Hmm.
In the past, our union was asked by the then government for views on their proposals around something. 85% said no, and in the press, "The proposals were implemented following consultation" when they went ahead and did it.
As part of a committee many years back, during the National Programme for IT (remember that?), we had a very senior consultant at a meeting, and one of the irritating sub issues came up. We mentioned to him that it had been implemented because, according to the Department of Health, he'd signed off his approval. "No, I didn't" he responded, "They asked me about it at one meeting, and I said it was a bad idea".
So I'm pretty confident that "No clear consensus" means they're going to do it anyway.