachtas Press Gallery Coverage Circulation Readership Publication Reporters Rate 000‟s 000‟s Ranking Irish Times 8 30% 106 339 1 Irish Independent 7 14% 145 539 2 Sunday Independent 1 4% 265 1,006 3 Examiner 4 13% 47 175 4 Sunday Times 2 5% 112 418 5 Irish Sun 1 3% 86 277 6 Daily Mirror 1 4% 60 192 7 Sunday Business Post 2 4% 50 187 8 Sunday World 1 n/a 267 821 n/a Irish Daily Star 1 n/a 94 385 n/a Irish Mail on Sunday 1 n/a 112 329 n/a Evening Herald 0 n/a 71 (2009) 236 n/a Irish Daily Mail 3 n/a 51 148 n/a Circulation and Readership Source:http://www.ilevel.ie/media-blog/print/101829-irish-sunday-newspaper- circulation-jan-june-2011. References – 2011 Factiva Inc. *excluding Sunday Tribune and Irish News of the World which ceased trading in 2011.
6.118 The Irish Times ranks highest in terms of combined Oireachtas coverage, circulation and readership. The paper has the highest number of accredited reporters attached to the Parliamentary Press Gallery.
6.119 The Irish Independent is 2nd and has 7 reporters accredited to the Press Gallery. The Sunday Independent is 3rd and has 1 reporter attached to the Press Gallery. The Examiner is in 4th place – it has 4 reporters attached to the Press Gallery.
6.120 The Irish Daily Mail and the Irish Mail on Sunday combined have 4 reporters accredited to the Press Gallery. These papers do not carry their Irish editions on dedicated websites. Accordingly, it was not possible for the purposes of this exercise to assess their level of coverage of the Oireachtas.
6.121 The Press Office does not conduct regular evaluation of media reports on the work of the Houses of the Oireachtas and its committees. Regular evaluation of media reporting would provide insight and data to prove linkages between the Press Office media outputs, media reports and public perception changes. There is a need for media evaluation services to inform the development of a strong media strategy for the Oireachtas.
6.122 Potential industry standard evaluation measures could include the following: Quality of news reports over period of years Tonal Bias – positive, neutral or negative slant
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Tone of the media – what reflects the mood of the press Core message tracking – what publications are picking up core message. Press Release Tracking –how much of press releases are being published verbatim etc.
6.123 However, there are constraints to such a service i.e. cost or perception on cost; lack of time; lack of expertise; too many extraneous factors outside the direct control of the Press Office impacting on media reporting on the work of Houses of the Oireachtas and on public perception of the parliament and its Members.
6.124 The Oireachtas Service‟s Library & Research Service (L&RS) utilises commissioned software (Factiva) to track a number of subject areas so that researchers and librarians can respond to Members' queries for information to assist in the preparation of L&RS publications.
6.125 It also uses the service to create 'on the fly' type searches when asked about a very specific topic or issue.
6.126 The L&RS proffers this service to certain sections within the Houses of the Oireachtas to track specific topics and themes in newspapers and they have been given accounts which allow them to set up their own bespoke alerts.
6.127 The Communications Unit have been given this functionality and they also subscribe to certain thematic alerts. One of the themes which is tracked is the 'Oireachtas alert' which tracks references to Members, parliament, legislation, Leinster House, member‟ pensions etc. However, media monitoring is not a service which is included in the L&RS contract with Factiva. Factiva is developing a dedicated media monitoring product called Factiva Communicator. It would be for the Communications Unit to decide if they have the resources or wish to subscribe to this service directly.
Broadcast Media 6.128 The Broadcasting Unit of the Houses of the Oireachtas Service main objective is to organise the televising and archiving of Dáil, Seanad and Committee proceedings for internal use within the Oireachtas complex of building and to some Government Departments. The live feed is also used by the e-Democracy Unit for live webcasting of proceedings.
6.129 The Broadcasting Unit broadcast 3,216 hours of Dáil Debates and 2,178 hours of Seanad debate between 2007 and 2010, in addition to broadcasting Committee debates.
6.130 The Unit also provides a continuous stream to outside broadcasters (RTÉ, TG4, and TV3, „free of fee‟. Footage of proceedings on DVD and „stills‟ is available on request to Members, print media or to the public at a charge.
6.131 The Oireachtas Service owns the broadcasting equipment and facilities including editing suites, control rooms and studios. The actual televising of proceeding is carried out by an outsourced company on a contract awarded after a tendering process. The facilities are
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy available to outside broadcasters at a fee. Any income generated by the Broadcasting Unit goes to the central fund. The broadcasting function of the Service is itself is outside the scope of this review and was the subject of a separate review as part of the Service‟s previous VFM programme.
6.132 The Communications Strategy 2007- 2009 identifies public access to broadcast proceedings as a priority for Members and for the Houses of the Oireachtas Service.
6.133 The feasibility of having a Parliamentary Channel has been assessed on an on-going basis during the period of the Strategy. The Broadcasting Act 2009 made provision for a Houses of the Oireachtas channel. RTÉ does not have direct responsibility for the channel other than having an obligation to carry it on the public service multiplex, which is part of their remit.
6.134 In November 2011, the Ceann Comhairle announced that extended live coverage of sittings in Dáil Éireann was to be made available on a pilot basis to view on digital television, free of charge to all UPC‟s digital cable customers. The digital channel (Channel 801) also broadcasts coverage of sessions in the Seanad and sittings of Oireachtas Committees when the Dáil is not in session.
6.135 The initiative gives 957,000 people in 328,000 households the choice to watch and listen to live and recorded footage from the Dáil, Seanad and Committee meetings in Leinster House.
6.136 In 2012, the Oireachtas Service commissioned a report into the feasibility of a permanent Oireachtas Parliamentary Channel.
6.137 The Oireachtas Service also provides live webcasting of Dáil, Seanad and Committee proceedings. The re-broadcasting of the material is subject to rules of coverage in accordance with the Standing Order of the Houses of the Oireachtas. The webcasting and MPEG2 IPTV services are provided in association with HEAnet, Ireland's National Education and Research network, a not for profit company established by the universities and the Higher Education Authority.
6.138 RTÉ is provided with facilities within the Leinster House complex. Under Sn 114 (3) (b) of the Broadcasting Act 2009 RTÉ has to ensure that the programme schedules:
„provide programmes of news and current affairs in the Irish and English languages, including programmes that provide coverage of proceedings in the Houses of The Oireachtas and the European Parliament...‟
6.139 RTÉ 1 television broadcasts Oireachtas Report late at night, which presents a report on each sitting day‟s proceedings in the Oireachtas, and broadcasts Leaders Questions at noon. RTÉ Radio 1‟s Late Debate reviews the day‟s proceedings in the Dáil.
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6.140 Oireachtas Report‟ has a viewership of about 56,000 and is available on RTE Player for those who want to watch it later. „Leaders‟ Questions has a slightly higher viewership. Late Debate attracts a listenership of about 23,000.
6.141 In additional to daily news bulletins and extended news programmes (e.g. Six One News) on RTÉ 1 and RTÉ 2 and TG4, and RTÉ Radio 1, RTÉ Radio 2 and Raidió na Gaeltachta, the current affair programmes such as the following on these national broadcaster channels inevitable contain reporting of the proceedings of the Houses of the Oireachtas.
Radio 1 Morning Ireland (Mon to Fri) Today with Pat Kenny (Mon to Fri) Drive Time (Mon – Fri) Late Debate (Mon to Fri) Saturday View This Week (Sunday) RTE Prime Time (Monday) TG4 Adhmhaidin (Dé Luan - Dé hAoine) 7 Lá (Dé Máirt)
6.142 RTÉ also covers events that relate to the work of the Oireachtas and its Members (press conferences, peace process, EU, referendums, general, Seanad and bye elections etc.)
6.143 The Head of Communications engages with RTÉ regarding the coverage of Oireachtas proceedings. The Joint Administration Committee also invited RTÉ to its committee meeting of 17 February 2010 to discuss the broadcasting of Oireachtas proceedings. 22
6.144 Issues discussed included the late time slot for the broadcasting of the „Oireachtas Report‟, the coverage of the proceedings of the Seanad and Committees, coverage of „backbenchers‟ contributions, the optics of showing chambers that are nearly empty of Members, the readings of scripts, relevancy, and the problems that the scheduling of the work of the Houses and its Committees is presenting to the RTÉ crew for effective coverage of proceedings.
6.145 The Committee heard that the schedule of the business of the Houses creates logistical and resource problems for the RTÉ team with Leinster House. For example, the concentration of the business of the House and its Committees on a Wednesday generally means that RTÉ do not have the in-house resources to cover all or most of the work of Dáil, Seanad and four Committee rooms during such high concentration work periods.
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6.146 The constraints RTÉ have to bringing „Oireachtas Report‟ back to an earlier time include the turnaround time required by RTÉ to have the programme ready for broadcasting while reflecting the proceedings of the day in parliament. It is also competing with other material for prime time slots.
6.147 On 31 March 2012, the Broadcasting Authority of Ireland (BAI) published its Broadcasting Services Strategy following public consultation. The Strategy outlines the Authority‟s approach to, as well as a framework strategy for, the licensing of broadcasting services that are additional to those provided by RTÉ, TG4 and any future services that may be provided by the Houses of the Oireachtas and the Irish Film Channel. (ref: www.bai.ie)
6.148 While acknowledging that news and current affairs provided by Irish broadcasters makes a substantive and valuable contribution to Irish audiences, the BAI under its updated strategy considers that a derogation from the statutory requirement of the 20% news and current affairs requirement is appropriate where, in the Authority‟s view and with regard to stated factors and situations, it is beneficial to listeners and is likely to increase programming diversity to the audience in a franchise area.
6.149 The derogation, if applied, has the potential to impact on the amount of news and current affairs programmes provided to those broadcasting services that cater to young audiences.
Effectiveness of the Media Strategy 6.150 Effectiveness is the extent to which outputs achieve objectives or policy aims23.The aim of the media strategy is that „at the end of the three year period of the strategy, media relations will have dramatically improved, with enhanced coverage of the work of the Members in the Oireachtas in a wide range of media outlets and particularly of Committee work24.
6.151 It was envisaged that a revitalized press office will not only interface with media in a more proactive and broader way but would also provide information and service to Members, including the development of a communications programme for each of the Oireachtas Committees.
Survey of Press Gallery Reporters 6.152 A survey of the Parliamentary Press Gallery reporters showed a high level of satisfaction (80%) with the services provided to Members of the Press Gallery by the Communications Unit. None of the respondents were dissatisfied with the services provided.
6.153 The full analysis of the results of the survey are contained in Chapter 8
6.154 Other findings are as follows:
23 Ref : Mulreany M, Editor (2005) Economic and Financial Evaluation 24 House of the Oireachtas Commission, Communications Strategy & Implementation Plan March 2007 Page | 99
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64% were either „satisfied‟ or „very satisfied‟ with the service of communicating the work of the Dáil. 54% were either „satisfied‟ or „very satisfied‟ with the service of communicating the work of the Seanad. 82% were either „satisfied‟ or „very satisfied‟ with the service of communicating the work of Committees. An indicator of the level of effectiveness of the Communications Unit is the level of usefulness of the services provided by the Unit. 73% of respondents indicated that the „media queries service‟ was either essential or very useful for their purposes. 73% indicated that the „spokesperson service‟ was either „essential‟ or „very useful. 54% indicated that the „Committee Spokespersons‟ was either „essential‟ or „very useful‟. 80% indicated that the „media briefing and resource material‟ was either „essential‟ or „very useful‟. 45% indicated that „Press Releases‟ was either „essential‟ or „very useful‟. A further 54% found them „useful‟. 54% indicated that the „Website Media Zone‟ and „Media Events‟ was either „essential‟ or „very useful‟. 63% found the „ after hours service‟ either „essential‟ or „very useful‟
6.155 The reporters were asked to give their view of the relationship between themselves and the Communications Unit. The responses suggest that the media relationship between the Oireachtas Press Gallery and the Communications Unit is very good (over 60% of respondents). This finding is supported by favourable comments included on the survey replies. None of the respondents was of the view that the relationship was poor.
Survey of Members 6.156 A survey of Members was conducted by the Service in December 2010 to get feedback from Members of the Houses in relation to the full range of services provided to them by the Staff of the Houses, including the Communications Unit and to establish their level of satisfaction with the delivery of these services.
6.157 There were some concerns that the survey, as conducted, is a simple assessment of what is a complex Parliamentary service, i.e. communications and public relations.
6.158 There was also concern that there was no attention to the presence of extraneous political, social and economic factors that can influence survey responses in relation to levels of satisfaction with the services provide by the Oireachtas Service staff to promote parliament,
6.159 The survey was undertaken at a time (Dec 2010) that opinion polls showed an unprecedented collapse in trust in government and parliament. Accordingly, the survey results, while considered relevant, should be interpretive with caution.
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The survey of Members recorded a 52.6% level of satisfaction with the „promoting parliament‟ function, down from 58.3% in 2008 and down from 69.2% in 2007. This includes public, press and media information and liaison services, publications and leaflets, schools education and tours programmes, broadcasting service, Oireachtas website and intranet.
6.160 Comments made by Members on promoting parliament indicated Members understanding of the difficulties in promoting parliament and frustration at the poor image of the Houses in the media.
They do their job; the Press don‟t just pick it up‟
„I do not think the media or public believe the Leinster House staff‟
„better defence of Members interests when inaccuracies and criticism appear in media‟
„Message still not getting through to the public‟
„Understands that this is a very difficult job but feels an improving effort should be made to recognise that for whatever reason the promotion of Parliament is just not happening. Need to get beyond the negativity of media‟
„There could be more emphasis on the on the work that is being done in the House‟ (Seanad and Dáil)
6.161 Members were asked to rate their satisfaction with „the manner in which they have been dealt with by staff‟ of the Public Relations Office. The Members indicated a 70.6% level of satisfaction in 2010, down from 88% in 2008.
6.162 The Members, following consultation, made a number of observations with regard to the development of a Communications Plan for the period 2010 to 2012. These included the following: Efforts at improving public understanding of the Oireachtas will always be subject to wider political events. The improvement in the coverage of the work of Committee is noticeable. The targeting of local media is welcomed and should be prioritised. The Communications Units need to be increasingly proactive and robust in challenging unfair and inaccurate media commentary. Members need to establish a degree of solidarity so as to defend their profession. Members need a spokesperson to defend the Oireachtas against one-sided media criticism
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6.163 Currently, there are two spokesperson roles for the Oireachtas. The Ceann Comhairle who represents the official and ceremonial voice of the Houses of the Oireachtas: and the Head of Communications who speaks on behalf of the institution.
6.164 To date, a proposal contain in the Communications Strategy for 2010 – 2012 to have a small cross party committee of Members that speaks on behalf of all Members and the institution, as required, has not gone ahead.
Public Polls 2005 and 2010 6.165 Market research25 conducted on behalf of the Oireachtas in 2010 indicates that the level of knowledge of the Houses of the Oireachtas was at 44% i.e. an increase of 2% over a 2005 TNS MRBI poll result. The TNS MRBI National Poll was commissioned on behalf of the Houses of the Oireachtas Service to help inform the development of the 2007-2009 Communications Strategy.
6.166 The full analysis of the comparison between the Onside Research (2010) and TNS MRBI poll (2005) is contained in Chapter 8.
6.167 90% of participants in the 2010 research are in agreement with the value association that the Houses are an important debating forum and 83% agreed with the value association that the Houses are where national laws are made.
There was a marked increase (+ 12%) in the local media being a source of information for the public. The 2010 research revealed that 11% came across information on the Oireachtas from social networking sites. The 2010 research found that TV News/Current Affairs, the Oireachtas Report and the website www.oireachtas.ie are considered to be the most credible sources of information.
6.168 The research results indicate a general acceptance that for „the next generation‟ that social networking media channels will be key in increasing levels of engagement with the Oireachtas and the political process in general.
Eurobarometer Survey /IPA Research 6.169 There is evidence26 that public trust in national parliaments has, on average, fallen in Ireland and in most of the rest of Europe from 2001 to 2010.
6.170 A full account of the research is contained in Chapter 8.
25 Onside Marketing, The Houses of the Oireachtas, Public Research Study (May 2010) 26 Boyle Richard, IPA, Chapter 5 , Research Paper No 6, Public Sector Trends 2011 (Nov 2011) based on Eurobarometer ‘ twice yearly measures of confidence in the national parliament, 26 Roth F, Centre for European Studies, The Eurozone Crisis and its Effects on Citizens’ Trust in National Parliaments, (Dec 2010).
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6.171 The changing economic and social climate has impacted on the level of trust in the Irish parliament and in the wider EU. Irish trust in parliament is lower than the EU average and was around the EU average until 2008. From 2008 to 2010, as with trust in government, trust in parliament dropped rapidly both in absolute terms and compared to European averages. Ireland had the second lowest level of trust in parliament in the EU15 in autumn 2010 (below Spain).
6.172 There is also evidence to suggest that the public generally does not make a distinction between parliament and government.
Conclusions 6.173 The rationale for having a Media/Press strategy for the Oireachtas remains valid. The objectives of the media strategy are compatible with the Commission‟ strategic objectives and remain relevant to principle of parliamentary democracy that the decision making process of parliament should be accessible, open, transparent and accountable to the public.
6.174 The continued allocation of public funds to the implementation of a media/press strategy for the Houses of the Oireachtas is warranted and in line with best practice international parliamentary service.
6.175 The Oireachtas makes a sizable commitment and investment in providing facilities „desks‟ to correspondents to ensure that there is extensive media access to Leinster House. The setting of charges for media rights and facilities should be reviewed on an on-going basis.
6.176 The stated objective of the media strategy to improve media relationships with enhanced coverage of the work of the Members of the Oireachtas in a wide range of media outlets and particularly of the work of Oireachtas Committees and in regional and local media were significantly achieve during the period of the strategy.
6.177 There is scope to make greater reuse of the commissioned This Week in the Oireachtas radio reports and commissioned regional Oireachtas Reports by making them, available on the Oireachtas website and to the new media market, where appropriate.
6.178 The Press Office has substantially completed the actions identified in the Strategy for 2007-2009. However, reliable central data that is essential to understanding the performance of the Press Office is not being captured. The Press Office does not have a media monitoring service so the capacity to log media reports and log rebuttals or articles is limited.
6.179 There is a need for regular evaluation of media reporting to provide insight and data to prove linkages between the Press Office media outputs, media reports and public perception changes and to inform the on-going development of a strong media strategy for the Oireachtas.
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6.180 It is evident that media coverage of the work of Committees has been greatly advanced. An analysis of newspaper content shows that media reports are directly linked to press releases issued by the Committee Press Officers recruited in 2008. The media profile of the Oireachtas has also increased significantly in regional press, a fact acknowledged by Members.
6.181 While analysis also shows that a broader range of national papers are reporting on matters relating to the Oireachtas and its Members, the level of reporting on the „ traditional‟ reporting of Members‟, pay, pensions, expenses increased significantly during the strategy period. However, the number of reports on these matters has decreased since the Commission made the decision to publish details on individual Members‟ expenses to the website. However, this information is not easy to find on the Oireachtas website
6.182 Members‟ level of satisfaction with the „promoting parliament‟ function and with the staff of the „public relations office‟ has fallen. This result must be viewed within the context of extraneous political social, economic factors that are outside the control of Communications Unit staff. However, going forward, Members‟ concerns need to be address when developing a new media strategy for the Oireachtas.
6.183 It is noted that the Houses of the Oireachtas Commission recommended in March 2012 that a sub-committee of the Commission be established to review implementation of the Communications Strategy 2010-2012 and to report and make recommendations to the Commission.
6.184 The cost of the Press Office function is low compared with other parliaments and as a portion of the operating cost of the Oireachtas. However, the initial failure to go to tender for most press/media related services was not conducive to achieving value for money. This has now been rectified.
6.185 Survey results indicate that the Members of the Press Gallery are satisfied with the services provided to them by the Press Office.
6.186 The Oireachtas issues a significantly high number of press releases. Less than half of Press Gallery reporters surveyed found the press releases either „essential‟ or „very useful‟. Considerable resources and time is spent on preparing and issuing these press releases. Press Releases are seldom issued in Irish.
6.187 The recommendation by the Broadcasting Authority Ireland under its updated strategy that a derogation from the statutory requirement of the 20% news and current affairs requirement may be appropriate in some licensing situations may produce a gap in the level of coverage of the proceedings of the Houses and its Committees that is provided by those broadcast services that cater to a young audience.
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Recommendations 1. Periodic evidence based research and evaluation of media reporting is recommended to provide insight and data to prove linkages between the Press Office media outputs, media reports and public perception changes and to inform the on-going development of a strong media strategy for the Oireachtas. Examples of industry standard media evaluation measures are as follows: Quality of new reports over period of years Tonal Bias – positive, neutral or negative slant Tone of the media – what reflects the mood of the press Core message tracking – what publications are picking up core message.
2. Press Release Tracking –how much of press releases are being published verbatim. 3. Reassess the use of resources and time spent on the preparation of traditional press releases to ensure the optimum use of staff resources. 4. It is recommended that consideration be given in future Oireachtas media/press strategies to include strategies that are designed to enhance the amount and quality of information, including broadcast or new media coverage of the work of the Oireachtas, that is specifically aimed at a younger audience (e.g. under 34 years old27) with the spotlight placed on new ways of explaining legislation. 5. Review the setting of charges for media rights and facilities on an on-going basis. 6. Make greater reuse of the commissioned This Week in the Oireachtas radio reports and commissioned regional Oireachtas Reports by making them, available on the Oireachtas website and to the new media market, where appropriate.
27 Onside Marketing , The Houses of the Oireachtas, Public Research Study ( May 2010) Broadcasting Authority of Ireland (BAI) Broadcasting Services Strategy (2012). Page | 105
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Chapter 7: Marketing and Information
Introduction 7.1 The Commission‟s Communications Strategy and Plan 2007/2009 envisaged that at the end of the three year plan period that the Houses of the Oireachtas Commission will have a fully established cohesive visual identity; that information materials will be highly professional and accessible and that the website www.oireachtas.ie will have a newly development communications area for the general public.
7.2 A Marketing and Information Section within the Communications Unit was planned with the purposes of: a marketing role in the production of information materials. disseminating key information to facilitate the efficient operations of the Houses of the Oireachtas. the development of a visitors‟ programme.
Marketing and Information Objectives 7.3 The Communications Plan 2007-2009 identified the following actions to be delivered in order to put a marketing and information strategy in place. Appoint Marketing and Information Officer. Tender, commission and produce a branding report. Set up an information implementation structure across the Houses. Develop and launch a communicating area on the Oireachtas website. Develop information materials. Organise training programme for a Visitors‟ Programme.
7.4 The marketing strategy supports a key Commission Strategic Plan 2007-2009 deliverable „to promote parliament‟. Providing information in respect of the Parliament is an essential element of parliamentary democracy. The public have a right to be informed of the work of their parliament and to have access to information about the Houses of the Oireachtas.
7.5 The focus of the current communications strategy is on the following:
1. producing information material that is clearly understood (i.e. using plain English in public communication);
2. openness and transparency regarding parliamentary issues and on non-procedural matters (salaries, expenses, facilities etc.);
3. publication on the Oireachtas website of information on the costs of running the Houses and of all information released under the Freedom of Information Acts.
7.6 Under its eGovernment strategy the Government wants to see a significant improvement in the use of electronic means for delivering public services and has set goals for:
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy enhanced information provision; enhanced electronic delivery of services and enhanced use of shared approaches.
7.7 The Transforming Public Sector agenda advocates the development of additional information and participatory channels for an increasingly engaged and active citizenry.
7.8 The Public Service Reform Plan (Nov 2011) initiatives include the leveraging of ICT to better deliver services and information in a more cost effective manner.
7.9 The objectives of the marketing and information function are valid in respect of the wider public reform agenda and Oireachtas strategy objectives.
Marketing and Information Inputs 2007-2010
Staffing Levels and Pay Costs 7.10 Media services in the Oireachtas are delivered by permanent staff of the Oireachtas Service. Total direct pay costs are estimated at about €290,000 for the 2008 to 2010 period.
7.11 Three staff were involved in marketing and information duties at an estimated, on average, cost of €95,000 per annum (€116,000 including overheads).
7.12 In 2008, a Principle Clerk (AP) was appointed as Marketing and Information Officer and attached to the Communications Unit.
Table 7.1: Staff and Staff Costs Marketing and Information 2008-2010 Grade WTE 2008 2009 2010 Total Staff Pay Pay Pay 2008-2010 (Based on (Based on (based on Mid- Mid-Point) Mid-Point) Point) Principle Clerk 60% 48,227 48,227 44,906 141,360 (AP) Senior Clerk 30% of 3 days 32,078 32,078 30,122 94,278 (HEO) Clerical Officer 40% 12,252 12,252 - 24,504 100% 29,081 29,081 Total 92,557 92,557 104,109 289,223 Overheads @ 18,511 18,511 20,822 57,844 20% of basic pay * Total Pay 111,068 111,068 124,931 347,067 Costs
Non- Pay Costs 7.13 The Service‟s financial information system Integra does not currently provide a breakdown of expenditure into the separate functions of the Communications Unit i.e. Education, Marketing & Information and Media/Press Office.
7.14 It was difficult and at times impossible to determine the budget, if any, that was allocated to certain marketing and information projects and activities and to determine the
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy allocation of expenditure against these budgets and the running totals of project/activity budgets.
7.15 Accordingly, the allocation of non-pay costs to the Marketing & Information functions are estimated based on the description of expenditure gleaned from the Service‟s Integra financial system.
7.16 The main non pay costs incurred were in relation to the following projects: A new visual identity for the Oireachtas Oireachtas Events Developing information materials Redeveloping the Oireachtas web-site
Marketing and Information Outputs 2007-2010
Visual Identity for the Oireachtas 7.17 The Commission‟s Communications Strategy and Plan 2007/2009 envisaged that at the end of three years that the Houses of the Oireachtas Commission will have a fully established cohesive visual identity.
7.18 In 2007, a contract was awarded, following a procurement tendering process, for the design of a single corporate visual image. The new visual identity was developed at the direct cost of €68,000.
7.19 The branding of the service was carried out before the Communications Unit was formally established. A new logo was agreed by the Commission in March 2007 and rolled out in 2007 with user guidelines. The new brand identity received some negative publicity and a negative reaction from some Members when launched, including a negative reaction to the cost of the rebranding. The branding standard sought when going out to tender was on par with high end corporate and commercial branding requirements.
7.20 It is accepted in retrospect that the scope should have more accurately reflected the more modest branding requirement of the Oireachtas.
7.21 The new logo replaced up to nine visual identities being used across the Houses.
7.22 While, the new logo now features across all publications, web communications, corporate publications and Service stationery many corporate documents/ guidelines/ reports produced by the Oireachtas are not often clearly visually identifiable as being produced by the Oireachtas due a straying away from the guidelines, corporate colours, sizing and positioning of logo, and obligation under the Official Languages Acts. If the new visual identity is to be retained, greater compliance with the usage guidelines is required to ensure a recognisable and cohesive visual identity for the Houses of the Oireachtas.
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Oireachtas Events 7.23 An annual National Oireachtas Week was identified in the Communications Strategy 2007-2009 as an initiative to help improve public perception and understanding of the role of the Houses and its Members and as an initiative to make the Houses „ more open and people- friendly and giving the public a rightful sense of ownership of the institution‟.
7.24 The National Oireachtas Week proposal did not proceed due to the estimated costs of producing the event, approximately €500,000 per annum. In its place, public events, such as Family Days, Culture Nights and Open House were organised to open up the Houses to the public.
7.25 The Communications and the Superintendent‟s area of the Oireachtas Service both have roles and responsibilities with regard to the holding of public events within the Leinster House complex. The Superintendent‟s area coordinates the protocols, security, health and safety and facilities for these events and the Communications Unit plans, organises and publicises the events.
7.26 The public events that were organised during the strategy period are shown in Table 7.2 below.
Table 7.2 Oireachtas Public Events 2008-2010 2008 Public Event 28th and 29th June. Oireachtas Family Day 19th September Culture Night 23rd - 25th September National Ploughing Championship 2009 Public Event 20th January Joint Meeting of both Houses in Mansion House to commemorate 90th anniversary 24th March 90th Anniversary Exhibition Leinster House 27 April 90th Anniversary Exhibition Kilkenny 18 May 90th Anniversary Exhibition in UCC 11 June 90th Anniversary Exhibition South Tipperary 27th and 28th June Oireachtas Family Day 17th August 50th Year of Rose of Tralee 22nd and 24th September National Ploughing Championship 23rd September Culture Night 9th and 10th October Open House 30th November 90th Anniversary Photo Exhibition in Limerick 2nd December Christmas Tree Lighting Ceremony 14th December 90th Anniversary Exhibition Louth 2010 Public Event 21st September National Bravery Awards 24th September Culture Night 8th and 9th Oct Open House 19th November Book launch: Houses of the Oireachtas Parliament in Ireland
7.27 Three public events were organised for 2008, including the inaugural Oireachtas Family Day; 13 events were organised in 2009, including events to commemorate the 90th Anniversary Commemorations and; 4 events were organised for 2010.
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7.28 It is estimated that 24,500 people attended Oireachtas events in 2008, 35,100 in 2009 and 2,100 in 2010. The drop in numbers in 2010 is due to the decision not to hold Family Day events in 2010 and not to have a presence at the National Ploughing Championship due to budgetary constraints.
Family Days 7.29 The Oireachtas Family Day events in 2008 and 2009 were organised directly by the Communications Unit. The inaugural 2 day event in 2008 cost €176,000, excluding staff administration costs.
7.30 The Family Day was designed to give the attending public a positive experience of their National Parliament and to communicate that positive experience to a national audience through a corresponding media strategy.
7.31 The 225th anniversary of the first balloon flight from the lawns of Leinster House was a point of focus of the event. The demand for free tickets to the event was so great that it was decided to extend the event to two day long events on Saturday and Sunday 28th and 29th June. The number of tickets was limited to 4,000 per day based on expert health and safety recommendations.
7.32 The programme of events included a hot air balloon event, music, and children‟s entertainment, recital of significant speeches, talks, farmers ‟ market, food stalls, picnic area and tours of the Houses of the Oireachtas.
7.33 The planning of the 2009 Family Day was informed by the experience and feedback from the inaugural event in 2008.
7.34 It was agreed that the event should proceed for 2009 but that expenditure should be reduced from the costs incurred in 2008. Costs incurred for the two day event in 2009 was €103,000 compared with €176,000 in 2008. Non pay costs were more than halved i.e. from €133,000 to €60,000.
Table 7.3 Family Day Costs 2008 and 2009 Family Days 2008 2009 Difference (2day events) €000s €000s % Non pay Costs 133 60 -55% Overtime (Staff) 24 24 0% Gratuity (Ushers) 19 19 0% Total 176 103 -41% Direct cost per person €22 €13 -41% attending
7.35 The direct cost per person attending the event was €22 for 2008 and €13 for 2009, excluding administration staffing costs and any additional external costs associated with the event. No revenue of significance was generated from branded merchandise produced for this event or from merchandise produced for the 90th anniversary of the Dáil commemorations.
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7.36 Cost reductions were achieved for Family Day 2009 by the following actions: Greater event management role for the OPW – no external event management services used in 2009 and reduced role for other external service providers. OPW providing more of the facilities e.g. PA system etc. In-house provision of all PR service by the Communications Unit. Sourcing of entertainment locally, including community brass bands. Less stage events: more interactive street performer family type activities. Defence Forces supplying and erecting marquee tenting at no direct cost. No commemorative event in 2009 (anniversary balloon flight event in 2008). Cut back on non-essential „extras‟ e.g. flag hire, outdoor signage, recording of event etc. Cut back on facilities based on 2008 experience – fewer toilets, fewer barriers required. Supplier charges reduced by negotiation. Reduced marketing budget – 2008 was oversubscribed. Greater in-house capacity to deliver event (printing, ticketing, PR, sourcing entertainment; event management, H&S). Less start-up costs for 2009 e.g. family day website and on-line ticketing in place.
Examples of costs reductions achieved are as follows: The sourcing of entertainment locally reduced entertainment costs by 50%, from €30,000 to €15,000. The absence of a special anniversary event in 2009 reduced costs by €10,000. The provision of tents by the Defence Forces reduced costs by €5,000. The provision of the PA system by OPW reduced costs by €5,000. A reduced role for events audio and production companies reduced costs by €15,000. Marketing costs were reduced by €3,400. In-house provision of PR reduced costs by €4,000.
7.37 There was a public demand for the tickets to the event without any need to incur advertising costs. The attractions were more aimed at the family audience and there was greater attendance and participation by Member of the Houses at the 2009 event. There was positive national media coverage, especially broadcast media coverage. RTÉ television news called the 2009 Family Day a „public relations tour de force‟.
7.38 While feedback indicated that Members were satisfied that Family Days created a positive image of the Oireachtas, it was also recommended by Members that the event should focus more on the work of the Houses and its Members. Visitors to Leinster House for Family Days were given a tour of the Houses of the Oireachtas that focused primarily on the history of the Leinster Houses buildings and the history of the parliament and less so on the procedures and work of the Houses and its Members.
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7.39 Family Days were high cost events in terms of expenditure and disruption. While lessons were learned after the inaugural Family Day events and spend were markedly reduced in 2009, the per-visitor-cost was not sustainable in a current economic climate. Accordingly, the Service did not go ahead with the event in 2010, 2011 and 2012.
7.40 The event also requires a significant effort and use of staff resources of the Communications Unit and of the Superintendent‟s area, and input from across other business areas of the Service.
7.41 There is a high level of disruption associated with the event. Time and effort spent by staff organising the event, the setting up of toilets , stalls and stages, security, catering, tours, cleaning, traffic control, parking, health and safety etc.
7.42 The event also required external involvement (e.g. Gardaí, Dublin City Council, and OPW) which added an indirect cost to the staging of the event.
90th Anniversary of the first Dáil 7.143 In 2009, the Communications Unit organised a series of events to commemorate the 90th Anniversary of the first Dáil, following a decision by the Houses of the Oireachtas Commission to mark the event. The commemoration events did not form part of the Communications Strategy Plan tasks for 2007-2010.
7.44 The aim of the commemoration events was to: establish a high public awareness of the historic occasion; to use the occasion to raise a public understanding and interest in the work of the Houses of the Oireachtas and; to begin a process that will inform the 100 th anniversary of the first Dáil in 2019.
7.45 The commemorative events included a joint meeting of both Houses of the Oireachtas in the Mansion House; a touring photography exhibition, branding and merchandising, a commemorative 90th Anniversary supplement in the Irish Times and the sponsoring of an academic Oireachtas Parliamentary Fellowship
7.46 The budget for the commemoration events was in the region of €150,000, excluding OPW costs of about €25,000. The budget did not include an estimate of the administration and staff costs, or indirect costs e.g. security and road closure by Gardaí for the Mansion House event.
7.47 The estimated direct costs included a national newspaper supplement (€40,000); Fellowship Programme (€25,000 per annum); Photographic Exhibition (€50,000), Branding and Merchandise (€10,000) and a limited edition souvenir brochure (€9,000) for those attending the joint sitting of the Houses in the Mansion House.
7.48 It was not possible from available records and systems to fully determine the allocation of costs against the 90th Anniversary commemorations budgets. However, from expenditure
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy data that can be gleaned from the Integra financial system we can be satisfied that costs were generally in line with allocated budgets as follows; Newspaper Supplement: €42,000 Exhibition: €40,000 Miscellaneous Mansion House Costs: €26,000 Photography: €3,000 Fellowship (2009): €18,000 Fellowship (2010): €18,000 Branding and Merchandise: €15,000
7.49 The ceremonial joint sitting of both Houses of the Oireachtas took palace in the Mansion House on 21th January 2009. It was televised live on RTÉ.
7.50 A national paper carried a specially commission supplement. Additional copies of the supplement were also widely distributed.
7.51 The photographic exhibition featuring historical election posters and memorabilia since the foundation of the State, and illustrations of the media coverage of these important events, was shown in seven locations across Ireland and repeatedly in Leinster House. It is estimated that about 10,000 people viewed the exhibition during 2009.
7.52 The Houses of the Oireachtas Commission launched the Oireachtas Parliamentary Fellowship as part of the anniversary celebrations. The Fellowship is awarded on an annual basis to a student who has completed or is undertaking research in the area of Irish politics and history, Irish parliamentary affairs, parliamentary procedure or other subjects related to or relevant to the Irish parliamentary tradition.
7.53 The Oireachtas Parliamentary Fellowship is designed to: Advance the study of, and contribute to scholarship on the Houses of the Oireachtas. Promote knowledge and understanding of the history and workings of the Houses of the Oireachtas.
7.54 The Fellowship, worth €18,000, was awarded for the first time in 2009 following a public invitation for applications. Nine applications were received. The Fellowship was again awarded in 2010. The initial proposal is to run the Fellowship Programme up to 2018, the 100 th anniversary of the 1st Dáil. This would involve direct expenditure of about €150,000 plus administration, supervision, advertising costs and the indirect costs associated with the input to the programme from Library & Research Service staff. The Fellowship Programme is currently under review.
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Other Public Events 7.55 The Oireachtas has availed of opportunities to participate in two cultural events, Culture Night and Open House that are organised annually in partnership with Temple Bar Cultural Trust and the Irish Architectural Foundation and the OPW.
7.56 Both cross promotional partnerships have proved popular and successful and are low cost and low disruption events.
7.57 Both events are seen as opportunities to open up the Houses to the public and to highlight the historical and cultural significance of Leinster House. They help Leinster House to link in with very popular cultural events and to improve public perception of the Houses while maintaining the dignity of the National Parliament.
7.58 Leinster House can accommodate 1,500 visitors on Culture Night and 600 visitors for Open House each year. The direct cost of these events is about €6,000 per event per year. This works out at approximated €4 per visitor for the Culture Night event and €10 per person for the Open House event. The costs are low compared with the cost per visitor to the Oireachtas Family Day. The cultural events also attract a high level of national and local media coverage.
7.59 The Oireachtas also had a presence at the National Ploughing Championship in 2008 and 2009. It is estimated that approximately 190,000 people visit the event each year. The objective of the Oireachtas presence was to participate in Ireland‟s largest rural event and to promote the relevance of the work of the Houses of the Oireachtas.
7.60 An Oireachtas inaugural presence at the Ploughing Championships incurred direct costs of €40,000, including the cost of an exhibition. In 2009, direct costs were halved and came to about €20,000. The Oireachtas did not have a presence at the Championship in 2010 or 2011 due to budgetary constraints. It is estimated that 15,000 visited the Oireachtas marquee in 2008 and 2009. The direct cost per person is estimated at about €2.60 in 2008 and €1.30 in 2009.
7.61 The event does require a significant staff input before and during the event that is not factored into the above costs. The presence of five staff is required during the three days of the event and between two to four staff in the two days leading up to the event.
7.62 The Oireachtas also hosts the National Bravery Awards ceremony each year on behalf of Comhairle na Mire Gaile - the Deeds of Bravery Council, which is chaired by the Ceann Comhairle.
7.63 The Communications Strategy Plan for 2010-2012, while noting that the public events have proved very effective in attracting public and media attention, recognised that they represent a higher public relations and financial risk than other forms of communication. It also noted that in the current economic environment that „it would be bold and ambitious to
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy seek out public and media support for a new national event that places the Houses of the Oireachtas at its core‟
7.64 The holding of large Oireachtas events is not sustainable cost wise or would add to improving the public perception of the Houses in the current economic climate. The Service implemented a decision to cancel large scale Oireachtas events.
7.65 Cross promotional events (e.g. Culture Night and Open House) have proved successful and can be delivered at relatively low cost and with low levels of disruption. Future opportunities to extend partnership with cross promotional events should be pursued, where appropriate, and when in keeping with the decorum and dignity of a national parliament.
7.66 The organising of large public events was a new departure for staff of the Oireachtas Service. Lessons were learned after the inaugural events and applied to the following years‟ events. This resulted in delivery of events at a lower cost than for the previous years.
7.67 It was difficult, and at time impossible, to determine the budget that was allocated to some events and to determine the allocation of expenditure and the running total of spend. For any future large scale events, a greater project management approach in accordance with the Services Project Management Guidelines should be adopted, particularly in relation to event expenditure controls and the recording of running totals of expenditure against approved budgets.
Visitors Programme 7.68 The Houses of the Oireachtas are open to the public free of charge through its Visitor Programme.
7.69 The Communications Unit has developed visitor brochures and leaflets that serve three visitor audiences - young children, teenagers and adults respectively and are available to visitors across the Leinster House complex of buildings.
7.70 The Leinster House „Tour Service‟ is regarded as an important part of the public relations image of the Oireachtas and has a long tradition and experience of being popular with visitors.
7.71 Visit to Leinster House can be organised in a number of ways, as follows: Member Sponsored Tours Walk- Up Tours Embassy Sponsored Tours Oireachtas Outreach Education Programme
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Member Sponsored Tours 7.72 Tours of the Oireachtas Tours can be arranged for Leinster House by contacting a local TD or Senator, with a preferred date and time, the number of people visiting. The TD/Senator then makes the appointment.
7.73 Member sponsored tours are available on Mondays to Fridays at 10.30 am, 11.30 am, 2.30 pm and 3.30 pm. When the Dáil and Seanad are in session, additional tours are available on Tuesday and Wednesday evenings at 7.00 pm and 8.00 pm.
Walk-Up Tours 7.74 The Oireachtas offers walk-up tours on Mondays and Fridays at 11.30 am and 3.30 pm. This is a pilot project started in 2012. The tour includes visits to the Dáil and Seanad Chambers, Oireachtas Committee Meetings Rooms and to the Leinster House Souvenir Shop.
Embassy Sponsored Tours 7.75 Visitors to Ireland or people living outside the State can visit Leinster House by contacting their Embassy or country‟s representative in Ireland who will contact the Oireachtas on their behalf. Alternatively, visitors to Ireland may participate in the walk-up tours.
Oireachtas Outreach Education Programme 7.76 These tours are booked through the Communications Unit by schools participating in the Outreach Education Programme.
7.77 Tours lasts about 40 minutes and generally focuses on the history of the Leinster House building and the traditions of Ireland‟s parliamentary heritage. A tour group is generally made up of 25-30 visitors. Tours are generally fully booked on sitting days by the Members.
7.78 The tours guides are the Parliamentary Ushers who are trained to Fáilte Ireland accredited tour guide standard. The Parliamentary Users give the tours in additional to normal Parliamentary Usher duties. When giving tours they perform a dual role: the role as tour guide and the role of security and safety officer. The tour guide function is seen as a way of enriching job satisfaction and of making greater use of Ushers‟ time on non-sitting days.
7.79 Tours are part of the Communication‟s Unit Outreach Education Programme. Students are also given a parliamentary educational workshop organised the Communications Unit in addition to the tour.
Number of Visitors to Leinster House 7.80 There is a distinction between the number of people who visit the House for business, and those who visit for a tour of the Oireachtas. The annual number of visitors to the Houses of the Oireachtas, including those on tours, is between 80,000 and 100,000. Table 7.4 shows the total number of visitors to Leinster House from 2005 to 2011.
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Table 7.4 Total Number of Visitors to Leinster House 2005-2011 2005 2006 2007 2008 2009 2010 2011 Visitors 72,340 83,233 81,434 109,419 103,315 87,575 75,058
7.81 Most visitors to Leinster House do so at the invitation of the Members. Members, as part of the consultation process for the 2010-2012 strategy, made the observation that visitors to the Houses should be received in an appropriate visitors‟ space. Currently there is no dedicated visitor space within the Leinster House complex for visitors. The absence of a dedicated visitors‟ space significantly hampers efforts to accommodate tours and to manage the number of visitors that visit Leinster House.
7.82 The Service‟s Corporate Business Plan 2010-2012 includes an action to prepare a feasibility study on options for a visitor area within the Leinster House complex of buildings. A Review Group that includes staff from the Superintendent‟s area and the Communications Unit is currently (April 2012) examining options for the short, medium and long term in this regard.
Number of Tours and People on Tours to Leinster House
7.83 People on tours account for about 40% of visitors to Leinster House.
7.84 Figure 7.1 shows the number of tours conducted by the Ushers and the number of people on the tours between 2005 and 2011.
Fig: 7.1 Number of Tours and People on Tours 2006-2011
No of Tours and People on Tours 2006-2011
60,000 50,000 40,000 30,000 20,000 10,000
No. of People on Tourson People of No. 0 2005 2006 2007 2008 2009 2010 2011 No. of Tours 1,781 1,784 1,892 2,486 2,196 2,093 2,185 No. of people on Tours 37,337 36,290 33,964 54,543 43,502 32,471 35,911
7.85 The public events held within the Leinster House complex during 2008 and 2009 boosted the number of people taking tours during these years. The number of events was scaled back in 2010 and 2011 due to budgetary constraints.
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7.86 There are peaks and valleys in the demand for tours. The greatest demand for tours is on sitting days i.e. Tuesday pm, Wednesdays, and Thurs. The lowest demand is for non-sitting day i.e. Mondays and Fridays. Providing an ample supply of tours to meet demand and to meet visitors‟ preferences is a challenge. The challenges include the need to manage numbers at peak Oireachtas hours to avoid over congestion and the need to ensure sufficient availability of Parliamentary Ushers at peak hours of Oireachtas business to conduct tours and to provide support to the sittings.
7.87 In order to make best use of resources, to minimise disruption to the work of the houses and to management visitor number effectively, there is a need to reduce the fluctuation of demand as much as possible. However, there are constraints to the levelling off of demand across the five workdays of a sitting week. These include visitors and students‟ preferences to see the Houses in operation and visitors‟ preferences to meet with Members of the Houses and Members preferences to meet with visitors from their constituencies when they visit Leinster House.
7.88 The potential to schedule more Oireachtas Education school visits on Mondays and Fridays should be considered further. While this may lessen the experience of the Oireachtas for students, this is somewhat alleviated by the workshops on the work and procedures that are given to students as part of the Outreach Education Programme. Alternative experiences (audio visual, role playing exercises in the chambers and/or committee rooms etc.) could be developed for students visiting at non-sittings times. This would also strengthen the potential to increase the number of students participating in the Outreach Education Programme and reduce the waiting period that schools currently experience when booking tours as part of the Outreach programme.
7.89 It is reported that feedback on the quality and satisfaction of tours shows high levels of satisfaction. The level of satisfaction of visitors partaking in Oireachtas tours is not formally measured. However, Members‟ level of satisfaction with the tours service is measured. A survey of Members conducted in December 2010 showed that 100% of Members surveyed were satisfied with the „tours service‟ and that 92.3% were satisfied with the „visitor management‟ service.
7.90 The current Communications Strategy includes a proposal for making arrangements for people who simply turn up without appointment or invitation.
7.91 In early 2012, a six month pilot project for „Walk Up‟ tours commenced. The tours are provided on non-sitting days i.e. Mondays and Fridays at 11.30 am and 3.30 pm.
7.92 The tour includes visits to the Dáil and Seanad Chambers, Oireachtas Committee Meetings Rooms and to the Leinster House Souvenir Shop. Visits to the LH2000 building and the Committee Rooms is included in these tours on a pilot basis. LH 2000 and Committee Rooms are not included on the normal tour route based on avoiding inconvenience to Members and making best use of available tour guide time, especially on sitting days. For security purposes walk in visitors must have some form of identification. Page | 119
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7.93 Direct visit booking is also planned whereby Members of the public or groups can telephone or book on-line.
Information Materials 7.94 It was an objective of the Communications Strategy 2007-2009 to enhance the quality and accessibility of information material, including on the web.
7.95 The Communications Unit produced a variety of targeted information brochures, leaflets, DVDs/films during the period of the strategy.
Communications Matters: an annual in-house publication distributed to the Members of the Houses. Know Your Parliament – A Guide to the Houses of the Oireachtas aimed at adults ( Irish and English Versions) Your Parliament : A pull out poster aimed at post primary students ( Irish and English Versions) A Day in the Life of a TD: animated flyer aimed at the younger person. (Irish and English Versions) DVD/Films on the work of the Houses of the Oireachtas.
7.96 An updated bilingual booklet „A Brief Guide to How Your Parliament Works‟ was produced and distributed following the 2011 General and Seanad elections.
7.97 Research findings28 (2010) indicate that the level of knowledge of the Houses of the Oireachtas increased by 2% to 44% between 2005 and 2010.
7.98 In 2005, 42% felt they were well-informed about the activities of the Oireachtas. The 2010 research found that „44% of all adults feel they have a good understanding of the role of the Houses of the Oireachtas: almost two-thirds of those under 34 feel they don‟t have a good understanding‟.
7.99 This compares well with the perceived level of knowledge in the UK about the UK parliament. Chapter 8 has a full report on the Onside Marketing research results.
7.100 The Communications Unit is also responsible for producing an Information Pack for Members of the Dáil and of the Seanad following general and Seanad elections.
7.101 Information material is also produced by the Education Unit specifically for students and teachers participating in the Outreach Education programme.
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7.102 Total design, content and print costs for all of the Communications Strategy 2007-2010 activities (including education programme materials) was about €400,000.
Table 7.5 Design and Printing Expenditure, excluding photography Supplier Expenditure 2007-2010 Contract/Non Contract spend (Integra) xxxxx 65,070 Quotations xxxxx 61,570 Print Facility Contract xxxxx 57,439 No contract /Agreement xxxxx 44,296 OPW contract xxxxx 43,457 Print Facility Contract xxxxx 34,373 Print Facility Contract xxxxx 27,955 NPS Central Contract xxxxx 27,945 NPS Central Contract xxxxx 22,523 No contract /Agreement xxxxx 9,186 Print Facility Contract xxxxx 2,420 Not applicable xxxxx 1,210 Not applicable €397,444
7.103 About 37% of Communications Unit‟s total design and print costs was non- procurement contract spend. This is a VFM issue. Higher levels of procured contract spend would have been more conducive to achieving greater value for money. Greater use is now being made of the in-house print facility and NPS and Oireachtas Service contracts for the Communications Unit‟s design and printing needs.
7.104 About €184,000 (46%) of design, consultancy and print costs were in respect of marketing and information materials.
7.105 The public information material (including web based information, games, films) needed updating after the General and Seanad elections in 2011. However, it was not possible to update all the information material, including films, previously developed by the Communications Unit due to cost constraints. Accordingly, some of that material is currently redundant.
Oireachtas Films/DVD 7.106 A film on the work of the Oireachtas was produced in DVD format and for the Oireachtas website at the cost of €97,000. The film was commissioned and developed following a request for tenders. There were seven short films that focused on specific functions and activities of the Oireachtas. A DVD of the films was distributed to post primary schools and is used as part of the Outreach Education workshop presentations.
7.107 The films are available on YouTube by ways of links on the Oireachtas website. However, the total number of hits is low - about 11,000 in 2010. In 2011, following the general and Seanad elections the films needed to be updated. The number of films that were updated was limited due to financial constraints. Currently, three of the original seven films are updated and available on the web.
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7.108 „Oireachtas film‟ also uploads videos of Members speaking on issues of public interest and on Committee Reports, and of special events etc. There are currently (April 2012) 79 subscribers and 21,421 viewers of Oireachtas films‟ on the Oireachtas website.
Information Strategy 7.109 One of the tasks of the Communications Strategy Plan 2007-2008 was to set up an information implementation structure across the Houses.
7.110 The Oireachtas produces a large volume of data and information across its business areas. The Service recognises the need for greater coordination across the Service of the way and manner that information is provided to the public across the Service.
7.111 In June 2011, the Service under its new organisation structure, highlighted „information services‟ as one of four themes that are the main focus of management and development of the Service in the immediate term. „Information Services‟ is a collaboration between the Library & Research Service (L&RS) including FOI and the new and fully integrated communications and information service that includes broadcasting, sound, eDemocracy, website, print and electronic publications.
7.112 The Communications Unit engaged consultants to work on the drafting of an internet strategy. The consultants worked with the Website Editorial Board (WEB) established by the Service‟s ICT Steering Group in 2010. Many of the recommendations of the strategy report submitted in June 2011 dealt with governance issues and the centralisation of information functions which had, in the interim period, been progressed by the Service under its new organisation structure.
7.113 The Steering Group approved the internet strategy and agreed that the development of an Information Strategy is a key next step for the Service.
7.114 The strategy is to ensure that a coherent information lifecycle is applied to all areas of the Service in the creation, management, retention and dissemination of information.
7.115 A discussion document on a proposal for an Information Strategy for the Service was submitted by the L&RS to the MAC in October 2011. The development of an information strategy is identified as a priority task in the current Corporate Business Plan 2010-2012.
Redeveloping the Oireachtas web-site 2009 7.116 Developing a new communications area of the website and developing and launching pages of the website for the general public/ casual visitor were tasks identified in the Communications Strategy for 2007-2009.
7.117 The aim was to provide a new element to the existing Oireachtas website: a second access point to the Oireachtas online. It was envisaged that the new element of the website would be more easily accessible, simple to read and to navigate with fresh content updated daily, aimed at a target audience, and professional in design.
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7.118 A business case was submitted to the Service‟s ICT Steering Group in October 2008 for approval to deliver a new website and web presence for the Oireachtas at an estimated cost of €1.5m.
7.119 The Group had concerns about the capacity and readiness of the Service and of the Communications Unit as configured at that time to deliver on such a major project within the set-in-stone financial deadline of end 2009. As a result an alternative more limited and less expensive proposal was submitted.
7.120 In December 2008, the Steering Group accepted the revised proposal to deliver a communications focused „sub-site‟ aimed at delivering on the objectives of the Communications Strategy rather than a full rebuild of the existing website.
7.121 The ICT Steering Group also agreed that the redevelopment of the main Oireachtas website was a necessary project that should be pursued but perhaps as a 2-3 year endeavour after mid-2009 when it became clear what the Service‟s 3-year financial envelope from 2010 would be.
7.122 The website‟s new element would be an education section targeted at the Oireachtas Outreach Programme and at different age groups; a media section to provide information for the media; and an events section that included a ticketing facility adaptable to cater for all Oireachtas public events.
7.123 For Phase 2 of the Business Case, the request for approval to proceed with the revised project submission gave an indicative cost of a maximum of €350,000 inclusive of VAT.
7.124 The development, design and content work for the website was put out to tender which is conducive to achieving value for money.
7.125 Payments were generally in accordance with the agreed contact price and the total direct cost of the project came in at about €160,000 which was well below the indicative cost.
Table 7.6 on the page below gives details of the contracts entered into for the development of the website
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Table 7.6 Contracts Placed for the development of the Website Contract HOLDER DURATION PROCEDURE VALUE* PAYMENTS (excl. VAT) 2009-2010 (ex withholding tax) Terminal Four 08/2009 – 12/ 2014 Open €xxxxx €38,593 Website Design & Consultancy Open Interface Design 08/2009 – 12/ 2009 Open €xxxxx €13,353 Website Design XWERX Multimedia 09/2009 – 12/ 2009 Restricted €xxxxx €13,803 Web redevelopment Design & Interactive games AMAS* 03/2009 – 10/ 2009 Restricted €xxxxx €25,797* Web redevelopment with option to extend consultancy Fusio e-democracy contract e-democracy xxxxx €12,077 Implement new design contract €131,348.00 *An additional €22,000 was paid to AMAS in respect of Communication Strategy consultancy, including website audit and design in 2008, prior to the commencement of the project. These costs are chargeable to the website development costs.
7.126 The project aim to deliver the Communications Strategy objective to develop Education, Media and Events areas of the Oireachtas website was achieved. Content, commission and developed and paid for by the Marketing & Information area (films, information material) and the Education area (teachers‟ and students‟ packs and material) of the Communications Unit were uploaded to the new areas of the website. However, compliance with obligations regarding the website under the Official Languages Act needs strengthening.
7.127 However, no post project evaluation was conducted to determine the extent to which the project has achieved its intended outcomes and whether predicted benefits were realised.
Oireachtas Website Strategy 7.128 During the strategy period responsibility for the website was fragmented across different sections and across the four Directorates of the Service. Service activities that impacted on the website were not integrated and there was no clear demarcation of roles and functions regarding website development and updating.
7.129 In its Preliminary Issues Paper (2009), the Service‟s Office Review Team (ORT) reported the view that:
“There would seem to be a clear link between the work of ICT and that of eDemocracy and Management Services Unit (MSU) with regard to systems development and the development and updating of the website. Currently a number of sections have involvement with the
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VFM and Policy Review of the Houses of the Oireachtas Communications Strategy website– eDemocracy, ICT and Communications – streamlining these activities into one section could lead to synergies in the use of staff.”
7.130 “It is evident that the lack of clarity regarding overall designated responsibility and authority have hampered an integrated and uniform approach to the development and maintenance of the Oireachtas website”29. The current Communications Strategy notes that there was a failure to prioritise web management in the first communications strategy.
7.131 Following changes to the Service‟s organisational structure in 2011 responsibility for the website and related functions is now consolidated under the Parliamentary Services Division under its „ information services‟ management and development theme.
7.132 The current Communications Strategy identifies the next steps as the development of a „cohesive new media policy for the organisation that reflects the importance of the web and matches it with a clear ambition to maximise its use‟
7.133 In early 2012, as part of the integration of the website functions, there was a transfer to a single content management system aimed at improving search and navigation and webmaster/web management support. The search and navigation functionality of the website is perceived as weak. An online survey in 2010 of users of the debates web pages recorded only a 58% satisfaction with the search functionality. There is also evidence of shortcomings in the updating of public information and material on the website.
7.134 In 2011, 1,061,968 people visited the www.oireachtas.ie website compared with 1,021,600 visitors in 2010, a 4% increase. In 2011, 62% of people were returning visitors.
7.135 The Onside Research (2010) survey commissioned by the Communications Unit indicated that the percentage of the public who sourced information about the Oireachtas from the web increased by 7%, i.e. from 4% to 11%.
7.136 The 2010 research also indicated that 11% came across information on the Oireachtas from social networking sites. There was a general acceptance that for „the next generation‟ that such media channels will be key in increasing levels of engagement with the Oireachtas and the political process in general. In the short term, the research found that „some were cynical of recent use of such media with a concern that any flippant use of Facebook, Twitter etc. may in some way undermine the integrity of the Houses‟.
Social Media 7.137 Since the Oireachtas first Communications Strategy for there has been a dramatic expansion in social media usages in all age ranges and demographics. The Communications Strategy for 2010-2012 acknowledges this phenomenon and has prioritised new media, including social media networks for attention during the current strategy period.
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7.138 Actions include the monitoring of relevant social media, discussion boards and websites (e.g. kildarestrret.com, thejournal.ie, and politics.ie) and participating more in social media networks i.e. Twitter, Facebook, YouTube, Flickr. The rise of the citizen journalism where members of the public play an active role in the process of collecting, reporting, analysing, and disseminating news and information is a development that directly impacts on the objectives of the Communications Strategy. 7.139 Some of these websites take on the role of „watchdog‟ e.g. „kildarestreet.com which aims to make it easy for people to keep tabs on their elected representatives in the Houses of the Oireachtas‟30 and accordingly, have an impact on public perception of the Houses and its Members.
7.140 The Oireachtas has a, Twitter, Facebook, YouTube and Flickr presence.
Twitter followers increased from about 3,000 in 2010 to over 5,000 in 2011 and currently (April 2012) stands at almost 6,500 followers.
Facebook followers increased by 25% between 2010 and 2011 (from 1,067 to 1,337) and currently there are over 1,500 followers.
7.141 While the number of followers is very low, the same situation applies generally in other parliaments.
Table 7.7 Social Networking Followers in four Parliaments April 2011 Ireland Nth Ireland Scotland Wales Twitter 6,500 6,900 5,640 9,320
Per Population 1:708 1:260 1:922 1:322
Facebook 1,500 1,193 No Facebook 350
Per Population 1:3037 1:1509 - 1:8574
Population 4.6m 1.8m 5.2m 3.0m
7.142 There is a need for a clear statement of the primary objective of the Oireachtas social networking presence and the principles governing that presence aligned with an assessment of the resources that the Service can or is willing to commit to this activity in the current climate of staff recruitment moratoriums and reduced staffing levels.
7.143 For examples, is social networking an appropriate tool for the promotion of parliament; is the ultimate primary objective of the Oireachtas social networking presence to drive online traffic to the Oireachtas website; or to provide opportunities for the public to engage with parliament; or as a tool to send out information? Is the objective to maintain a high level of quality 'live' online connectivity?
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7.144 The creation and maintenance of a live parliamentary network presence can require significant staff resources. The objective and level of the Oireachtas social networking activity will be determined by the staff resources and skills mix available from existing staffing levels and the real or perceived benefits and potential risks that a social networking presence will bring to the Oireachtas.
7.145 It is also recommended that the Oireachtas Service develops guidelines regarding the purpose, usage, and style for the Oireachtas social network presence, in order to maximise the benefits of social networking to the Houses and its Members while minimising the risks associated with social networking that may impact on the reputation, dignity and decorum of the Houses and its Members.
Mobile devices/ smart phones 7.146 The use of mobile devices/ smart phones to visit the Oireachtas website, while accounting for a relatively small number of visitors, is increased steadily each year.
7.147 Currently (April 2012), visitors using mobile devices/smart phones accounted for 5.21% (15,875) of all visitors,
Table 7.8 Mobile Device Visitors to Oireachtas Website 2010 and 2011 System 2010 % of total visitors 2011 % of total visitors % difference iPhone 5,654 0.55% 15,991 1.45% 172% iPad 851 0.08% 6,706 0.63% 688% Android 578 0.06% 5,257 0.50% 810% iPod 527 0.05% 1,941 0.18% 128% Blackberry 191 0.02% 471 0.04% 147% Total 7,801 0.76% 30,366 2.80% 289%
7.148 Mobile device visitors accounted for 0.76% of all visitors to the website in 2010. This increased to 2.8% in 2011.
7.149 It can be anticipated there will be a significant increase in the use of mobile devices to access information on the Oireachtas website with the distinct possibility that mobile access will exceed desktop computer access within a relatively short number of years with technical improvements in mobile internet usability.
7.150 Mobile sites and mobile apps are likely to become the preferred choice of users to access information. This presents fresh challenges and opportunities to the development of the Oireachtas website strategy objectives, the design of the site and materials and the protection of the site and Oireachtas network.
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Conclusions 7.151 The objectives of the information and marketing sub strategy of the Communications Strategy remain valid. The information and marketing function supports the Strategic Objectives of the House of the Oireachtas Commission and supports wider public reform initiatives.
7.152 Providing information in respect of the Parliament is an essential element of parliamentary democracy. The public have a right to be informed of the work of their parliament and to have accurate, timely and accessible information about the Houses of the Oireachtas. The strategy objectives of improving public understanding of the work of the Houses and of promoting parliament are also valid in supporting public accountability and openness of parliament.
7.153 The providing of public information and data about the parliament was not coordinated and responsibility for the website was fragmented across the Service during the Communications‟ Strategy period. This was not conducive to a strong communications strategy and hampered the development of the website. Following changes to the organisation structure in 2011, responsibility for public information functions and the website has been consolidated more fully under an „information services‟ area of the Parliamentary Services Division of the Oireachtas Service.
7.154 The development of an Information Strategy, which is identified as a priority task in the current Corporate Business Plan 2010-2012, is to ensure that a coherent information lifecycle is applied to all areas of the Service in the creation, management, retention and dissemination of information.
7.155 The Service invested in the development of a cohesive visual identify of the Houses of the Oireachtas Commission. This identity has not been fully established. Greater compliance with the usage guidelines across should strengthen the identity. Compliance with obligation under the Official Languages also needs strengthening i.e. website, information materials, and services.
7.156 While the large public events organised by the Oireachtas were deemed successful, the cost on average per person attending these events was high. Hosting large events is not sustainable and cannot be considered a priority in the current social, economic and political climate. Cross promotional events (e.g. Culture Night and Open House) have proved successful and can be delivered at relatively low cost and with low levels of disruption.
7.157 Overall, there was expenditure control and value for money procurement issues regarding expenditure on events and on information and marketing material. It was difficult, and at time impossible, to determine the budget that was allocated to certain activities and to determine the allocation of costs and the running total of project spend.
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7.158 However, lessons were learned and more economic and efficient ways of implementing strategy actions (events, information material etc.) were achieved e.g. scaling back of activities, negotiating price, greater use of public service and in-house services and central procurement contracts. Revised project management guidelines for the Service are currently being developed to include the stronger control of project expenditure mechanism across the Service.
7.159 There was a marginal increase in the level of knowledge of the Houses of the Oireachtas. The results indicate that the process of increasing understanding of the parliament follows a slow path and that the objective of increasing understanding of the role of the Houses and its Members is very much a longer term objective to be achieved and maintained incrementally over a long period of years.
7.160 Research indicates that the percentage of the public who sourced information about the Oireachtas from the web has increased and that the number of visitors to the Oireachtas website site has increased.
7.161 There is a need for a clear statement of the primary objective of the Oireachtas social networking presence and of the integration of social media with the communications strategy. Any statement of principles governing that presence needs to be included an assessment of the resources the Service can or is willing to commit to this activity. Aligned with this is the need to have a clear statement on what are the Service‟s priorities and objectives regarding the Oireachtas website within the context of the emerging dominance of social media sites among certain age groups.
7.162 It is recommended that social media usage policy and guidelines for the Service and Members are developed to maximise the benefits of the use of this technology, whilst maintaining the impartial role of the Service, the reputation of the Houses and its Members.
7.163 The absence of a dedicated visitors' space is hampering the development of the visitors and tours service and the Outreach Education school tours programme. A Review Group is currently (April 2012) examining options for the short, medium and long term in this regard.
7.164 In order to make best use of resources, to minimise disruption to the work of the houses and to management visitor number effectively, there is a need to reduce the fluctuation of demand as much as possible. However, there are constraints to the levelling off of demand across the five workdays of a sitting week, including visitors‟ preferences to visit while the Houses are sitting.
Recommendations 1. There needs to be a clear statement of the principles governing the Oireachtas social networking presence. It is recommended that the Oireachtas Service develops guidelines regarding the purpose, usage, and style for the Oireachtas social network presence, in order to maximise its benefits for the Houses and its Members while
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minimising the risks associated with social networking that may impact on the integrity of our national parliament. 2. Aligned with this is the need to have a clear statement on what are the Service‟s priorities and objectives regarding the Oireachtas website. 3. Ensure, in so far as is possible, that public information material on the roles and functions of the Oireachtas (including web based information, games, films) is generic in order to minimize the cost of preparing new information material after each general and Seanad election or changes to Members‟ ministerial portfolios etc. 4. Restrict the number of events held each year in the Oireachtas. Avail of opportunities to extend partnerships with cross promotional events, where appropriate, and in keeping with the decorum and dignity of the Houses 5. Review and reissue the guidelines on the usage of the visual identity of the Houses and assigned responsibility for the implementation of the guidelines across the Service to a member of staff of the Information Services area. 6. Promote greater awareness and compliance of obligations under the Official Languages Act in all communication activities. 7. There is a need to reduce the fluctuation of demand for tours as much as possible. A preliminary business process improvement (BPI) assessment is recommended in this regard, in order to make best use of resources; to minimise disruption to the work of the Houses; and to enhance the effective management of visitor numbers. 8. The potential to schedule more Oireachtas Education Programme school visits on Mondays and Fridays should be considered further to level out tour demand, to increase the number of students participating in tours and to respond more timely to school requests for tours. While this would lessen the experience of the Oireachtas for students, this is somewhat alleviated by the workshops on the work and procedures that are given to students as part of the Outreach Education Programme. Alternative experiences (audio visual, role playing exercises in the chambers and/or committee rooms etc.) could be developed for students visiting at non-sittings times. 9. Make published information on Members‟ expenses more visible and more accessible on the website.
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Chapter 8: Effectiveness
Introduction 8.1 This chapter addresses item 4 of the Terms of Reference, namely;
“Examine the extent that the Communications Strategy objectives have been achieved, and comment on the effectiveness with which they have been achieved.”
8.2 The overarching goal of the Communications Strategy 2007-2009 was transforming the public perception and understanding of the role of the Houses and its Members. The current plan for the 2010-2012 period focuses on a new high-level objective of a more fundamental use of communications to build confidence in the Houses and its Members.
8.3 In 2005, a TNS MRBI National Poll was commissioned on behalf of the Houses of the Oireachtas Service to help inform the development of the 2007-2009 Communications Strategy. The poll was conducted by phone and the answers were unprompted.
8.4 In 2010, a further study31 was commissioned by the Service with the principle objective of uncovering awareness, attitudinal and interest levels of the Houses of the Oireachtas among the wider population. The survey population was presented with a structured questionnaire.
8.5 A comparison between the findings of the two surveys and an analysis of research conducted independently of the Oireachtas provides information to gauge any changes to the public perception and understanding of the Houses of the Oireachtas and its Members. The data is based on different survey questions and, therefore, while it should be interpreted with caution, is considered valid.
Context 2005-2010 8.6 The period between the 2005 and 2010 surveys were eventful. In 2005, Ireland was at the height of economic boom years. In 2007, general and Seanad elections were held and a new coalition government was elected. The boom years came to a dramatic halt following the collapse of property prices, the Eurozone and global financial crises followed by the IMF/EU/ECB agreement. Media scrutiny of Oireachtas Members‟ expenses also increased following revelations on MPs expenses in the UK media.
8.7 Taken together these developments nationally and internationally might be expected to impact on public perception of national parliaments. There is no doubt that public trust in the national parliaments, in government and in public and private institutions have been badly shaken during the period of these developments. Research indicates that the Eurozone crises
31 Onside Marketing, The Houses of the Oireachtas, Public Research Study (May 2010) Page | 131
VFM and Policy Review of the Houses of the Oireachtas Communications Strategy has impacted negatively on the level of trust in the national parliaments of Eurozone periphery countries, including Ireland, more severely than on other EU parliaments,32
Trust in Parliament 8.8 There is evidence33 that public trust in national parliaments has, on average, fallen in Ireland and in most of the rest of Europe from 2001 to 2010. The changing economic and social climate has impacted on the level of trust in the Irish parliament and in the wider EU.
Figure 1 Level of trust in national parliament
70%
60%
50%
40%
30%
20%
10% Proportion who tend to the trust national parliament
0% Spring Autumn Spring Autumn Spring Autumn Spring Autumn Spring Autumn Spring Autumn Spring Autumn Spring Autumn Spring 2003 2003 2004 2004 2005 2005 2006 2006 2007 2007 2008 2008 2009 2009 2010 2010 2011 Ireland EU15 EU27 Source: Boyle Richard, IPA, Research Paper No 6, Public Sector Trends 2011 (Nov 2011) based on Eurobarometer ‘twice yearly measures of confidence in the national parliament’ surveys’.
8.9 Dr Boyle‟s research shows a fall in trust in parliament in Ireland that far exceeded the average fall in trust in national parliaments in the rest of Europe.
„Irish trust in parliament is lower than the EU average and was around the EU average until 2008. From 2008 to 2010, as with trust in government, trust in parliament dropped rapidly both in absolute terms and compared to European averages. Ireland has the second lowest level of trust in parliament in the EU15 in Autumn 2010 (below Spain)‟
„In Spring 2011, 39 per cent of respondents expressed trust in the Irish parliament‟. This brings the level of trust in parliament „back above the EU 27 average but still below the EU 15 average.
8.10 The rapid fall in the level of trust in parliament in Ireland is mirrored in the fall in the level of trust in government. See Fig 2 – Level of Trust in Government.
32 Roth F, Centre for European Studies, The Eurozone Crisis and its Effects on Citizens’ Trust in National Parliaments, (Dec 2010). 33 Boyle Richard, IPA, Chapter 5 , Research Paper No 6, Public Sector Trends 2011 (Nov 2011) based on Eurobarometer ‘ twice yearly measures of confidence in the national parliament,
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Figure 2 Level of trust in government
60%
50%
40%
30%
20%
Proportion who tend to the trust government 10%
0% Spring Autumn Spring Autumn Spring Autumn Spring Autumn Spring Autumn Spring Autumn Spring Autumn Spring Autumn Spring 2003 2003 2004 2004 2005 2005 2006 2006 2007 2007 2008 2008 2009 2009 2010 2010 2011 Ireland EU15 EU27 Source: Boyle Richard, IPA, Research Paper No 6, Public Sector Trends 2011 (Nov 2011) based on Eurobarometer ‘twice yearly measures of confidence in national governments surveys’.
8.11 Trust in government in Ireland also suffered a dramatic fall between 2008 to Spring 2011, the level of trust in government also increased significantly to 42 per cent, which is close to the EU 15 average34‟
8.12 The survey measures on trust in parliament and trust in government also suggests that that the public does not make a distinction between parliament and government.
Increasing Trust in the Houses of the Oireachtas 8.13 Participants in the Onside Research (2010) were asked (prompted) what initiatives would increase trust and confidence in the Houses of the Oireachtas. The results are summarised in Table 8.1 below. Table 8.1 Initiatives to Increase Trust and Confidences in the Oireachtas Initiative (Prompted) Finding Clearer explanation of all new legislation passed 92% Regular publication of expenses claimed by Members 88% Regular publication of the costs involved in running the Houses 88% Hire experts in different areas (Health, Education etc.) to advise the elected 84% Members Coverage of the key decisions taken by the Houses on social media 83% Advance publication of the topics to be debated in the Houses 82% Hire an independent spokesperson to tell us what is happening in the Houses 82% A ‘”Day in the Life” TV documentary 74% Public meetings/ talks in local areas about the role and workings of the Houses 70% More tours of the building of the Houses 50%
34 Boyle Richard, IPA, Chapter 5 , Research Paper No 6, Public Sector Trends 2011 (Nov 2011) Page | 133
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8.14 A majority indicated that clearer communications on explaining legislation and on explaining expenditure, including expenses, would help to increase peoples‟ level of trust and confidence in the Houses of the Oireachtas.
Perceived Role of the Houses of the Oireachtas The role of the Oireachtas is described in Article 15 of Bunreacht na hÉireann.
Article 15 2. 1° The sole and exclusive power of making laws for the State is hereby vested in the Oireachtas: no other legislative authority has power to make laws for the State.35
8.15 The MRBI Phone Poll (2005) asked people, unprompted, what they believed is the role of the Oireachtas. 31% of people polled believed that the role of the Oireachtas is to govern and 18% believed that the role of the Oireachtas is to legislate.
Table 8.2: Role of the Oireachtas Role of Oireachtas MRBI Poll (2005) Onside Marketing Poll Change (2010) Govern Country 31% 28% -3% Legislate 18% 34% +16%
8.16 The results of the 2010 study show a shift in people‟s perception of the role of the Oireachtas. The largest percentage of respondents in 2010 understand that the main role of the Oireachtas is to legislate i.e. to „pass/formulate legislation (31%) and to „debates legislation‟ (3%)
8.17 About 21% of respondents aged 34 and over understood the role of the Oireachtas is to „pass/formulate legislation‟ compared with 42% of respondents aged 65 and over.
8.18 90% of respondent in the 2010 survey were in agreement with the value association that the Houses are an important debating forum: and 83% agreed with the value association that the Houses were where national laws are made.
8.19 About 31% of respondents in the 2005 poll indicated that the role of the Oireachtas is to govern the country. The 2010 poll shows a slight shift (-3%) away from this understanding. Respondents aged over 65 were the largest category of respondents who replied that they understood the role of the Oireachtas is to govern (37%).
8.20 The stated conclusion of the Onside 2010 research study is that „the key perceived role of the House of the Oireachtas is to legislate, and run the country‟.
8.21 Comparison between the results of the 2005 and 2010 polls reveal that there is an improved understanding of the primary role of the Oireachtas to exercise the powers invested in it to legislate for the State.
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8.22 The results also support the conclusion that there is often confusion about the difference between parliament and government and the very distinct function of each. A common public perception is that the Oireachtas and the Government is the same entity. Other parliaments have also commented on the lack of understanding of the distinction between Parliament and government and the widespread perception that they are one and the same. This poses particular challenges on parliaments to ensure that it asserts itself as a separate entity and points to the need to rethink or adjust previous approaches to promoting the Oireachtas and its Members.
Oireachtas Efficiency 8.23 The 2005 MRBI Poll found that 39% of respondents considered that the Oireachtas carries out its role efficiency. However, the number of respondents who considered that the Oireachtas is run efficiently fell by 16% to 23% in 2010. Only 16% considered that the Oireachtas is delivering „value for money‟ in 2010.
8.24 In the UK, satisfaction levels with the way that Parliament works have declined also: from 36% in 2004 to 33% in 2010 and to 27% in 2011, a decrease of 9% over the 2004 to 2010 period.
Table 8.3: Efficiency of the Oireachtas MRBI Poll (2005) Onside Marketing Poll Change (2010) Efficiency of 39% 23% -16% Oireachtas
8.25 The „default‟ position of many participants in the 2010 study is that „the Oireachtas is not run efficiently, although a minority appear to have adopted such a position as much on the basis of a perceived mismanagement of the broader economy by “the Government” in recent years, than specific inefficiencies within the Houses‟.
8.26 Others, critical of efficiencies cited the following core areas of concern: A lack of transparency regarding Members‟ expenses. Perceived waste of taxpayers‟ money on initiatives and departments, (e.g. HSE), and A feeling no central function (e.g. within the Department of Finance) is setting priorities with regards to capital expenditure nor ensuring that best value for money is being achieved.
8.27 The issues of public concern again reveal a level of public confusion about the different functions and roles of parliament and government.
8.28 A range of suggestions were made spontaneously with regard to improving the efficiency of the Oireachtas, including:
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„The hiring of experts in certain fields (particularly) economics to counteract the perceived dearth of knowledge among elected Members. Greater use of cross party committees. Transparent identification and tracking of expenditure and expenses. Transparent identification and tracking of timescales for e.g. the enactment of legislation.
Understanding/Knowledge of the Oireachtas 8.29 Studies by the Hansard Society 36 identify a lack of knowledge about politics as one of the most important barriers to engagement between the public and the political system, including parliament. The Onside Research findings (2010) indicate that the level of knowledge of the Houses of the Oireachtas increased by 2% between 2005 and 2010.
Table 8.4: Understanding/Knowledge the Oireachtas MRBI Poll (2005) Onside Poll (2010) Change Understanding/Knowledge of 42% 44% +2% Oireachtas
8.30 In 2005, 42% felt they were well-informed about the activities of the Oireachtas. The 2010 research found that „44% of all adults feel they have a good understanding of the role of the Houses of the Oireachtas: almost two-thirds of those under 34 feel they don‟t have a good understanding‟.
8.31 There was a marked difference in the level of understanding indicated by men and women. When asked how well do you feel you understand the role of the Houses of the Oireachtas, 51% of males indicated either „ very well‟ or „fairly well‟, compared with 39% of females.
8.32 The 2010 research also found that level of understanding of the Oireachtas of those living in the Connaught/Ulster region was below the national average.
8.33 While the results reveal that the level of public knowledge of the Oireachtas has remained relatively static with a 2% increase between 2005 and 2010, they compare well with the perceived level of knowledge in the UK about the UK parliament37. In 2010, 37% felt knowledgeable about the UK parliament, up from 33% in 2004 and 38% in 2008. In 2011, the levels of knowledge in the UK reached 44% (i.e. Ireland‟s 2010 level) following the UK general elections.
Interest in knowing about the Oireachtas 8.34 There was no significant change in the level of interest in finding out more about the Oireachtas. 49% of respondents to the 2005 poll indicated that they were interested in knowing
36 Hansard Society and Electoral Commission (2007) , An Audit of Political Engagement 4 (London: Hansard Society ; Hansard Society (2008) Audit of Political Engagement 5 37 Hansard Society, Audit of Political Engagement 7 (2010) Page | 136
VFM and Policy Review of the Houses of the Oireachtas Communications Strategy more about what takes place in the Oireachtas compared with 48% who were either „very interested‟ or „fairly interested‟ in 2010 – with above average interest stronger among females, those living in Munster and those aged 65 and over.
Table 8.5 Interest in knowing more about the Oireachtas MRBI Poll (2005) Onside Poll (2010) Change Interest in knowing more 49% 48% -1% about the Oireachtas
8.35 The 2010 Onside Survey found that „those that already claim to have a good understanding of the role of the Houses and its Members have a stronger interest in finding out more - with a majority of those unaware of the roles of the Houses limited in their interest to change this.
8.36 The 2010 research concluded that under 34‟s and females are the audience that have an appetite for more communications from the Houses of the Oireachtas; that the Oireachtas own media (report and online) should be developed to reach those key audiences in new ways - with the spotlight placed on new ways of explaining legislation.
How information is received 8.37 Participants in the MRBI (2005) Poll were asked, unprompted, how they currently received information about the Oireachtas. The „national media‟ was found to be the principal source of information on the Houses, followed by „local media‟. About 4% cited the website as their source for receiving information
8.38 Full findings of 2005 poll question are shown in the Table 8.6 below.
Table 8.6 INS/MRBI Poll 2005 Sources of Information on the Oireachtas Sources of Information 2005 Finding National Media 87% Local Media 36% Booklets 5% Website 4% Others 6% Don’t Know 2%
8.39 The 2010 research questionnaire asked participants to indicate from what sources, prompted, had they ever come across any information about the Houses of the Oireachtas.
8.40 The results show that the national media remains the principal source of public information on the Oireachtas. The findings are contained in Table 8.7 below.
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Table 8.7: Sources of Information on the Oireachtas 2010 Sources of Information 2010 Finding TV news/current affairs 87% National Radio 78% Word of Mouth 63% Local Newspapers 58% Local Radio 57% Broadsheet Newspapers 57% The Oireachtas Report (TV) 52% Tabloid 36% Oireachtas.ie website 11% Social networking sites 11% Other 11% None of these 5%
8.41 There was a marked increase (+ 12%) in the local media being a source of information. The 2007/2009 Communications Strategy identified regional newspapers and radio stations as an essential area of focus. The Communications Unit proactively targeted regional media by contracting a freelance journalist to act as a regional Oireachtas correspondent. The findings support the view that enhanced coverage of the work of the Houses and their Members in the regional media has been achieved.
8.42 The percentage of the public who replied that they sourced information from the web increased by 7%, i.e. from 4% to 11%. The Oireachtas website was redeveloped during the period of the review. The website includes a dedicated media zone, an education and an events area, Oireachtas podcasts, webcasting, archive recordings, the Official Report of Debates and information on the Houses and its Members.
8.43 The 2010 research revealed that 11% came across information on the Oireachtas from social networking sites. There was a general acceptance that for „the next generation‟ that such media channels will be key in increasing levels of engagement with the Oireachtas and the political process in general. In the short term, the research found that „some were cynical of recent use of such media with a concern that any flippant use of Facebook, Twitter etc. may in some way undermine the integrity of the Houses‟.
8.44 The 2010 research found that TV News/Current Affairs, the Oireachtas Report and the website www.oireachtas.ie are considered to be the most credible sources of information.
8.45 The research also found that most information regarding the Houses is received on a passive or semi-passive basis (TV, Press, Radio, Word of Mouth).
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Perception of Members’ Work 8.46 54% of respondents to the 2005 poll said that TDs and Senators worked hard. The 2010 research did not contain a comparable quantitative question. However, the qualitative research found that „it is clear that there is some underlying sympathy for the Members at a human level, and the toll that the cut and thrust of life in the Oireachtas must take on them‟.
8.47 Some participants in the 2010 research study were of the opinion „that elected representatives (TDs in particular) are more likely to be preoccupied with addressing local constituency issues than they are to focus on their “national” legislative responsibilities by virtue of the fact that they have to face the electorate every 4-5 years‟.
8.48 This finding is supported by TDs own perception with regard to their workload. A survey of TDs in 201038 found „that TDs report that they spend (on average) 53% of their working time on constituency-based work, 38% on legislative work and 9% on „other‟ work‟39 .
Conclusions 8.49 Complex economic, social and political factors, outside the control of the Communications Unit, greatly influenced the public‟s perception of the Houses of the Oireachtas and its Members.
8.50 Reduced resources for services, a large budget deficit, job losses, the collapse of property prices, the IMF/EU/ECB agreement, budget adjustments and media scrutiny of Members‟ pay and expenses all contributed to a collapse in trust both in parliament and in government between 2008 and 2010. The level of trust in parliament has also, on average, fallen in most of the rest of Europe from 2001 to 2010, but not to the same extent as in Ireland. Trust in parliament and government in Ireland recovered in 2011.
8.51 The data indicates the public generally does not make a distinction between parliament and government.
8.52 Clearer communication on explaining new legislation and greater openness and transparency about expenditure, including expenses, are initiatives identified by the public to increase confidence and trust in parliament should be pursued further.
8.53 The steep decline in the satisfaction level with how the House of the Oireachtas is run warrants particular attention. The UK parliament has also experienced a decline in the satisfactions level on how parliament works, but not to the same extent.
38 Joint Committee on the Constitution, Third Report, Article 16, Result of Survey of Members of Both Houses of the Oireachtas, The Electoral System, Representative Role of TDs and Proposals for Change , Interim Report, (February 2010).
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8.54 The qualitative research from the Onside Research on efficiency reinforces the argument that the public, by and large, do not perceive the role and function of the Houses of the Oireachtas as being distinct from the role and function of Government and government departments. Nevertheless, the public perception that the parliament is not run efficiently needs to be addressed.
8.55 Overall, there have been positive results.
8.56 People‟s views about the primary role of the Oireachtas have changed. In 2010, over a third believed that the role of the Oireachtas is to legislate compared with over a sixth in 2005, almost doubled.
8.57 The level of knowledge of the Oireachtas has improved slightly between 2005 and 2010 and is higher than that for the UK parliament for the same period. The level of knowledge of parliament has been increasing incrementally in the UK. This suggests that there may be a core body of people who have knowledge of parliament in both countries and that the best that can be achieved is incremental increases in the level of knowledge of parliament over a period of years.
8.58 The research indicates that under 34‟s and females are the audience that have an appetite for more communications from the Houses of the Oireachtas and concludes that the Oireachtas‟s own media should be developed to reach this key audiences in new ways - with the spotlight placed on new ways of explaining legislation.
8.59 The national media are still top of the list of sources of information about the Houses of the Oireachtas. However, there was broader and increased use of other media, including social networking, as sources of information.
8.60 A significant increase in the percentage of people who cite local media as a source of information about the Oireachtas indicates that the Communications Unit‟s strategy to target regional newspapers and radio stations has been successful.
8.61 The stated use by the public of the web as a source information about the Oireachtas has almost tripled. The current Communications Strategy 2010-2012 identifies the requirement for a cohesive new media policy for the organisation that reflects the importance of the web and matches it with a clear ambition to maximise its use.
8.62 Since the Communications Strategy for 2007-2009 was developed there has been a phenomenal rise in the use of social media networks and sites, including „citizen journalist‟ type blogs. Over a tenth of people cited social networking sites as a source of information on the Oireachtas.
8.63 Social media presents opportunities for new two-way engagements between parliament and the public and for targeted communication with key audiences (e.g. under 34 and female).
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However, there is a resource overhead and risks associated with social media. The maintenance of social media messages requires almost instantaneous responses and condensed messages and responses, often to complex issues. The 2010 research found that some respondents were cynical of recent use of such media with a concern that any flippant use of Facebook, Twitter etc. may in some way undermine the integrity of the Houses.
Recommendations Develop updated KPIs to measure the impact and outcome of Communications Strategies. A sample list of potential effectiveness KPIs is included in Chapter 9, Table 9.1. See recommendations above regarding [Objectives Chapter 3] the need for achievable and measurable strategy objectives and regarding [Media Chapter 6] the need for evidence based research to evaluate progress towards strategy goals.
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Chapter 9: Potential Future Performance Indicators
Introduction 9.1 This chapter address the Term of Reference namely;
“Specify potential future performance indicators that might be used to better monitor the progress and impact of the Communications Strategy”
9.2 There is a good framework in place for capturing the inputs and the outputs of the Communications Strategy and for reporting progress in these areas to management. However, factors that impact on progress of outcome objectives (e.g. improved perception of parliament) are often outside the Communications Unit‟s direct control and influence. Strategy objectives should be measurable and, in so far as is possible, should be under the direct control and influence of the people or organisation implementing the strategy.
9.3 MIF metrics feed into a monthly report presented to the Management Advisory Committee (MAC). An executive dashboard also monitors progress towards the completion of Communications Strategy tasks identified in the Service‟s Corporate Business Plans and the progress is reported to MAC and reviewed on a quarterly basis.
Performance Indicators 9.4 External factors that are outside the control of the Communications Unit make it very difficult to isolate, to measure and to evaluate the direct impact that the Communications Strategy has made on “public perception”. Research also indicates that the public does not make a distinction between parliament and government in Ireland and across the EU. This complicates further an evaluation of the progress towards the achievement of communication strategy objectives.
9.5 The objective of increasing “public understanding” is an aim that is more amenable to measurement by commissioned quantitative and/or qualitative marketing research. Such research commissioned on a periodic basis can provide valuable information. However, acquiring information about peoples‟ information needs and expectations and views about parliament can be costly. However, insight into public opinion and knowledge is necessary for the purposes of developing and evaluating Oireachtas Communications Strategies. To reduce the cost of surveys, they can be carried out in conjunction with other research projects (e.g. university politics departments, IPA) with the necessary safeguards against survey bias or the survey methodology can be tailored to available budgets and limited to key evaluation questions e.g.; Perceived knowledge of the work of the Houses and its Members, across demographic groups Satisfaction with the way parliament works, across demographic groups.
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9.6 The results of such research should be comparable with surveys of perception and understanding of parliaments carried out in other jurisdictions e.g. The Hansard Society Annual Audit of Political Engagement.
9.7 External surveys by public service organisations can provide valuable information on public understanding and perception of parliament. Eurobarometer‟s „twice yearly measures of confidence in the national parliament‟ surveys are an indication of levels of confidence and trust in our national parliament in comparison with other EU countries
9.8 The following input, output and outcome indicators are recommended for consideration. The framework for many of these indicators is already in place and many of the indicators are already being captured in the Service‟s MIF system and reported to management.
Table 9.1 Potential Indicators
Area Indicator Communication Strategy (Outcomes) Commissioned Research Based Public Survey for each strategy period.
Perceived public knowledge of the work of the Houses and its Members, across demographic groups, benchmarked and repeated for each strategy period.
Public satisfaction with the way parliament works, across demographic groups, benchmarked and repeated for each strategy period.
In-house Survey Results Members’ satisfaction rating on the services provided by the Oireachtas Service.
External Survey Eurobarometer twice yearly measures of confidence in EU national parliaments surveys.
Strategy Tasks % of Communications Strategy tasks/projects completed at end of strategy period.
% of Corporate Business Plan (CBP) tasks completed at end of CBP period. Costs (Input) Expenditure as % of Service’s Operating Costs Actual Cost to Budget Communications Staff (Input) WTE Staff as % of WTE Service Staff % PMDS Completed Weighted average PMDS rating Projects (Input, and Outcome) Actual Cost to Budget No/% post project evaluations completed Website (Input, Output, Outcome) % of Communications Unit budget spend on developing website and social media.
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Satisfaction Rating – online survey
No. of Visitors to Website % of return visitors % of new visitors
No/% of web visitors using mobile devices to access website. No. of Facebook followers. No. of Twitter followers. Media (input, outputs, outcomes) % of Communications Unit budget spend on regional press and local radio reports.
Number of local papers carrying commissioned ‘Oireachtas Report’ and combined readership.
Number of local radio stations ‘This Week in the Oireachtas’ report and combined listenership.
In-house or commissioned results of evaluation research of national media reporting benchmarked. Examples of standard evaluations research questions: Quality of new reports Tonal bias evaluation Tone of the media Core message tracking Press releases tracking
Members’ Levels of Satisfaction. Press Gallery Levels of Satisfaction. Education Programme (inputs, outputs and % of Communications Unit budget spend on Outcomes) Education Outreach programme.
Number of students %Inward Education Programme %Outward Education Programme
No of visitors to Education area of website
Levels of Satisfaction: Teachers Students Members Marketing & Information % of Communications Unit non pay budget spend on marketing and information material.
Survey Results : Perceived public knowledge of the work of the Houses and its Members, across demographic groups, benchmarked.
No. of public events Cost, on average, per person attending public event
9.9 Indicators relating to visitors and tours are reported by the Superintendent‟s area which is outside the scope of this review.
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9.10 The performance indicators for the Oireachtas Communications Strategies should take account of all target beneficiaries (public, Members, media, students) and be informed by the overall strategy objectives of the Houses of the Oireachtas Service and public service reform agenda initiatives
9.11 Where possible, targets should be attached to performance indicators. The performance framework should also be informed by performance information from other parliaments to help achieve the vision of having a world class parliamentary service and to achieve highest standard in parliamentary administration.
Recommendations Develop KPIs for the Communications Strategy that address Strategy outcomes as well as outputs that are measurable and that can, in so far as is possible, be influenced by those implementing the strategy. The KPIs should be feed into the achievement measures of the Service‟s high level strategic goals. A sample list of potential KPIs is included in Chapter 9, Table 9.1 Surveys should be designed so that the results, in so far as is possible, are comparable with surveys of perception and understanding of comparable parliaments carried out in other jurisdictions.
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APPENDICES
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Appendix 1: ECPRD Survey 2009 Staffing of Public Relations Offices in Parliaments Parliament Staff Activities and Staffing Breakdown, where available Iceland 3 Information and Publications (3) Andorra 3 Protocol Tours, General Information (5) Bosnia and Herzegovina 5 PR, Information, Freedom of Information (5) Macedonia 5 Public Relations for Assembly Sessions (5) Hungary 5 Public Relations Department (5) 2 temporary Slovenia 6 Public Relations Office (6)
Czech Republic 7 Petitions, Visitors Centre, Tours, Training, Seminars (7) Ireland 7.3 Press (4), Education (2.6 + 13 contract), Marketing (0.7) Press and internal communications (1), Publications (1), Citizen Platform (1) Belgium Senate 9 Photographer (1) Web Editor (2) Admin (2) Croatia 12 Media, Tours Information Bulletins (12) Estonia 12 Management (2), Press Service (4), Information Service (6) Switzerland 12 Tours (8 part-time) , PR (2), 'Tower' Exhibitions and Events (2) Press Centre (3) , Information and tours (6) Photographer (1) Petitions Slovakia 13 Department (2) Visitors and Events Division, Publication Division, Public Information and Media Lithuania 14 Division (14) Portugal 15 Citizen Information Centre and Public Relations (15) Media and public relations, web-streaming, tours, education and information Bulgaria 16 materials (16) Press (3), Events PR (3), General PR (2), Visitors Unit (6) + 12 freelance, Germany Bundesrat 17 Petitions (2), Online Media (1) Finland 17 Communications (12), Guides (5) + 10 Freelance guides Czech Republic – Senate 17 Information Centre, Tours, Cultural Events (17)
Germany Bundestag 18 Visits Service, Public Relations, Special Events, Arts (18) Italy- Senate 20 Senate Communications Office (20) Public relations (11), Protocol and Etiquette (11) plus Departments of Greece 22 'Information of Citizens' and Publications' (60)
Norway 24 Information Section and Reception (and tours) Service (24) Correspondence Examination Section, Database Section, Education Section, Poland 28 Analysis Unit, Public Information Unit (28) Italy - Chamber of Deputies 29 Parliamentary Publications and Relations (29) Multimedia, Education Centre and Publications, Public Information, Protocol Romania 35 Service, Image Evaluation Service (35) Press Unit (20), Publications, Multi Media Information (10), Institutional France 37 Communications - publications, events , guided tours (7) (37)
Russian Federation 40 Media, Information, Tours (40) Digital media and Corporate Design, Communications, Press Release Austria 60 Department, Events and Visitors Services (60) Media, Information, Journals, Visitor Reception (26), Website (5), Photography Turkey 66 (3) Russian Federation - Media, Conferences, Interaction with federal and regional authorities, State Duma 80 Information, Recording of parliamentary proceedings, Parliamentary TV (80) Information including Press, Library, Information Centre, Journal News, Sweden 140 Parliamentary Documents (140)
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Appendix 2: Comparison of Parliamentary Communications Budget (incl. staff costs) Area of Expenditure 2010 UK Holland Germany Scotland Denmark Ireland Budget € € € € € € Public Relations 1.97m 450k 2.05m 713k 560k 300k 263.5k
Education/ 1.68m 150k 5.91m 763k 220k 250k Outreach + 40k (admin)
Visitors/info 1.48m 0 7.66m 664k 300k 80k materials etc. 100k Website 2.8m 280k 2.53m Not available + 3m (web 430k 75k development)
Events 530k 110k Included in 731k 100k 270k 180k PR
Total 8.46m 990k 18.5m 2.87m 760k 1.56m 853.5k Communications Budget
Parliamentary 507m 77m 675m 159m 137m 120m Budget
Parliamentary 1.68% 1.28% 1.35% 1.8% 1.14% 0.71% Budget (%)
8.3 plus 8.3 Staff 113 19 72 52 14.4 Outreach
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APPENDIX 3
Proposed Organisation Chart for the Communications Unit 2007-2009
Houses of the Oireachtas Commission
Director of Committees, Information & Communications
Head of Communications
Clerical Officer
Advisory Group Education Officer Press Officer Information Officer
Clerical Support Committee Media Liaison Committee Media Liaison Freelance journalists Senior Clerk
Outreach Outreach Outreach Outreach Dublin Rest of Leinster Munster Conn/Ulster
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