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American Journal of Public Health | July 2005, Vol 95, No. 714 | Health Policy and Ethics | Peer Reviewed | Dickert and Sugarman
HEALTH POLICY AND ETHICS
Ethical Goals of Community Consultation in Research
| Neal Dickert, BA, and Jeremy Sugarman, MD, MPH, MA
In response to the traditional
emphasis on the rights, inter-
ests, and well-being of individ-
ual research subjects, there has
been growing attention focused
on the importance of involving
communities in research de-
velopment and approval.
Community consultation is a
particularly common method of
involving communities. How-
ever, the fundamental ethical
goals of community consulta-
tion have not been delineated,
which makes it difficult for
investigators, sponsors, and
institutional review boards to
design and evaluate consulta-
tion efforts.
Community consultation must
be tailored to the communities
in which it is conducted, but the
purposes of consultation—the
ethical goals it is designed to
achieve—should be universal.
We propose 4 ethical goals that
give investigators, sponsors, in-
stitutional review boards, and
communities a framework for
evaluating community consul-
tation processes. (Am J Public
Health. 2005;95:XXX–XXX. doi:
10.2105/AJPH.2004.058933.)
ALTHOUGH ETHICAL
considerations of human sub-
jects research have historically
focused on protecting the rights,
interests, and well-being of
individual subjects, growing at-
tention has been given to the im-
portance of involving communi-
ties in research development and
approval. Activists who represent
“disease communities,” particu-
larly AIDS and breast cancer
communities, during the 1980s
lobbied for access to experimen-
tal treatments and for a larger
role in the development of re-
search agendas, study designs,
and drug approval processes.
1–4
Research in population genetics
raised awareness about the risks
for stigmatization and discrimi-
nation,
5–7
and studies of indige-
nous communities raised con-
cerns about threats to communal
identity and social structure.
7–10
International collaborative re-
search includes working with so-
cieties that have radically differ-
ent structures and norms,
11–14
and researchers in emergency
settings, where obtaining partici-
pant or surrogate consent is im-
practical, must conduct commu-
nity consultation during project
development and approval.
15 , 16
Finally, forms of community-
based research, such as partici-
patory action research, include
communities throughout the re-
search process.
17–20
Despite an
increasing sense of need for
community input, difficult ques-
tions persist about how best to
involve communities as partners
in research.
Efforts to expand attention to
community perspectives, beyond
representation on institutional
review boards,
21–23
have ranged
from advocating a principle of
respect for community to estab-
lishing guidelines that require
community disclosure, consulta-
tion, and consent.
12 , 2 4–30
Addi-
tionally, general principles have
been developed for guiding dif-
ferent types of community-based
research.
10 , 2 0 , 3 0
Among the
methods for involving the com-
munity in research, community
consultation is particularly com-
mon. Formal community consul-
tation is required by Food and
Drug Administration regulations
before research is allowed to be
conducted without informed
consent in emergency settings.
31
Similarly, proposed and actual
guidelines for research that in-
volves aboriginal communi-
ties,
27,28,30
population genetics
and epidemiologic research,
29,32
international research,
12 , 2 9
and
HIV-related research
25,26,33
rec-
ommend consulting communities
when planning and implement-
ing research.
8
Despite such endorsements,
the general ethical goals of com-
munity consultation remain un-
clear, which makes designing and
evaluating consultation efforts a
challenge for investigators, spon-
sors, and institutional review
boards. Because of the heteroge-
neity of communities and re-
search projects, the methods of
community consultation must be
context specific. However, the
purposes of community consulta-
tion—the fundamental ethical
goals that consultation is de-
signed to achieve—should be uni-
versal. We propose a set of gen-
eral goals for community
consultation that will provide a
framework for investigators,
sponsors, institutional review
boards, and communities to eval-
uate community consultation
processes. We in no way intend
to detract from the need to con-
sider the particularities of any
given research project and com-
munity; careful understanding of
particular contexts is indispensa-
ble for understanding and achiev-
ing the goals we recommend.
Distinguishing Community
Consultation and Consent
Community consultation should
not be mistaken for community
consent, although the 2 are not
mutually exclusive. To consult
is “to seek advice or informa-
tion.”
34
Consulting with a com-
munity includes eliciting feed-
back, criticism, and suggestions;
it does not include asking for ap-
proval or permission. Community
consultation is designed to recog-
nize and accommodate the rele-
vant particularities of a given
community for a specific project.
For example, community consul-
tation for HIV-related trials may
include consulting with HIV ad-
vocacy groups, people who are
HIV-infected, and potential par-
ticipants.
1,35
Conducting genetics
research in an aboriginal com-
munity may necessitate dis-
cussing studies with existing po-
litical authorities and community
members.
9,30
Rather than soliciting input,
community consent involves so-
Published Ahead of Print on June 2, 2005, as 10.2105/AJPH.2004.058933
July 2005, Vol 95, No. 7 | American Journal of Public Health Dickert and Sugarman | Peer Reviewed | Health Policy and Ethics | 15
HEALTH POLICY AND ETHICS
liciting approval or permission
to conduct a study within a
community. Community consent
may occur after community con-
sultation and does not obviate
the need for individual con-
sent.
36,37
Rather, the community
decides whether to permit inves-
tigators to solicit participation
from community members. For
community consent to be valid,
there must be a legitimate politi-
cal system in place, with repre-
sentatives properly empowered
to make such decisions on be-
half of the community.
37,38
In
many aboriginal communities,
such legitimate systems exist.
However, disease-based commu-
nities and many social groups
typically lack a political struc-
ture, which makes community
consent inappropriate.
37,38
Although conceptually distinct,
the line between community con-
sultation and community consent
is inevitably blurred in practice.
It would be disingenuous to
enter into a consulting arrange-
ment where the consulting party
does not intend, ex ante, to take
the consultants’ advice. If rele-
vant consultants have strong neg-
ative reactions or endorse partic-
ular modifications, those
reactions or modifications have
significant moral force and war-
rant respect and careful consider-
ation, even though investigators
may sometimes justifiably act
contrary to such opinions. Other-
wise, community consultation is
merely symbolic.
39
Despite the
clear conceptual distinction be-
tween consent and consultation,
the degree to which consultants
support is necessary represents a
persistent challenge.
15 , 16 , 2 9
Challenges of Community
Consultation
Potential difficulties exist at
each stage of community consul-
tation. At the outset, it can be
hard to identify communities and
stakeholders that have legitimate
and relevant interests. Common
elements exist among concep-
tions of community,
40
but delin-
eating and identifying particular
communities for consultation can
be challenging. Identifying the
community at risk for HIV, for
example, can be problematic,
because at-risk individuals may
not believe they are a part of
any such community.
41
Identify-
ing representatives also can be
difficult. Helpful procedures for
identifying representatives have
been suggested by The National
Institute for General Medical Sci-
ence,
32
but important conceptual
and practical challenges remain.
For example, no clear representa-
tive exists for persons who may
suffer from traumatic brain in-
jury or cardiac arrest.
42,43
Closely related to the chal-
lenge of identifying communities
is deciding when communities
should be consulted (assuming
they can be identified). In cer-
tain cases, there are regulatory
requirements for community
consultation.
31
Similarly, when
research poses real risks for so-
cial stigma to well-defined com-
munities, such as certain genet-
ics studies in native
communities, the need for com-
munity consultation is evident.
44
Yet, requiring community con-
sultation in all research projects
is unwarranted. Relevant factors
to consider when deciding
whether to conduct community
consultation include the particu-
lar community under considera-
tion, the nature of the research,
and the likely impact of the re-
search on that community. Fur-
ther analysis is needed; how-
ever, we hope that articulating
the goals of community consul-
tation will at least be a helpful
step in determining when con-
sultation is warranted.
The type of community being
considered for consultation is an
important factor when determin-
ing the way in which community
input is solicited. Common solici-
tation methods include open
public forums, meetings with
community advisory board mem-
bers, presentations at meetings of
religious or civic organizations,
and radio and television call-in
shows.
1,17,44–49
Devising success-
ful methods for generating public
input can be challenging, particu-
larly in communities that lack a
well-defined structure or are geo-
graphically disparate.
37,50
In many
cases, multiple modalities of in-
teraction must be employed,
44
it
can also be difficult to determine
when consultation efforts have
been sufficient. Although insuffi-
cient consultation can be ineffec-
tive, requiring overly extensive
consultation may hamper impor-
tant work.
Finally, incorporating consult-
ants’ input into research plans
can be challenging. Although it
is undesirable to override or dis-
miss community objections or
concerns, failure to conduct im-
portant research on the basis of
objections by groups who are
nonrepresentative or who have
not carefully considered the is-
sues at hand is also problematic.
Ethical Goals for Community
Consultation
A clear set of ethical goals will
help investigators, sponsors, insti-
tutional review boards, and regu-
lators plan and assess community
consultation methods. Addition-
ally, such a framework will pro-
vide endpoints for measuring the
adequacy of consultation meth-
ods. We propose four ethical
goals of community consultation:
(1) enhanced protection, (2) en-
hanced benefits, (3) legitimacy,
and (4) shared responsibility
(Table 1).
Enhanced protection. Enhancing
the protection of research partici-
pants’ interests and welfare is
grounded in the researchers’ duty
to minimize risks for research
subjects. Consultation efforts
should be designed and con-
ducted to help identify risks or
hazards for individuals and com-
munities and to help identify ad-
ditional protections to ensure the
safety of research participants.
Some risks, particularly social
risks, may not be apparent at the
outset to investigators, sponsors,
and institutional review boards.
Members of cancer advocacy
groups, for example, may serve
as important consultants when
designing informational materials
or calling attention to concerns
about adverse treatment effects
that may not be obvious to re-
searchers conducting a cancer
trial.
51
When research is con-
ducted in emergency settings,
community consultation may
generate discussion that helps to
identify groups who are likely to
want to opt out of specific studies
and that suggests strategies to fa-
cilitate the identification of those
American Journal of Public Health | July 2005, Vol 95, No. 716 | Health Policy and Ethics | Peer Reviewed | Dickert and Sugarman
HEALTH POLICY AND ETHICS
TABLE 1—Ethical Goals of Community Consultation
Ethical Goal Definition
Enhanced protection Enhance protections for subjects and communities by
identifying risks or hazards that were not previously
appreciated and by suggesting or identifying potential
protections
Enhanced benefits Enhance benefits to participants in the study, the population
for which the research is designed, or the community in
which the study is conducted
Legitimacy Confer ethical/political legitimacy by giving relevant parties
the opportunity to express their views and concerns at a
time when changes can be made to the research
protocol
Shared responsibility Consulted communities may bear some degree of moral
responsibility for the research project and may take on
some responsibilities for conducting the study
groups during the study. In this
sense, community consultation
may be a particularly effective
way for investigators to identify
individuals or subgroups with
particular needs or vulnerabili-
ties that individuals outside the
community may not recognize.
Community consultation also
may enhance nonparticipant pro-
tections by identifying risks for
community members who are
not enrolled in the study. For ex-
ample, studies of cancer suscepti-
bility that were conducted
among Ashkenazi Jews were op-
posed by some community mem-
bers who were concerned that
research findings might be used
for eugenics or might jeopardize
health coverage.
5
Although all
risks are not preventable, making
them explicit and minimizing
them are essential goals.
Enhanced benefits. Enhancing
benefits through community
consultation is consistent with
researchers’ general duty of
beneficence toward research
subjects.
52
Early HIV research
illustrates how community con-
sultation enhances benefits to in-
dividual subjects. For example,
1 community advisory board
recommended that a clinical trial
incorporate referral programs for
participants to gain access to
available ancillary services.
35
Based on this recommendation,
investigators chose to incorpo-
rate such programs into their
studies.
Community consultation may
also enhance benefits to the
community of individuals who
have the condition being studied
or to the larger communities to
which study subjects belong. In
the international setting, a com-
mon benefit of research involve-
ment is the improvement of the
research or health care delivery
infrastructure. By consulting with
host country researchers and
others in the host community,
the areas of infrastructure that
need improvement can be identi-
fied.
14
Similarly, a central notion
in community-based participa-
tory research is that communi-
ties should be involved in identi-
fying research questions and
planning studies in order to con-
duct studies that benefit the par-
ticular communities involved.
20
In short, community consultation
may enhance direct, indirect,
and aspirational benefits.
53
In-
vestigators are by no means re-
quired to provide all benefits
that could conceivably be of-
fered to participants or commu-
nities, but enhancing benefits to
ensure that research efforts are
mutually beneficial is an impor-
tant goal.
Legitimacy. Community con-
sultation can help to confer ethi-
cal and political legitimacy on a
research project by engaging in a
process in which _____________
may express their views and
concerns. Giving _____________
the opportunity to speak has sig-
nificant justificatory power for
imposing research risks, espe-
cially when individuals are un-
able to provide consent and sur-
rogate decision makers are
unavailable. In such cases, com-
munity consultation may be the
only chance investigators have to
assess the likely preferences of
the study population. Similarly,
when a study poses significant
risks for a community, such as
genetics research that could
have potentially negative impli-
cations on the insurability of an
entire population, community
consultation seems essential for
legitimacy.
The challenges to achieving
this goal are well-known. What
counts as a community? Who
counts as a representative? What
level of community support is
needed to legitimize a particular
study? These are deep, concep-
tual questions for which we do
not have well-developed an-
swers; however, it is important
to note that the goal of legiti-
macy refers to the process of
community consultation and
not the political legitimacy of
consulted bodies.
37
Suggestions
or concerns that are expressed
during community consultations
are significant, even when con-
sultants lack the authority to
provide consent on behalf of
the community.
Shared responsibility. As part-
ners in the research process,
community members may share
responsibility in 2 ways. First,
community consultants may as-
sume active roles in conducting
research. Community advisory
board members, for example,
may become involved in recruit-
ing subjects for studies
40,48,54
and
thus bear some responsibility for
the success of research efforts.
Second, by acknowledging the
stake that relevant community
members have in the conduct of
research, and by soliciting their
assistance and input through a
legitimate process, community
consultation confers on commu-
nities a degree of moral responsi-
bility for the research.
26
Shared responsibility is partic-
ularly evident with cases involv-
ing HIV advocacy groups, where
the advocacy groups have taken
on the role of actually conduct-
ing studies,
1
and with cases in-
volving participatory-action re-
search or community-based
participatory research, where
communities are involved at
July 2005, Vol 95, No. 7 | American Journal of Public Health Dickert and Sugarman | Peer Reviewed | Health Policy and Ethics | 17
HEALTH POLICY AND ETHICS
every stage.
17–19
It is important
to clarify that sharing responsibil-
ity does not constitute a shifting
of blame or removal of responsi-
bility from investigators, spon-
sors, and institutional review
boards. On the contrary, commu-
nity consultation places addi-
tional responsibility on investiga-
tors to attend to important
community concerns. The degree
to which responsibility can be
shared is limited by the degree to
which investigators and sponsors
are sensitive to and accommo-
date those concerns.
CONCLUSION
As the need for identifying
and incorporating community
input into the design, planning,
and conduct of research has be-
come clearer, it is critical to iden-
tify the ethical goals of commu-
nity consultation. Enhancing
protection, enhancing benefits,
creating legitimacy, and sharing
responsibility should allow for
more effective assessment by
communities, investigators, insti-
tutional review boards, and spon-
sors of particular consultation ef-
forts. We also hope that these
goals can be developed into met-
rics by which methods of com-
munity consultation may be sys-
tematically assessed. For
example, enhanced protections
can be measured by observing
whether a particular consultation
effort identifies additional risks
previously unknown to investiga-
tors or whether it proposes new
solutions for minimizing risk.
There are currently few empiri-
cal data on the effectiveness of
consultation strategies.
54
By iden-
tifying the goals of the process,
this framework should facilitate
attempts to assess different types
of consultation efforts in different
settings and enhance understand-
ing of which research methods
are appropriate in varying types
of communities and consulta-
tion methods.
Finally, this framework draws
attention to 2 important linger-
ing issues that are beyond the
scope of this article. First, an ac-
count is needed for determining
when investigators may justifi-
ably override or dismiss commu-
nity concerns. Such an account
must be particularly sensitive to
the nature of disagreements.
55
Second, further research is
needed to determine what
types of studies require commu-
nity consultation and what types
of consultation are needed for
particular research projects. In
the meantime, careful attention
to the 4 ethical goals we have
identified should facilitate the
proper incorporation of commu-
nity views into research and its
oversight.
About the Authors
The authors are with the Phoebe R. Berman
Bioethics Institute, Johns Hopkins Univer-
sity, Baltimore, Md. Jeremy Sugarman also
is with the Department of Medicine, Johns
Hopkins University.
Request for reprints should be sent to
Jeremy Sugarman, MD, MPH, MA,
Phoebe R. Berman Bioethics Institute,
Johns Hopkins University, Hampton
House 351, 624 N Broadway, Baltimore,
MD 21205 (e-mail: jsugarm1@jhmi.edu).
This article was accepted February 15,
2005.
Contributors
J. Sugarman originated the idea for this
article; both authors developed ideas
and reviewed each draft of the article.
Acknowledgments
We are extremely grateful for the
helpful comments we received while
developing this article. In particular,
we would like to thank Ezekiel
Emanuel, Christine Grady, Kate Mac-
Queen, Holly Taylor, and Myron Weis-
feldt. We also thank the reviewers for
their very thoughtful and instructive
suggestions.
Human Participant Protection
No protocol approval was needed for
this project.
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