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Real World Challenges in Communicating Governance Reform
Ethiopia, June 2007
Paul Mitchell
Development Communication DivisionThe World Bank
External Affairs Vice Presidency
Scaling up Communications for Operational Results
Development Communicatio
n
Institutional Communicatio
n
AdvocacyCommunicatio
n
Communicating what we do and how we do it; building trust in the institution and support for development.
Issue campaigns to accelerate action on key global public goods – including at the country level
Integrating communications and assessing political and development risks for more effective strategy and design leading to better outcomes
InternalCommunicatio
n
Creating a common platform for messages and programs
External Affairs Vice Presidency
Communication in Governance
Several Approaches: Political risks around the governance
issue in country Communication component in
governance projects Public Sphere Communication as a sector in
governance
External Affairs Vice Presidency
Public Sphere
Entry point for discussion about governance in a country:
Mediates between society and the state. Ability of state to address and listen to
citizens; citizens to form interest groups; free media;
Embedded in an environment that gives actors rights, duties and opportunities.
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Power of Media in Development Local media, particularly radio, carry information &
encourage commerce in geographically isolated markets Growing global media can move currency markets and
international trade Can provide info on political markets, exposing corrupt and
unethical politicians and giving people platform to voice diverse opinions on governance and reform
Can inform poor and marginalized people, giving them a voice
With higher literacy rates, lower printing costs, and new broadcast technologies, media can reach even further
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Role of Media: Improving Governance The media acts as the disseminator of information
about government - expenditures, laws, right and obligations of citizens etc.and can also make transparent the information that government sends or puts out. It also acts as watchdog on government
It plays the important role of providing information to enable informed audiences who can then participate in development policy discussions (National Plans, CAS) - it carries that information both about process and content
The media is useful in building trust in institutions (like the WB) and faith in the product (development)
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Fighting Corruption: Another LookAnti-corruption: Rely on legal and financial institutions –judiciary, police, financial
auditors–to enforce and enhance accountability in the public sector. However, in many poor countries, these institutions are weak and among the most corrupt
A complementary approach takes the users of public services as a starting point. Rather than attempting to increase service providers’ accountability to policymakers alone, the idea is to also engage citizens at the bottom of the public service delivery chain by providing them with easy access to information on the workings of public programs intended for their benefit
In this way, citizens will be empowered to demand certain standards and monitor and challenge abuses by officials they interact with in their daily lives
Improving public access to information is a crucial part in this bottom-up strategy
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Empowered Communication Environment
Communication as sector: Reform government communication Parliamentary communication Decentralized communication Improve functioning of private media The legal environment for
communication How do people receive information
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Empowered Communication Environment cont’d
The market to support media and communication
Civil society Academia Social media and the citizen
journalist New technology
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Defining Political Risk
“…effective political risk analysis is not just a question of evaluating a country risk. Instead, risk assessment must identify the implications of social, political and economic conditions of each particular development intervention.
The key to analyzing the political risks facing a project is to identify the winners and losers and assess their relative ability to help or hinder a project, whether directly or by influencing others.”
External Affairs Vice Presidency
Greatest Weakness of the World Bank"Which one of the following do you identify as the Bank's single greatest weakness in its work in ____?"
3%
11%
13%
18%
21%
29%
1%
1%
3%
0% 10% 20% 30%
Too small a player relative to ____'seconomy
Fails to adapt global knowledge tolocal conditions
Is arrogant in its approach
Staff too inaccessible
Too influenced by the US
Other
Not exploring alternate policyoptions
Too bureaucratic in its operationalpolicies and procedures
Imposing technocratic solutionswithout regard to political realities
Percentage of Respondents (N=2,436)
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Political risks are highlyCONTEXTUAL
Issue Time Place Who is involved External environment
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Dimensions of political risk
Who is involved? What influence can they exert? Will they use it and to what
degree? What impact will it have?
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Political risk is DYNAMIC
Unlike other analysis – financial, social, environmental
Non-financial risk analysis can change very quickly
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Political risk and communication – A presidential view
“If we want to he helpful to governments it is important to understand the political
environment in which they are operating. Another area for communication is how to improve the Bank’s ability to understand
and navigate the political circumstances of the world we live in and work with political
analysis and risk assessment.”
Paul Wolfowitz, President World Bank, May 2006 CommNet Forum
External Affairs Vice Presidency
The cost of not communicating
Hydro Quebec estimated that the lack of adequate communication with indigenous peoples regarding their hydropower scheme in North Quebec, led to controversies that caused projects delays of over 20 years, costing the company an estimated US$ 278 million
Presentation by John Paul Murdoch, Legal Counsel Cree Nation, Hydro-Quebec, World Bank Energy Week 2005.
External Affairs Vice Presidency
Project Cycle
PRSP
&
CAS
Identification Preparation Appraisal Approval Evaluation
Implementation
Country Portfolio Review
Analysis
Communication Program Performance and Impact Evaluation
Strategy and Communication
Component Design
Client Survey
Project Cycle Phase
DevComm Program Phase
• Communication Based Assessment
• Socio Political Risk Assessment
• Consultation schemes
• Public Opinion Research
• Project Document Inputs
• Communication Program Implementation Plan
• Capacity building
• Technical Assistance
• Advice
• Supervision
Interventions and Products
KNOWLEDGE PRODUCTS
Communication Program
Implementation
Monitoring and
Evaluation
Research
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Communication Audit Assesses Communication Needs for an Initiative
Identifies roadblocks for a project/initiative,
evaluates opponents’ strategies Analyzes political, social, cultural environment Segments audiences based on their positions Assesses communication capacity of government,
media, and others involved, designs training Identifies partners and local communication
professionals Develops preliminary communication plan
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Communications Based Assessment
Usually shows one or all of three issues needs to be changed:
Design of project Process Communication
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20%
30%
40%
50%
60%
70%
80%
90%
No Economic Reform
Understanding by Leadership
Public Understanding% of Respondents Rating Impediment as Serious Obstacle to Economic Reforms Recently*
No Sense of Crisis
Social & Poverty Considerations
Weak Institutional
Capacity
Lack of Cohesive Reform Team
No Economic Reform
Understanding by Population
Corruption & Vested Financial
Interests
Short-Term Political Factors
All Respondents Public Sector Respondents
*Survey of senior public service and civil society representatives from 63 developing/emerging economiesKaufmann, D., Listening to Stakeholders on Development Challenges and WB Instruments in their Countries, 1996
External Affairs Vice Presidency
Client Survey: Importance vs. Effectiveness Sector Analysis
2.40
2.50
2.60
2.70
2.80
2.90
3.00
3.10
3.20
3.30
3.40
3.50
3.60
3.70
3.80
3.44 3.54 3.64 3.74 3.84 3.94 4.04 4.14 4.24 4.34 4.44
M ean Importance
Me
an
Eff
ec
tiv
en
es
s
High Priority Improvements
StrengthsExceeding Expectations
Improvements
Reduce Poverty
Economic Growth
Transparency in Governance
Private Sector
Decentralization Policies
Regulatory Framework
Public Sector
EducationHealth
Corruption
Protect Poor
Energy Sector
Natural Resources Management
Gender
Water Resource Mgmt.
Infrastructure
Support for Low Performing States
Urban Quality of Life
Access to Basic ServicesAccountability
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The Reality of Institutional SettingsThe Reality of Institutional Settings
Ministry of Infrastructure
CONFLICTWater Quality Issues
CONFLICTWater Rights
CONFLICTRegulation of Service Providers
Provincial Government Unions
CONFLICTMinistry of Health
Water Authority
CONFLICT
MunicipalitiesEPA
CONFLICT
CONFLICTEIAs of providers
Users
Water Sector Institutions in the Province of Buenos Aires
Congress CourtsMedia
National Government
Service Providers
Regulator
Gustavo Saltiel, Urban Water Supply Practice Retreat
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WAGP – one pipeline many issues
Nigeria – land and human rights issues from the Niger Delta
Ghana – financial viability Benin – compensation issues
form previous claims Togo – in arrears Bank not
engaged
External Affairs Vice Presidency
Loss of Revenue due to Stronger CompetitionOther Brewers
Moral corruptionReligious Institutions
An end to price hikes Whole Sellers and Distributors
Loss of marketImporters of Foreign Brands
Fear of losing marketWheat Growers
Fear of losing monopoly;Bottle Manufacturers
JUSTIFICATIONAUDIENCE TYPE
Purchasing powerConsumers
Production powerEmployees
Revenue thru Property TaxLocal Gov. Authority
Increased RevenueGovernment Agency (TRA)
Reliable supplies, Increased profitsRetailers
Loss of popularityPoliticians
Errant partnersSpouses
External Affairs Vice Presidency
1……1…… Main Audiences & AnalysisMain Audiences & Analysis
•Trade Union
•Whole Sellers/•Distributors
•Politicians
•Importers of Foreign Brands
LGA•Consumers
•Wheat Growers Association
•Wheat Growers•Other Brewers
Govt (TRA)
•Bottle Manufacters
Spouses•Bottle Manufacturers•Religious Institutions
HARD-CORE ALLIES
ALLIESUNCOMMITTED AND INVOLVED
UNCOMMITTED &
UNIVOLVED
OPPONENTSUNMOVABLE OPPONENTS
•Retailers
•Employees
External Affairs Vice Presidency
OECS: Public Sector Reform
General population surveys in 4 OECS countries related to public sector reform.
Findings show very little frustration with level of service – basic dissatisfaction but not top of mind at all (it would be a mistake to build a campaign on the negatives of the public sector).
Most frustration and concern related to crime. However, findings show recognition that debt is a problem and
desire to become more competitive globally. Great support for regional integration Campaign to build support for public sector reform needs to
focus less on frustration related to public sector services and more on public support for greater competitiveness, recognition of the danger of debt, concern about education and crime (related to jobs and youth).
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Public services that can be shifted to private sector (% saying yes)
50
53
54
56
58
60
47
39
37
35
35
0 10 20 30 40 50 60
Oil ref & dist (excl prod)
Housing services
Water
Electricity
Education
Health Services
Television
Telephone
Kuwait Airways
Postal Services
Public transport
External Affairs Vice Presidency
Ghana PSP in water restructuring: Research findings may provide political cover:
General population cares about access to clean water
General population strongly supports international private sector involvement and presence in Ghana
General population thinks costs will go up but accept this because they expect quality and service to increase as well
World Bank: focus groups showed a fairly vocal level of animosity toward World Bank (didn’t emerge as strongly in survey).
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Benefit of PSP
28%
53%
11%8%
0%
10%
20%
30%
40%
50%
60%
A very bad impact A somewhat badimpact
A somewhat goodimpact
A very good impact
Perc
enta
ge o
f R
esp
ondents
“In general, to what degree do you think Private Sector Participation in water service and delivery would benefit you as a consumer? Do you think it would have a very good impact, a somewhat good impact, a somewhat bad impact, or a very bad impact…?
The majority of respondents felt that Private Sector Participation in water service and delivery would have a positive impact on them. (Note: This question was asked after the concept of PSP was explained to respondents.)
External Affairs Vice Presidency
Players
“I am going to read out some stakeholders in Ghana. I’d like you to tell me what kind of impact they have on Ghana… a very good impact, a somewhat good impact, a somewhat bad impact, or a very bad impact.” (Percentage of respondents giving each response.)
The national government, local media, and religious leaders were perceived as having the most positive impact on Ghana.
StakeholdersVery bad impact
Somewhat bad impact
Somewhat good impact
Very good impact
National government 2% 5% 30% 64%
Local media 1% 4% 36% 59%
Religious leaders in Ghana 1% 5% 36% 58%
International NGOs 1% 3% 39% 57%
The World Bank 4% 8% 37% 52%
International private sector 2% 7% 46% 46%
The IMF 5% 9% 40% 45%
Local NGOs 1% 5% 49% 45%
Local private sector 1% 7% 48% 44%
International media 2% 10% 46% 43%
ISODEC 1% 6% 54% 40%
Rudolf Amenga-Etego 1% 12% 59% 30%
Politicians 17% 24% 37% 22%
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If transition does not work people would see no advantage in believing in the democratic system
Security and stability Foundations for the future Government procedures, practices and
policies put in place A good election; Strong turnout; Acceptance
of results; Hope is restored.
What people would like to see at the end of the transition
External Affairs Vice Presidency
Lack of data 87% claiming government doing nothing or
they are not aware of what its doing 50% put political instability as no.1 or 2 issue 25% put corruption as no.1 or 2 20% put degradation of public services as no.
1 or 2 18% put criminal violence as no. 1 or 2
Issues people are worried about
External Affairs Vice Presidency
Focus on key audiences who can re-disseminate information (e.g., media, NGOs, private sector and religious organizations)
Focus on few issues –Government to communicate along 3 strands:
– 1) Social stability – erasing the climate of violence and fear in the country; getting people to think about their own development, empowering people to participate is all aspects of society
– 2) Return to democracy – having a free, fair election process, gaining acceptance of the election results by the national and international community
– 3) Economic governance - good fiscal management; transparency; fighting corruption, using the money we have wisely and for economic development
What to do
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What Have We LearnedRisks of Not Incorporating
Communication Programs into Urban Water Projects
Some communication programs are not addressing real needs of projects
Failed projects put Bank’s reputational risk on the line
Projects are being delayed because of vocal opposition (even from small minority groups)
Poor understanding of the political issues led the Bank in some cases to push reforms that stood little chance of success
Opposition can draw global attention
External Affairs Vice Presidency
Major overlooked factor ?
MANAGING MANAGING EXPECTATIONSEXPECTATIONS