The Strategic Roles of Public Relations

By Craig Miyamoto, APR, Fellow PRSA

(This is an expanded version of the 2002 Fourth Quarter issue of Public Relations Strategies, a quarterly publication of Miyamoto Strategic Counsel)

Since its early development in the late 19th Century, the public relations function has evolved the roles that it plays in society. Throughout the years, four basic roles that define implementation of public relations strategy have emerged: Educator, facilitator, persuader, and partner. Each does not exist exclusive of the others, each can be used in combination with the other three, and yet each can be effective in its own right.

Educator

By presenting unbiased facts � using neutral language in an unbiased setting � the public relations professional relies on the public�s interpretation of these facts to arrive at appropriate and sensible conclusions. The messages (and the media used) themselves do not present conclusions, and do not in any way attempt to influence the target public. They may, however, present a variety of alternate solutions and allow the public to make up its own mind.

Government agencies (via public INFORMATION officers) utilize this strategy to a large degree, in trying to avoid the perception that they are using public funds to influence public opinion.

This role is effective only if one is certain that providing the information will result in favorable action; education in itself is not a desirable end. It is one-way, without a call for action, and results cannot be predicted.

Facilitator

When a public is predisposed to act in a certain way, the public relations practitioner is positioned to help move them along in the process. As a facilitator (someone who makes the process easier), the practitioner provides the public with resources they can use � e.g., �Q&A�s,� postage-paid return envelopes, pamphlets, the use of interactive websites, �How To�s,� form letters, directional billboards, money, logistical and material support.

This facilitative strategy is more effective than the pure educator strategy, in that it gives people the tools it wants or needs to take a behavioral action. It can provide that one additional little �push� that will overcome the inertia in a potential supporter or participant.

Although the results become a little more predictable (at least the practitioner has stacked the deck in his/her favor), it is still one-way, there is no definitive call for action, and there is a fair amount of uncertainty over the outcome.

Persuader

In the persuader role, the kid gloves are removed. This is the advocacy mode whereby public relations appeals to the values and emotions of its target publics. Information is presented � quite frankly � in a biased manner, designed to convert, change, or conserve the public�s attitudes and expressed opinions to the organizations� favor.

Information presented may be selective. That is, both sides of the story may not be presented. Language certainly is not neutral, but will reflect from the organization�s point of view why it is important for it to be involved in the situation.

There is � and always will be � controversy over public relations� role as persuaders. Whether it�s called the �engineering of consent� (coined by E.L. Bernays), or �spinning� (a favorite of political animals), persuasion will have its detractors. Suffice to say that persuasion is and always has been a part of society, especially in the United States.

More effective than educational messages or facilitative tools, persuasive messages provide a call for action, either directly or indirectly. The persuader role, although basically one-way, does use feedback to determine how best to reach the public emotionally and logically.

Partner

The last role is that of partner. It is the only purely two-way symmetrically oriented role played by public relations professionals. It is also the most difficult, time-consuming and painful, in that the organization must work cooperatively with outside groups � specifically community and other stakeholders.

In a partnership strategy, communications between the organization and its publics transcends all levels, reflecting a cooperative willingness among all concerned, not only to define problems but to present, debate and adopt solutions amenable to everybody. Information is openly exchanged, common goals are adopted, tasks and responsibility are shared.

The organization listens, and to the extent that it can, makes its policies from the joint collaboration. Because of this interdependence, the organization and its publics become one. Public relations, through its position of power in the organization, makes this partnership possible.