Bite Size Comms

There is a healthy ongoing debate about whether legislation should be tightened on lobbying, or, as it is referred to in the world of PR, public affairs. Some important questions being debated are whether the maximum size of donations to political parties or individual politicians should be lowered, and whether there should be tighter rules on the acceptance of gifts by politicians. There is also the question of increasing disinformation by state actors that aims to influence people’s views and government policies.

I thought it would be useful to provide some background to this discussion by examining the history of public affairs. My go-to glossary (Joep Cornelissen’s Corporate Communication) simply defines public affairs as “The public policy aspect of corporate communication”. The aim of public affairs is to influence policy, shape legislation, and protect organisational interests within the regulatory environment by focusing on policymakers, legislators, civil servants, regulators, and government stakeholders. It is undertaken by commercial companies as well as by not-for-profit organisations like charities (I used to do this) and activist groups (tick also, er, hem).

What are the origins of this activity?

The practice of influencing public policy through systematic communication can be traced back to ancient civilisations, where the fundamentals of persuasion and public influence were first established. In Ancient Egypt, pharaohs employed monumental inscriptions to glorify their reigns and sway public opinion, while in classical Greece and Rome, orators like Aristotle developed principles of persuasive speaking that remain foundational to public affairs practice today. The Sophists, travelling teachers of philosophy and rhetoric, were among the earliest predecessors to modern public affairs consultants, as they taught the art of persuasion to shape public opinion.

However, the modern concept of public affairs as distinct from general public relations emerged much later. In Britain, systematic public relations was first employed by religious evangelicals and Victorian reformers, particularly opponents of slavery. The Society for Causing the Abolition of the Slave Trade in 1787 used books, posters, and public lectures to rally support for its movement, demonstrating early forms of organised advocacy that would later characterise public affairs practice. 

While most textbooks date the establishment of the Publicity Bureau in Boston in 1900 as the start of the modern public relations profession, public affairs as a specialised discipline developed along a different trajectory, particularly influenced by wartime propaganda efforts. World War I marked a turning point, with governments employing sophisticated communication strategies to gain domestic support and shape public opinion. This government application of communication techniques laid crucial groundwork for what would become modern public affairs practice. In the UK, Basil Clarke is considered the founder of both the public relations profession and, by extension, the public affairs discipline with his establishment of Editorial Services in 1924. Clarke, who had previously worked as director of special intelligence at the Ministry of Reconstruction and later as director of public information at the Ministry of Health, brought unique government experience to the emerging field. His company, Editorial Services Ltd, is now generally recognised as the first UK public relations agency. Clarke’s background was particularly significant for the development of public affairs. Having served in government communication roles during the Irish rebellion and other critical periods, he understood the intersection between private interests and public policy in ways that purely commercial public relations practitioners did not. His 1929 development of the world’s first code of ethics for public relations emphasised truth and completeness, principles that remain central to public affairs practice.

The term ‘public affairs’ was actually created in the United States, emerging from a 1913 US federal government directive known as the Gillett Amendment. This early American development reflected the different political and regulatory environment in the US, where the relationship between business and government required more formalised communication channels. Many American companies with public relations departments spread the practice to Europe after 1948, when they created European subsidiaries as a result of the Marshall Plan. This transatlantic transfer was crucial for the development of public affairs, as American firms introduced sophisticated government relations techniques to European markets, which they adapted to different political systems and regulatory frameworks. The distinction between American and European approaches to public affairs became apparent from the outset. While American public affairs focused heavily on lobbying activities and congressional relations, the UK model developed with greater emphasis on broader stakeholder engagement and policy influence at various governmental levels.

The UK public affairs sector underwent a significant transformation following the 1994 ‘cash for questions’ scandal, which involved lobbying firm Ian Greer Associates and MPs Neil Hamilton and Tim Smith. This scandal, where MPs asked parliamentary questions for payment from lobbyist clients, led to the establishment of the Association of Professional Political Consultants (APPC) in May 1994. This marked a crucial moment in the professionalisation of UK public affairs, as the industry sought to address transparency concerns and establish ethical standards. The association developed a comprehensive Code of Conduct that required transparency in client relationships, quarterly public registers of activities, and strict ethical guidelines for member behaviour. Parallel to the APPC’s development, the Chartered Institute of Public Relations (CIPR) established its Public Affairs Group as a specialist sector group.  Members included communication professionals who had regular dealings with government at local, national, devolved administration, and European Union levels. 

The formation of the UK Public Affairs Council (UKPAC) in July 2010 represented a significant milestone in UK public affairs regulation. UKPAC brought together the APPC, CIPR, and Public Relations Consultants Association (PRCA) to create unified standards for public affairs practitioners. This collaboration established comprehensive registration requirements and quarterly reporting of lobbying activities.

The Transparency of Lobbying, Non-Party Campaigning and Trade Union Administration Act 2014 represented the UK government’s first attempt to legislate for the regulation of professional lobbyists. This created the Office of the Registrar of Consultant Lobbyists, independent of both government and the lobbying sector. However, the legislation focused narrowly on consultant lobbyists, estimated to account for only 20% of lobbyists overall, while excluding in-house lobbyists, trade unions, charities and pressure groups, and other significant actors. The regulatory approach reflected ongoing tensions between transparency demands and industry concerns about overly restrictive regulation. Brexit intensified these issues, as it sparked one of the most intensive lobbying efforts in history, with the policy landscape increasingly shaped by powerful interests seeking to influence the UK’s changing legal framework.

Today’s UK public affairs landscape includes three main professional bodies: the PRCA, CIPR, and the APPC. These organisations maintain registers, enforce codes of conduct, and provide qualifications and training in areas such as parliamentary procedure, policy making, and stakeholder engagement.

Public affairs has evolved from its ancient origins in persuasion and rhetoric into a sophisticated professional discipline essential to modern democratic governance. The practice faces several significant challenges: maintaining public trust in an environment of political scandals, adapting to technological changes in communication and political engagement, navigating complex multi-level governance structures, and striking a balance between transparency requirements and effective advocacy. The industry continues to debate the appropriate balance between statutory regulation and self-regulation.

[Image of the Houses of Parliament in London by Paddy Kumar on Unsplash]