9891p heart of change bleed - panos...
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AttheheartofchangeTheroleofcommunicationin sustainabledevelopment
Promotingdialogue,debateandchange
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Acknowledgements
At the heart of changewaswrittenbyMarkWilson,ExecutiveDirectorofPanosLondonandKittyWarnock,SeniorAdvisor,communicationfordevelopment,withresearchandadditionalwritingbyEmrysSchoemaker.
ThepaperwascommissionedbytheUKGovernment’sDepartmentforInternationalDevelopment(DFID).BackgroundresearchandacomprehensiveliteraturereviewwerecomplementedbyaseriesofinterviewsintheUKandothercountries.Alonger,moredetailedexplorationoftheargumentssetoutinthispaper,includingmanymoreexamples,canbefoundinasecondpublication,entitledThe case for communication in sustainable development.
PanosLondonisgratefulforthegeneroussupportofadistinguishedadvisorygroupofinternationalexpertsincommunication,politicalscience,economicsanddevelopment,whichassistedandadvisedintheresearchandwritingofthesepapers.Allviewsexpressedinthepaper,however,arethoseofPanosLondon.
At the heart of changeandThe case for communicationareavailablefromwww.panos.org.uk/heartofchange
©PanosLondon,2007
Formoreinformation,contact:
PanosLondon9WhiteLionStreetLondonN19PDUnitedKingdom
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PanosLondonispartoftheworldwidePanosNetworkofindependentinstitutesworkingtoensureinformationisusedeffectivelytofosterdebate,pluralismanddemocracy.Formoreinformationseewww.panos.org
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Contents Abbreviationsandacronyms
Executivesummary
Introduction
Communication’scontributiontohealthypoliticalprocesses
Communicationattheheartofgoodgovernance
Communicationisfundamentaltoavibrantcivilsociety
Communicationforefficientandmoreequitableeconomies
Theroleofthemedia
Conclusion
Agendaforaction
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Peopleneedtobeabletoreceiveinformationbutalsomaketheirownviewsheard.ThiswomaninChennai,Indiatalkstotuberculosisawarenesscampaigners. atul loke | panos pictures
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Attheheartofchange:Theroleofcommunicationinsustainabledevelopment �
Abbreviationsandacronyms
ARV antiretroviral
ATM automatictellermachine
CAR capability,accountability,responsiveness
C4D communicationfordevelopment
DFID DepartmentforInternationalDevelopment
EITI ExtractiveIndustriesTransparencyInitiative
FAO FoodandAgricultureOrganization
GNI grossnationalincome
ICT informationandcommunicationtechnology
IDRC InternationalDevelopmentResearchCentre
IMF InternationalMonetaryFund
ITU InternationalTelecommunicationUnion
MeTA MedicinesTranparencyAlliance
MDGs MillenniumDevelopmentGoals
NGO non-governmentalorganisation
OECD OrganisationforEconomicCo-operationandDevelopment
PETS publicexpendituretrackingsystem
PRSP povertyreductionstrategypaper
UNDP UnitedNationsDevelopmentProgramme
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DevelopmenteffortsarenotfulfillingthepromisesmadeintheMillenniumDevelopmentGoals(MDGs),toreducepovertyandimprovepoorpeople’slives.Whynot?Onefundamentalreasonisthatpolicymakersanddevelopmentexpertsdonotrecognisetheessentialrolethatinformationandcommunicationplayindevelopment.
Sustainabledevelopmentdemandsthatpeopleparticipateinthedebatesanddecisionsthataffecttheirlives.Theyneedtobeabletoreceiveinformation,butalsotomaketheirvoicesheard.Thepoorareoftenexcludedfromtheseprocessesbygeographyandlackofresourcesorskills;andmanygroups–includingwomen–arealsokeptsilentbysocialstructuresandculturaltraditions.Inclusivepoliticalprocesses,throughwhichcitizenscanshapepoliticalagendasandholdtheirgovernmentstoaccount,areanessentialfoundationofsuccessfuldevelopment.Politicalprocessesarecommunicationprocesses–notonlythroughformalelections,butalsotheongoingdialoguebetweenpeopleandtheirgovernmentsandtheshapingofpublicagendas.Forinstance,mobilephonesareincreasinglyusedtostrengthentheintegrityandcredibilityofelections;whilethemediaplayacrucialroleinpoliticaldebate.Healthypoliticalprocessesneedopencommunicationenvironments.
Executivesummary
� Executivesummary
Ahealthycivilsocietyischaracterisedbythevibrancyandqualityofcommunicationbetweenindividuals,groups,institutionsandorganisations.ThiswomantakesadvantageofthemobilephonenetworkinMonrovia,Liberia.
tim a hetherington | panos pictures
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Communicationalsoliesattheheartofgoodgovernance,wheregovernmentsareresponsive,accountableandcapableoffulfillingtheirfunctionswiththeactiveengagementofcivilsociety.Goodgovernancerequiresthattransparentinformationonthestateandpublicservicesisavailabletocitizenssothattheycanmonitorgovernmentperformance.‘Sunlightisthebestdisinfectant’,USSupremeCourtJusticeLouisBrandeisfamouslyobserved,andtransparentinformationandcommunicationflowsreduceopportunitiesforcorruption.Improvedcommunicationcanalsofacilitatetheday-to-dayadministrativerelationshipsbetweencitizensandbureaucracies–forinstance,applyingforlicencesorobtaininglandrecords–andtheeffectivenessandefficiencyofpublicservices.
Thefabricofcivilsocietyiswovenfromtheongoingcommunicationandexchangebetweenpeople–throughinterpersonal,informalandculturalprocessesaswellasthroughformalinstitutionsandofficialchannels.Ahealthycivilsocietyischaracterisedbythevibrancyandqualityofthenetworksbetweenindividuals,groups,institutionsandorganisations;andthe‘socialcapital’(thetrustandrespect)theycreate.Informationandcommunicationarefundamentaltothisprocess.DecadesofresearchonissuesasdiverseasHIVandAIDScommunicationandsustainableagriculturehasshownthatwherepeopleareinvolvedandengagedindiscussionsofissuesthataffectthem,societalattitudesandindividualbehaviouraremuchmorelikelytochange.
Economicdevelopmentalsodependsoncommunicationateverylevel,fromhelpingapoorproducermarkethergoodstostrengtheningaminister’shandinnegotiatinginternationaltradeagreements.Whengovernmentscreateanenvironmentmarkedbyopenandtransparentinformationandcommunicationflows,theyhelptoestablishtheconditionsforeconomicgrowthandfairermarkets.Therevolutionininformationandcommunicationtechnologies(ICTs,suchastelephonesandtheInternet)alsooffersexcitingnewopportunitiesforsmall-aswellaslarge-scaleeconomicactivity.GovernmentsshouldtrytoensurethatICTsareavailableandaffordableforeveryone,becausewhileICTsarealreadyspreadingfast,particularlymobilephones,themarketwillnotprovidefortheneedsofpoorpeoplewithoutsomeinterventionandregulationfromgovernments.
Inalltheseareas,themediaplayacentralrole.Theyprovideaforumforpoliticaldebateandaccountability,andtheyalsohelpshapesocialattitudes–forinstancetowomen’sequality.Mediafreedomandpluralismofownershipareprerequisitesifthemediaaretofulfiltheirwatchdogfunctionofholdingthepowerfultoaccount.Butthesefundamentalsdonotguaranteethatthevoicesofthepoorandmarginalisedgroupsarereflectedinwhatisprintedandbroadcast.Forthemediatoprovidehigh-qualitypublicinterestcontent,inwhichawiderangeofvoicesisheard,liberalisation,pluralisationandregulationareallrequired.
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Reaching the MDGs in 2015… will also require a belated recognition that communication is central to all aspects of sustainable development.
Attheheartofchange:Theroleofcommunicationinsustainabledevelopment
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ReachingtheMDGsin2015willrequirehugeinvestmentsofpoliticalwillandfinancialresourcesbygovernmentsinboththedevelopedandthedevelopingworld;butitwillalsorequireabelatedrecognitionthatcommunicationiscentraltoallaspectsofsustainabledevelopment.Whatneedstobedonetorealisethepotentialofcommunicationinmaximisingdevelopmentoutcomes?
Buildmoreopen,transparentinformationandcommunicationsystemsandpoliticalcultures
Governmentsandinstitutionsmustaccepttherealityofanetworkedworld,whichwillshapepoliticsandcivilsocietyinwaysthatareonlyjuststartingtoemerge,andadapttocitizens’expectationsoftransparencyandthefreeflowofinformation.
Treatinformation,communicationandthemediaaspublicgoodsandinvestaccordingly
Governmentsshouldrecognisethatmediaandcommunicationarepublicgoods,andinvestinstrengtheningthoseareasthatthemarketalonemaynotprovide,suchastelephoneaccessforpoorpeopleorhigh-qualitypublic-interestjournalism.
Takeaholisticviewofcommunicationprocessesandintegratecommunicationintodevelopmentplanningandimplementation
Governmentsanddevelopmentplannersmustrecognisethatcommunicationisattheheartofdevelopment:itsroleshouldbespecifiedinalldevelopmentanalysisandplanning,andadequateresourcesoffunding,expertiseandplanningmustbeinvestedtomakeithappen.
Investinmediadevelopment Adiverse,dynamicandfreemediaisvitaltodevelopment.Thiscan
beaccomplishedbyestablishingmediafreedomandasupportiveregulatoryenvironment;strengtheningmediainfrastructure,capacityandprofessionalism;andsupportingimprovementsinthequalityanddiversityofmediacontent.
� Executivesummary
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AmaninNairobi,Kenyareadsthenewspaperinhislunchbreak.Themediagenerally,asprovidersofinformationandcomment,haveacentralroletoplayindevelopment.
sven torfinn | panos pictures
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1WorldBank(2006)World Development Indicators 2006http://devdata.worldbank.org/wdi2006/contents/Section1_1.htm
2The‘capabilityapproach’isaconceptualframeworkthatwasdevelopedbyAmartyaSenandMarthaNussbaumforunderstandingsocialstatesintermsofhumanwelfare.Itemphasisesthefunctionalcapabilities(‘substantialfreedoms’,suchastheabilitytolivetooldage,engageineconomictransactions,orparticipateinpoliticalactivities).SeeMCNussbaumandAKSen(1993)The quality of life,Oxford:ClarendonPress
3FunctioningsarewhatSenterms‘valuablebeingsanddoings’.Theycanbeelementary(escapingmorbidityandmortality,nourishment,mobility);complex(self-respect,participationincommunitylife,abilitytoappearinpublicwithoutshame);general(capabilitytobenourished);orspecific(capabilitytomakeparticularchoices).ThenotionoffunctioningsinfluencedtheempiricalmeasurementsthatunderpintheUnitedNationsDevelopmentProgramme’sHuman Development Index,whichgoesbeyondeconomicmeasurementstoincludehealthandeducationdata.FormoreonfunctioningsseeAKSen(1985)Commodities and capabilities,Amsterdam:North-Holland;andNussbaumandSen(1993)
Developmenteffortsarenotdeliveringtheresultstheworld’spoorneedandtheglobalcommunitypromisedintheMillenniumDeclarationsignedbyworldleadersinSeptember2000.Atpresent,twooutofeveryfivepeoplearelivingonlessthanUS$2aday.ThelatestWorldBankforecastspredictthatby2015morethan600millionpeoplewillstillbelivingonUS$1aday,and‘withoutmeasuresthatacceleratechange,manycountriesmayfallshortofthe[MillenniumDevelopmentGoal]targets.’1
Whyisprogresssoslow?Oneofthemainreasonsisthefailuretorecognisethatopen,inclusive,participatorycommunicationandinformationprocessesareprerequisitesforsuccessful,sustainabledevelopment.Communicationprocessesformthelifebloodofpolitics:theyarecentraltothecreationofahealthy,vibrantcivilsocietyandefficient,moreequitableeconomies;theyarealsoacriticalelementofsocialadaptation.
TheintroductionofaprintingpressusingmovabletypeinEuropeover500yearsagoledtorevolutionarychanges,asknowledgeandinformationbecameincreasinglyaccessibleandaffordable.Theexplosivegrowthofinformationandcommunicationtechnologies(ICTs)inthelasttwodecadesisbringingasecondGutenbergrevolution:transformingthewaysthatpeoplecommunicateandshareknowledgewithoneanother,andprofoundlychangingthedynamicsofsocial,politicalandeconomiclife.Thiscommunicationsrevolution–includingtheInternet,mobiletelephonesandnewmediachannels–offersimmenseopportunitiesforpeopletoaccessmoreinformationandknowledge,whichtheycanusetoimprovetheirlives.Butitalsorisksexpandingthechasmbetweenrichandpoor,betweenthosewhoenjoytheaccessandskillstoutilisethesenewinformationandcommunicationchannelsandthosewhodonot.
Atitsheart,development–ifitistobesustainable–mustbeaprocessthatallowspeopletobetheirownagentsofchange:toactindividuallyandcollectively,usingtheirowningenuityandaccessingideas,practicesandknowledgeinthesearchforwaystofulfiltheirpotential.ItrequireswhateconomistAmartyaSencalls‘realfreedoms’2:thecapacityforpeopletoparticipateinadiverserangeofdecisionsthataffectthem,andtoenjoyspecific‘functional’3aspectsthatconstituteahealthylife.Concentratingmoreresourcesonfosteringbettercommunicationandinformationprocessesamongpeople–andbetweenpeopleandgovernments–willincreasethepowerandabilityofindividualstotakeameaningfulpartindebatesanddecision-makingprocessesthatarerelevanttotheirlives.ThisiscrucialtoachievingSen’srealfreedoms.Inshort,informationandcommunicationprocessesarefundamentaltosustainabledevelopmentandlieattheheartofchange.
� Introduction
Introduction
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Butifsuchchangeistobenefitthepoor,providinggeneralisedsupportforinformationandcommunicationprocesseswillnotbeenough.Thefocusneedstobeonsupportingandstrengtheningcommunicationprocessesandchannelsusedbypoorandmarginalisedpeoplewho,becauseoftheirdisadvantagedsituation,alreadyfacemanybarrierstoreceivinginformation–includingilliteracy,distancefromsourcesofinformation,notspeakingthemajorityorofficiallanguages,andlimitedaccesstoradios,televisionsandothermedia(owingtoalackofelectricityorotherservices).Thecapacityofpoorpeopletomaketheirvoicesheardisalsolimited:theyoftenlackaccesstopowerfulpeopleandtocostlycommunicationtechnologiessuchasphonesandcomputers,aswellastheskillstousethem.Evenwithincommunities,socialcustomsandpowerstructuresoftenkeepsomegroups,especiallywomen,silentandexcludedfromdecision-making.
Indeed,anincreasedpowerandabilitytocommunicateiswhatpoorpeoplewishforthemselvesasmuchasthemoretangibledevelopmentbenefitstargetedbytheMillenniumDevelopmentGoals(MDGs).WhentheWorldBankasked40,000poorpeoplein1999whattheydesiredmost,having‘avoice’wasoneofthemostfrequentreplies,secondonlytoimprovedincomeandbasicnecessities.Notbeingabletohaveasayindecisionsthataffecttheirliveswasidentifiedasakeyelementofpovertyinitself.4Thispaperisthereforeacalltoaction:nationalandinternationalpolicymakersandleadersshouldrespondtothisneedandrisetothischallenge.
Communicationinvolvesprocessesofdialogue,exchangeofinformationandresources,andthecapacitiesthatenableunderstanding,negotiationanddecision-making.5Supportforcommunicationinthecontextofsustainabledevelopmentdoesnotjustmeanprovidingmoreinformationtopoorpeople–itmeansgivingthem‘voice’.Itmeansenablingthemtoparticipateactivelyindifferentcommunicationprocesses.Itinvolvesadialogueinwhichpower-holderslistento,consider,respectandusetheknowledgeandviewsofthepoor.Itmeansrecognisingthat,whilenotallformsofcommunicationincludeparticipatoryprocesses–indeed,manysimplyaimtopersuadeorpassoninformation–allformsofparticipationareessentiallycommunicationprocesses.6
Thisimportanceandubiquitydemandsthatpolicymakerstakeaholisticviewofasociety’sinformationandcommunicationprocesses,insteadofthead hocorfragmentaryapproachtheyoftentakeatthemoment.PanosLondoncontendsthatfourkeyareasneedtobetackledusinganintegratedapproach:establishingandrealisinglegalrightstofreedomofspeechandaccesstoinformation;supportingmedia;developingandexploitingtherevolutionarynewopportunitiesofferedbyICTs;andenablinggreaterparticipationofpoorandmarginalisedpeopleinsocial,economicandpoliticalprocesses.
4WorldBank(1999)Voices of the Poor,WashingtonDC:WorldBank
5Panos(2006)Breaking barriers: Effective communication for universal access to HIV prevention, treatment, care and support by 2010,Lusaka,p4.Availableat:www.panos.org.uk/PDF/reports/breakingbarriers.pdf
6QuarryandRamíreznotethat‘Communicationandparticipationareessentiallytwosidesofthesamecoin',andidentifythreeformsofcommunication:i)communicationtoinform(policies,etc);ii)communicationtoeducate(health,socialmarketing,etc);andiii)participatorycommunication(useofcommunicationtoolstoenableparticipation).WQuarryandRRamírez(2004)Communication for development: A medium for innovation in natural resource management,IDRC&FAO,p15
Palmira,a60-year-oldwomanfromMozambique,talksabouttheimportanceofradiotoher.
‘[Radio]helps,sinceitletsyouknowwhathappensinthecountry…It’seducatingusabouthowtolivewithinthefamily,thewaytocookwell…Theysaythatnotbeingspokenaboutmeansbeingexcluded.Iswitchon[theradio]becauselistening…canmakeeventsthatseemdifficulteasier…bygettingtoknowthingsyoucouldn’tknow[before].
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7‘Publicgoods’isaneconomictermreferringtogoodswhich,onceproduced(orexisting),benefitallmembersofasociety–forinstance,educationorjudicialsystems
8Forexample:inruralareaswhereincomesarelow,provisionofICTservicesmaynotbeprofitableenoughfortheprivatesectortoprovidethem,althoughitenablesmanydevelopmentprocessestotakeplace.Similarly,good-qualityjournalismisexpensiveandessentialtoaccountability,butmaynotsellenoughnewspapersorattractenoughadvertisingtoaradiostationtobeprofitable
Manydevelopmentpolicymakersalreadyacknowledgeinprincipletheimportanceofcommunication.However,actionislaggingbehind.Policymakersoftenlacksufficientknowledgeofwhatspecificstepstheycantaketostrengthencommunicationprocesses.Sometimespoliticalwillisalsoabsent:afterall,enablingpoorpeopletoparticipatedirectlychallengesexistingpowerstructures.
Adoptingaholisticapproachwouldfacilitatetheformationofopensocietieswhereinformationandcommunicationprocessesareseenas‘publicgoods’thatbenefitallcitizensandmaximisetheimpactofdevelopment.7Onecharacteristicofpublicgoodsisthatthemorepeopleusethem,thegreaterthecommonbenefit.Communicationprocessesshouldberegardedaspublicgoodsbecausetheycontributetoasociety’sdevelopment,governance,peaceandprosperity.Likeotherpublicgoods,communicationprocessescostmoneytoproducebuttheproducerdoesnotalwaysprofitfromthem,8andmanykindsofknowledgeandinformationbecomemorevaluablethemoretheyareused(asdothenetworkingsystemsthatlinkthemtogether).
At the heart of changeestablishessuchanapproach,showinghowinformation,communication,themediaandICTsarepowerfulagentsofchange,howtheycangive‘voice’tothepoorandcontributetomoresustainabledevelopment.Therearemanycontendingviewsoftheroleofgovernments,civilsocietyandtheeconomyinsuccessfuldevelopment;butthispaperarguesthatinformationandcommunicationprocessesarecentraltoallofthem.Itexplorestherolesthatinformationandcommunicationprocessesplayinallofthekeyelementsthatfosterdevelopment:
equitableandinclusivepoliticalprocesses
nationalandinternationalgovernanceprocessesthatareeffective,responsiveandaccountable
supportingengagedcitizensanddynamiccivilsociety
generatinginclusiveeconomicgrowth,sustainablelivelihoodsandtransparent,efficientmarkets.
Thefollowingsectionsshowhowalltypesandmeansofcommunicationcontributetothesefourelements.Wearguethatafree,pluralisticmediaenvironment–wheremediaoutputsaremanyanddiverse,butalsoofhighquality–isvitallyimportanttosuccesfuldevelopment.Thepaper’sconclusionsuggestsanagendaforactionbypolicymakers,developmentexperts,internationalorganisations,non-governmentalorganisations(NGOs)andtheprivatesector(includingthemedia).
� Introduction
Information and communication processes are fundamental to sustainable development and lie at the heart of change.
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9‘MobilephoneplaysroleinfreeKenyanelections’,postingbyBillKagaitoDemocraciesOnline,www.mail-archive.com/[email protected]/msg00587.html;www.balancingact-africa.com/news/back/balancing-act_164.html
Communicationiscentraltopoliticalprocessesandtheexerciseofpower.Withoutdeep-rootedprocessesofdialogueandnegotiationbetweenastateanditscitizens,astate’srepresentativeinstitutionshavelittlemeaning.Infact,theentirepoliticalprocessandtheongoingexchangeswithincivilsocietyandbetweencitizensandpoliticalinstitutionsthroughwhichpeopleandpoliticalpartiesorganisethemselvesarounddemands,principlesandagendas,arecommunicativeactsatheart.
Thisisobviouslytrueoftheformalprocessofvoting.Newcommunicationstechnologiesareincreasinglybeingusedtoimprovethequalityandtransparencyofelectionsandgenerategreaterpublicconfidenceinthem.Forinstance,duringKenya’s2002election,themobilephonenetworkcrashedaspeopleusedtextmessagingtomobiliseoneanotherandmonitorthepollingbooths.Electionresultsweredisseminatedassoonastheywerecounted,eveninthemostremoteareas.Theuseofmobilephonesinthisinstancecontributedtomoreeffectivecampaigning,greatertransparencyandprobablylessballotrigging.9
Thoseseekingpowerarekeenlyawareoftheimportanceofinformationandcommunication.Traditionally,thefirstobjectiveofrebelgroupstryingtoseizepoliticalpoweristhepresidentialpalace,closelyfollowedbythestatetelevisionandradiostation.Eveninlessviolentpoliticalstruggles,governmentsandoppositionpartiescompetetowinmediasupportandinfluencepublicperceptions.
10
contributiontohealthyCommunication’s
politicalprocesses Newtechnology,suchasthatusedin
Venezuelatoidentifyvotersbytheirfingerprints,shouldimprovethequalityandtransparencyofelectionsandincreasepublicconfidenceinthepoliticalprocess.
dermot tatlow | panos pictures
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10Strategiccommunication–atermalsousedforcommunicationcampaignsdesignedtoachievespecificdevelopmentgoals,suchaschangingpeople’shealthbehaviour–isaprofessionalmethodologyusedtobringaboutvoluntarychangeintheattitudesandbehaviourofcertaingroups.Itlooksforincentivesthatwillpersuadepeopleandrequirescreativityinframingargumentsinawaythatisappealingtothosegroups
11HilaryBenn,speechtoDemos,23October2006;www.demos.co.uk/files/File/HB_speech_-_final.pdf,p2
11 Communication'scontributiontohealthypoliticalprocesses
Onceinoffice,politiciansfindithardto‘listen’totheelectorate.Politicalcrisesofteneruptbecausegovernmentministersareisolatedandfailtorespondtothechangingviewsofcitizens.Partlytodealwiththistension,attemptstomanageinformationandthemediaarebecominganincreasinglyimportantaspectofthefunctioningofpoliticalpartiesandpoliticiansinthedevelopedworld.
Managingcommunicationtobuildpublicunderstandingandtrust–‘strategiccommunication’–isanecessaryandlegitimatetaskofgovernments.10Butthedesiretoinfluenceandcontrolcangotoofar,intothe‘darkarts’of‘spin’–inotherwords,communicationthatismanagedinordertohideuncomfortabletruthsanddeceivethepublictosomeextent.‘Spin’corruptsthelanguageofpoliticalcommunication,generatingcynicismanddisengagementfromthepoliticalprocess.Itistheantithesisoftheopen,inclusive,clearandengagedcommunicationrequiredforsuccessfuldevelopmentinanycountry,andreflectsthefactthatnotallcommunicationisbenign.Opinioncanbemanipulated,truthhiddenordistortedandthemediausedtopromotetheinterestsofelites.Asthequantityofcommunicationincreases,thebadincreaseswiththegood.Thebenefitsofmorecommunicationbringwiththemthedangersofworsecommunication.
Thesolutiontothisisnottorestrictorclosedownchannelsofcommunication,althoughtheestablishmentofjudicious,transparentandpubliclyacceptedregulationandcontrolisimportant.Instead,thegeneralpublicneedtobecomemore‘medialiterate’sothattheyarebetterequippedtodistinguishgoodqualityfrombad;activeinchallengingandinseekinginformationthemselves;andabletoproducemediaoftheirown(particularlymarginalisedpopulationssuchasminoritylanguageandethnicgroups,andunder-representedsectionsofsocietysuchaswomenandyoungpeople).
HilaryBenn,formerlytheUK’sSecretaryofStateforInternationalDevelopment,hasstatedthat:‘Developmenthastobeaboutgettingthepoliticsrightbecausedevelopmentandprogresscannotbeachievedifthepoliticalsystemexcludesthemajority.’11But‘gettingthepoliticsright’meansgettingthecommunicationright,asgoodpoliticsonlyoccurswhenallsectorsofsocietyhavetheinformationandopportunitytheyneedtobecomeinvolvedinthedebatesthataffecttheirlives.Healthypoliticalprocessesneedopencommunicationenvironments.IftherateofprogresstowardstheMDGsistobeincreased,developmentneedspro-poor,people-centredpoliticalprocessesthatputvoiceandaccountability(intheshapeofcommunicationprocessesthatsupportparticipation,inclusiveness,responsivenessandequity)attheheartoftherelationshipbetweenthecitizenandthestate.
Karim(35)fromtheMancharLakearea,Pakistan.Heusedtobeafarmer,buthisfieldswereindundatedbywaterandcontaminatedwithtoxicchemicalsasaresultofamassivedrainageprojecttolinkthelaketotheIndusriver.
‘Ifthegovernmentworksproperly,peoplegetjustice,developmentisdoneandpeople’sproblemsaresolved…Buttheproblemisthatcandidates–afterwinningtheelection–carelessforpeopleandsayourjobisaccomplished…’
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12Thisisalegitimatecritiquewhenthosesamecountriessimultaneouslyrestrictorstymiediscussionsonthemanagementofglobalresourcesandotherglobalgoods(suchasCO2emissionsandpublichealthissues),andreformsinthegovernanceofinternationalsystems(suchastradingrules)andmultilateralorganisations(theWorldBankandIMF).Criticsalsochargedonorswithusingtheabsenceofgoodgovernanceasanexcuseforthefailureofrecentdevelopmentstrategiessuchasstructuraladjustment.Thechargeofhypocrisyisalsosometimesvalid:richcountriesdonotalwaysinsistonthesameanti-corruptionmeasuresforthemselvesthattheydemandofdevelopingcountries
13UKDepartmentforInternationalDevelopment(2006)Eliminating world poverty: Making governance work for the poor: a White Paper on international development,London:DFID,p20
Respondingtotheperceivedpoorrecordofdevelopmentassistanceinreducingpovertyandaseriesofcorruptionscandalsinvolvingdevelopingcountryleaders,northern-hemispheredonorgovernmentsandmultilateralfinanceanddevelopmentorganisationsareincreasinglypromoting‘goodgovernance’.Thisfocuscanbehighlycontentious,withcriticsseeingitasawayforthegovernmentsofrichcountriestoblamethoseofpoorcountries,insteadofrecognisingtheirownroleinwhatsuchcriticsregardasperpetuatingunderdevelopment.12
Nevertheless,fewwoulddisputethefactthatgoodgovernancemattersatthenationallevelandthatitishardtocreate.Whereitisestablished,itpromotestheruleoflawandenablesapoliticalsystemthatbuildscitizens’senseofinclusion,fairness,voiceandparticipation.Itprovidessecurity,stabilityandanenvironmentinwhichpeoplecanmakethemostoftheirlives.However,anyconceptofgoodgovernancemustalsoincludetheexistenceofanactivepublicsphereinwhichsocial,politicalandeconomicissuescanbeopenlydebated,consensusreachedordisagreementsmanaged,andgenuinesocialparticipationandpoliticalresponsibilityestablished.Thisdynamic,ongoingprocessputsinformationexchangeandmultiplecommunicationflowsattheheartofthechallengeofestablishingandmaintaininggoodgovernance,forgovernmentsandcitizensalike.Approachestogoodgovernancethatfocussolelyonimprovingthe‘supplyside’ofgovernmentperformance,orwhichconcentrateoverwhelminglyonelectionsandrepresentation(conceivingofcitizenssimplyasvoterswhoexpresstheirconsentfromtimetotimebutleavegovernmenttoelectedrulersandelites)areinadequateandflawed.Ausefulframeworktoevaluatethequalityofastate’sgovernancewasprovidedin2006bytheUKGovernment’sDepartmentforInternationalDevelopment(DFID),whichdefinedgovernanceasthestate’sresponsivenesstoitscitizens’aspirationsandneeds,accountabilityforitsactions,anditscapabilitytoperformkeyfunctions.13Communicationiscentraltoeachoftheseprocesses.
Stateresponsivenessdescribesthebehaviourofgovernment–thewayinwhichittakesaccountofitscitizens’expectationsandneeds,andrespondstothem.Keyelementsofgovernmentresponsivenessarerealisedthroughcommunicationprocesses,suchaspolling,openandreactivebureaucracies,anddebatethroughthemedia.Toooften,thevoicesofthewealthyandpowerfularethosethatare‘heard’bygovernmentsandthewiderpublic,andtheybecomemoreinfluentialthanthevoicesofthepoor.Yetagovernmenthasobligationstoallitscitizens,andshouldensurethatchannelsandmechanismsexistforpoorandmarginalisedpeopletomaketheirvoicesheard.
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Communicationattheheartofgoodgovernance
Attheheartofchange:Theroleofcommunicationinsustainabledevelopment
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14LNeuman(2006)‘Makingpublicinstitutionstransparent:Thecornerstonesofanopensociety’,paperpreparedfortheWorldCongressonCommunicationforDevelopment,Rome
15MMooreandGTeskey(2006)The CAR framework: Capability, accountability, responsiveness. A discussion note for DFID Governance and Conflict Advisors,London:DFID
16LouisDBrandeis(1914)Other People’s Money – and How the Bankers Use It,NewYork,NY:Stokes
17UtsteinAnti-CorruptionResourceCentre:www.u4.no/helpdesk/faq/faqs2c.cfm
18ResearchersfoundthatwheremediaandICTpenetrationwasgreater,corruptionlevelswerelower–withthemostsignificantvariablebeingnewspapercirculation.SeeSBandyopadhyay(2006)Knowledge-driven economic development,EconomicsSeriesWorkingPapersno267,DepartmentofEconomics,UniversityofOxford
19RIslam(2003)Do more transparent governments govern better?PolicyResearchWorkingPaper3077,WorldBank,inABellverandDKaufmann(2006)Transparenting Transparency, Initial Empirics and Policy Applications,TheWorldBankInstitute
20DBanisar(2006)Freedom of information around the world 2006: A global survey of access to government information laws,PrivacyInternational
21FreedomofInformationlegislationhasbeenpendinginGhanaandNigeriaforsixyears,andtheZambianGovernmenthasbeenrunning‘consultations’onpotentiallegislationsince2001.SeeBBCWorldServiceTrust(2006)African Media Development Initiative: Research summary reportatwww.bbc.co.uk/worldservice/trust/specials/1552_trust_amdi/index.shtml
22Therearealsomanyexamplesofwasteandfailureinlarge-scalegovernmentICTprojects(seePrivateEye,27February2007,issue1179);aswellasfearsthattoomuchgovernmentinformationmaythreatencitizens’freedom
Goodpolicytendstoemergefromgoodpolicymaking–andgoodpolicymakinginvolveslisteningandengagingwithpeoplewhoareinterestedinoraffectedbyanissue.Greaterconsultationandresponsivenessincreasespublicownershipandtrustingovernment,andoftenleadstomoreeffectivepolicies.Researchhasshownthatwiderandmoreeffectivecommunicationcaninspireincreasedpublicsupportandcontributetopoliticalgainsforgovernments,suchaslongertenure.14Astutepoliticianswillseethatreal,two-waycommunicationhastangiblepoliticalbenefits.
Stateaccountabilityisrealisedthroughthefunctionsoftransparencyandmonitoring.Transparencyisanessentialcomponentinmakingallkindsofsystemsandprocessesaccountabletotheirusers,stakeholdersandconsumers–notonlyfornationalgovernmentsbutalsoforinternationalbodiesandtheprivatesector.15‘Sunlightisthebestdisinfectant’,16USSupremeCourtJusticeLouisBrandeisfamouslyobserved,andtransparentinformationandcommunicationflowsreduceopportunitiesforcorruption–particularlyintheareasofgovernmentrecruitmentandpromotion,andbudgetarycontrol.17ThereisevidencetosuggestthatgreaterpenetrationofICTsandmassmediainacountryisalsolinkedtolowerlevelsofcorruption.18Countriesthataremoretransparent–forexample,intheprovisionofeconomicinformation–scorehigheronindicatorsforgovernmenteffectivenessandaccountability,aswellasforencouraginginvestment.19
Accessforallcitizenstoinformation–heldbygovernmentsbutalsobytheprivatesector–isanessentialcomponentofgoodgovernance,enablingcivilsocietytomonitordevelopmentsandholdthoseinpowertoaccount.Citizensneedaccesstoinformationinordertoknowanddemandwhattheyareentitledto,aswellastounderstandpoliciesandprocessessothattheycanquestionthemandenterintoinformeddialogue.By2006,nearly70countrieshadadoptedcomprehensivefreedomofinformationlegislationtofacilitateaccesstorecordsheldbygovernmentbodies.Another50areintheprocessofdoingso,20thoughlegislationisoftenunnecessarilydelayed.21
Improvingthequalityandquantityofstateprovisionofsecurity,healthandeducationservicesinthedevelopingworldisafundamentalrequirementiftheMDGsaretobeachieved.Informationandcommunicationprocessesandtechnologiesoffersubstantialpotentialbenefitstoboostthecapability and performance of state bodiesandincreasethequalityofpublic service delivery.22SomeofthewaysinwhichICTscanhelpgovernmentsimprovetheiradministrativeproductivityandefficiencyinclude:collectingandusingstatisticalinformation;onlinerecord-keepinganddocumentarchiving;andprovidinggreatertransparencyofprocessessuchasstaffrecruitmentandlegalreporting.ICTscanalsosimplifyday-to-dayrelationsbetweencitizensandstateadministrationinprocessessuchaslicenceapplicationsorlandownershiprecords.
However,ICTsarenota‘goldenkey’tochange–theyonlyaugmentthepoliticalwilloftheinstitutionsbehindthem.Withoutorganisationalandsystemsreform–andstrongleadershiptoguideit–changestoimprovepublicadministrativecapacitiesandservicedeliverymayberesistedlowerdowninbureaucraciesandimplementingagencies.TheincreaseduseofICTsingovernmentisofnouseifthegovernancesystemsdonotacknowledgepublicneedsoriftheinformationbeingusediswrong.Andtechnologiesdonotbringaboutchangeiftheydonotmatchtheskillsandcapacitiesofthepeoplewhoaremeanttousethem–forexample,awebsitemightnotbeusefultoanon-literatewoman.
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23ExamplesincludetheuseofmobilephonestoprovidepublicserviceinformationinIndia;e-complaintcentrestotrackserviceusersatisfactioninPakistan;andonlinewaitinglistsinCroatia.Formoredetails,see:GSharma,NRajandBShadrach(2005)Knowledge and research programme on improving efficiency of pro-poor public services,OneworldSouthAsia/DFID
24See:www.publicprivatedialogue.org
25RReinikkaandNSmith(2004)Public expenditure tracking surveys in education Peru, Uganda and Zambia,Ethicsandcorruptionineducationseries,IIEP;RReinikkaandJSvensson(2004)The power of information: Evidence from a newspaper campaign to reduce capture,PolicyResearchWorkingPaper3239,WorldBank
Thedesignofmoreeffectivepublicservicedeliveryorlarge-scaleinfrastructureprojectsrequireswidespreadandin-depthconsultationwiththepublicinordertotailortheprojectsappropriatelyandgainconsentandownershipofthestrategiesandprioritiesadopted.Thisisnotawastefulorpointlessexercise:researchshowsthatthedeliveryofpublicservicesismoreefficientwhenprospectiveusershavetheopportunitytoprovideinputintotheirdesign.23Evenwherelegitimatenationaleconomicorpoliticalobjectivesclashwithlocalinterestsorviews,includinglocalpeopleattheearlystagesofprojectplanninggivesthebestchanceofreachingcompromise,sharingcostsandbenefitsmoreequitablyandcreatingagreaterlevelof‘ownership’andacceptance.Therealityisthattheremaybeablurrylinebetweensophisticatedcommunication,whichseeksto‘manufacture’consent,andgenuineconsultation,whichshowsawillingnesstoengagepeopleandpossiblychangeplansbasedontheirinput.Butincreased,open,informationandcommunicationprocessesare–bytheirnature–morelikelytoexposecaseswhereconsultationsanddialoguearespeciousorineffectual.
Whenpeopleexpressobjectionstoadevelopmentproject,itisoftennottheproject’sgoalstheytakeissuewith,buttheirlackofinvolvementinboththeplanningstagesandtheintendedbenefitsoftheinitiative.Peoplewantasayintheirfuture.Wherecommunicationprocessesareusedproperly,thesenseofownershipincreasesandinvestmentsaremoreefficient.24Thepublicationofstatisticalresearchandindependentimpactassessments,andinitiativessuchascitizenreportcards,telephone‘hotlines’andindependentombudsmen,canalsogivethegeneralpublicandcivilsocietythetoolstheyneedtomonitorperformanceandholdserviceproviderstoaccount.In1996theUgandanGovernmentincreasedspendingonprimaryeducation,butsawlittleimpactonschoolenrolmentlevels.Publicexpendituretrackingsystems(PETS)collecteddatafrom250schoolsandfoundthatonly13percentofintendedgrantsactuallyreachedschools.Thegovernmentrespondedbypublishingthemonthlytransfersofpublicfundstothedistrictsinnewspapers,broadcastingitonradio,andrequiringprimaryschoolstopostinformationoninflowsoffundsinapublicplace.Thisempoweredcitizenstoholdallthestakeholderstoaccountanddrewattentiontowheremoneywasbeingmis-spent.Asaresultofthecampaign,around80percentofeducationfundsbeganreachingschools.25
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26RPutnam(2000)Bowling alone: The collapse and revival of American community,NewYork:Simon&Schuster.Putnamdefinessocialcapitalas‘socialnetworksandthenormsofreciprocityandtrustworthinessthatarisefromthem’whichheconsiderstobeenabledbytheinterpersonalassociationsandsharednormsgainedthroughpersonalinteraction.Theconceptsunderpinningsocialcapitalcanbetracedbacktothe19thcenturyworkofJamesMadisonandAlexisdeTocqueville.Inthe20thcentury,JohnDeweyreferredto‘socialcapital’inSchool and Societyin1900,whilePierreBourdieudistinguishedbetweeneconomiccapital,culturalcapitalandsocialcapital
27AnanalysisbyHarvardUniversityoftheWorldValuesSurvey(whichlookedatsocialcapitalin47nationsfrom1995–97)foundapositivecorrelationbetweenwidespreadaccesstomassmediaandsocietieswithhighsocialcapital.PNorris‘Editorial:Socialcapitalandthenewsmedia’,The Harvard International Journal of Press/Politics,7:1
Mostaspectsofeverydaylifehaveacommunicativedimension.Thefabricofsocietyiswovenfromongoingcommunicationandexchange–throughinterpersonal,informalandculturalprocessesaswellasformalinstitutionsandofficialchannels.Civilsocietyconsistsofdifferentinterestgroupspursuingagendasthataresometimescomplementary,sometimescompeting.Aswehaveseen,civilsocietyworksasanessentialcounterweightto,andpartnerof,governmentsinestablishingandmaintainingwhatisreferredtoasthe‘demandside’ofgoodgovernance.Justasimportant,however,istherolecivilsocietyitselfplaysinshapinganddrivingdevelopment.
Ahealthycivilsocietyischaracterisedbythevibrancyandqualityofthenetworksbetweenindividuals,groups,institutionsandorganisations,andthesocial capitaltheycreate.Socialcapitalisameasureofthedegreeofengagementbyindividualcitizensinciviclifeandthereforethestrengthofcivilsociety.26Informationandcommunicationprocessesarefundamentalcomponentsintheconstructionofsocialcapital.27
1� Communicationisfundamentaltoavibrantcivilsociety
Activecivilsocietyorganisations,suchasthiswomen’sgroupinNiger,canhelpshapeanddrivedevelopment.
david rose | panos pictures
isfundamentaltoavibrantcivilsociety
Communication
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28EdwardCGreen(2003)Rethinking AIDS prevention: Learning from success in developing countries,WestportCT:GreenwoodPress
29PanosLondon(2006)Speaking freely, being strong: HIV social movements, communication and inclusive social change – a case study in South Africa and Namibia.Availableatwww.panos.org.uk/speakingfreely
30PanosLondon(2003)Missing the Message? 20 years of learning from HIV/AIDS,p1andp46.Availableatwww.panos.org.uk
Socialnetworksarealsoenabledthroughcommunication–particularlytheinterpersonalcommunicationoftelephonesandtheInternet,andthroughphysicalassociation.Forexample,inUgandadiscussionandknowledge-sharinginpersonalcommunicationnetworksmadepeoplefeelthatHIVandAIDSaffectedthempersonally,promotingchangesinbehaviour.28Similarly,theHIVandAIDSsocialmovementinSouthAfricawasenabledthroughinterpersonalcommunicationanddrivenbyadesiretobuildassociationsandfindinformationfromotherssharingthesameexperiences.29Theactive,empoweredandengagedcitizenswhoeventuallyformedtheTreatmentActionCampaignexercisedconsiderableinfluenceastheyharnessedthecommunicationtoolsofadvocacy,massmovementandpoliticalpressuretoinfluencetheSouthAfricanGovernment’spoliciesonantiretroviral(ARV)drugs.
Whilebringingaboutchangesinpublicpolicycanbedifficult,ithappensfrequentlyinpractice.Changingsocietalattitudesandindividualbehaviourismuchmorechallenging,butfarmoresignificantforachievingsustainabledevelopment.The20-yearstruggletoovercometheHIVandAIDSpandemicoffersanobjectlessoninwhatworks–andwhatdoesnot–inattemptstochangesocialattitudesandbehaviour.AnanalysisbyPanosLondonin2003concludedthat,whileenormouseffortandhugeamountsofmoneyhadbeeninvestedinpreventioncampaignsusingthemedia,informationdisseminationandmessaging,themostsuccessfulcommunicationstrategieswentbeyondwhatiscalled‘socialmarketing’andtop-downmassmediacampaigns,andfosteredenvironmentswhere‘thevoiceofthosemostaffectedbythepandemiccanbeheard’.Itconcludedthat‘onlywhenpeoplebecometrulyengagedindiscussionsandtalkingaboutHIV,doesrealindividualandsocialchangecomeabout’.30
Themediacanplayavitalpartingeneratingandsustainingsuchchange,buttheircontentmusthaverelevanceforandgivevoicetolocalcommunities.Forexample,researchhasstronglysuggestedthattheinternationallyrenownedSoulCityinSouthAfrica(whichproducesatelevisionsoapoperaandaccompanyingprogrammesandmaterialsonradio,youthnewspapersandoutreachactivitiesreaching70percentofthepopulation)hasreducedHIVandAIDS-relatedstigmainthecountry.
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Gerald,whovolunteerswithSouthAfrica’sAtlantisIntegratedHIV/AIDSNetwork,whichincludestheTreatmentActionCampaign,inaninterviewabouthisexperienceofbelongingtoasocialmovementgroup.
‘Iencouragepeopletospeakout…youcangetverysickifyoucarrythisburdenalone…Wetalkabouteverythinginthegroup.FromgeneralHIV/AIDSinformationtoforgivenesstodeath…wecoveralotoftopicsinoursupportgroup.Weworkwiththemedia.WerecentlyhadafewradiotalksonHIV/AIDSatourlocalradiostation.Andweareplanningtoputsomemorephotosinthelocalnewspapers…’
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31Seefootnote6,p5
32Ruralextensionisthesharpendofcommunicationeffortstobringnewagriculture,healthandbusinesspracticestoruralpeople.Extensionworkersareavitallinkbetweencommunitiesandruraldevelopmentinstitutionsandenablethecommunicationofinformationbetweenboth.StudiesinKenyasuggestthatonaveragea100percentincreaseinextensionworkersperfarmtranslatestoa13percentincreaseinyield:seeEEvenson(1998)The effects of agricultural extension on farm yields in Kenya,DiscussionPaperno798,EconomicGrowthCenter,YaleUniversity
33Forexample,inavillageinsouthernIndia,atelecentrewasestablishedinthepremisesofatemple.Peoplewhohadnotbeenallowedintothetempleforcenturies–includingmenstruatingwomenaswellasDalits–wereallowedintousethetelecentre.Formoredetails,seehttp://partners.nytimes.com/library/tech/00/05/biztech/articles/28india.html
34‘Networksociety’isthetermcoinedbyManuelCastellstorefertothechangesthatthetechnologiesofelectroniccommunication(firstelectronicexchange,thencomputernetworks,thentheInternet)havebroughttothefundamentalsofsociety(conceptualisedastheeconomy,thestateanditsinstitutions,andthewayspeoplecreatemeaningintheirlivesthroughcollectiveaction).SeeMCastells(2000)End of Millennium, the information age: Economy, society and culture,volIII,Oxford:Blackwells
Similarly,withinthefieldofnaturalresourcemanagement–forestry,agricultureandfisheries–thereisashifttowardsrecognisingthat‘peopleareattheheartoftheecosystem’.31Overthelast30years,communicationfordevelopmentprojectsallovertheworldinthissectorhaveshownthatfarmersmustbeinvolvedinthedevelopmentandadoptionofnewcropsandtechnologies,andthemanagementofcreditfacilities,marketinformationandaccessstrategiesiftheyaretobeappropriate,effectiveandefficient.Whenparticipatoryformsofcommunicationareusedinprojectsthataregenuinelyreceptivetowhatlocalpeoplehavetosay,resource-managementeffortshaveagreaterchanceofbeingsustainable.32
Genderremainsoneofthemostchallengingdevelopmentissuesbecauseinmanycountrieswomenareexcludedfromdecision-makingandtheirvoicesmarginalised.Addressingthesechallengesdemandsarangeofcommunicationefforts:topressuregovernmentstointroducelegalandconstitutionalchanges;communicationtoandwithininstitutionstoremovebarrierstowomen’sparticipation;andtochangesocialandculturalattitudes,bothofwomenthemselvesandofmenwhooftenhavethepowertoeffectthenecessarychange,butnottheunderstanding.MediaandICTscancreateopportunitiesforwomentoempowerthemselves,tomakethecaseforequalityandacttogethertoovercomeage-oldprejudiceandinequity.33
Attheinternationallevel,communicationprocessesareincreasinglyenablinganewglobalcivilsociety.ICTshavestrengthenedexistingformsofassociationtogiverisetoanemergingglobal‘networksociety’34whichhasmassiveimplicationsforcivilsociety,citizenshipandthepoliticalprocessofdevelopmentinrichandpoorcountries.ICTsmakeiteasierforissue-basedglobalsocialorganisations–suchaspeasant,indigenouspeoples’andwomen’smovements–tobeformedandtofunction.Communication,therefore,bothenablestheproductionofsocialcapitalandprovidesthefunctionalcapabilitiestopursuecivicengagement,whichissoimportanttosustainabledevelopment.
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Betteraccesstolowcost,reliableICTscanhelpsmallbusinesses,liketheseinPokhara,Nepal,participateintheeconomyonamoreequalbasis.
amanda leung | panos pictures
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35‘Buy,cell,hold:ThespreadofmobilesinAfrica’,TheEconomist,25January2007
36ITUInternetReport(2006)digital.life,ITU
37‘India&GlobalisationSpecialReport’,FinancialTimes,26January2007,p6
38CKPrahalad(2005)The fortune at the bottom of the pyramid: Eradicating poverty through profits,WhartonSchoolPublishing
39TheEconomist,26October2006
Open,participatorycommunicationandinformationprocessesalsoenablehealthyandsustainableeconomicdevelopment.Whereinformationflowsfreely,marketsandbusinessesgrowandthestateshouldbeabletoperformitspublicinterestrolemoreeffectively.Thisistrueforbothdevelopinganddevelopedeconomies.Openaccesstoinformation,andparticipatorydebate,areimportantateverylevel–whetherinfacilitatingtheday-to-dayactivitiesofsmall-scaleproducers,establishingbusiness-friendlyenvironmentsatnationallevel,debatingnationaleconomicregulationandpolicy,ornegotiatinginternationaltradeagreements.
Marketinformationisalwaysimperfect,butpoorpeopleandsmallproducersaredisadvantagedbecausetheyusuallylackinformationthatisreadilyavailabletorichpeopleandlarge-scaleproducers.Betteraccesstoinformationcanhelpsmallproducersparticipateinmarketsonmoreequalterms:forexample,theInternetandtextmessagingarebeingusedinmanycountriestoenablesmallfarmerstoknowwhatpricetheirproductsarefetchinginlocalandnationalmarkets.Accesstothisinformationputstheminastrongerpositionfornegotiatingpriceswithintermediaries.
Governmentscansupporteconomicactivity,therefore,byencouragingthespreadofreliableandlow-costICTs,whicharealreadygrowingrapidly.Fourtimesasmanypeoplehadaccesstomobilephonesthantofixed-linephonesinsub-SaharanAfricain2004;by201085percentareprojectedtohavenetworkcoverage.35Mobilephonesubscriptionshavegrownfivefoldto1.4billionindevelopingcountriessince200036andinIndiasevenmillionnewsubscribersarebeingaddedtomobilenetworkseverymonth.37Butinmanycountriesgovernmentsarestillprotectingtheirnationaltelecommunicationscompanies,reducingopportunitiesandkeepingcostsofserviceshigherthantheyneedtobe.
TherearemanyotherexamplesofhowthespreadofICTsisprovidingnew,innovativesolutionstothefundamentalneedsofpoorpeopleandhelpingtoincludetheminthewidermarket–whatCKPrahaladcallsthe‘bottomofthepyramid’.38Forinstance,in2005globalmigrantsremittedUS$232billion,ofwhichupto20percentwaslostontheway–mostlyinbankchargesorfraud.InSouthAfricaalone,12billionrand(US$1.5billion)issenteachyeartorelativesinotherpartsofthecountry–moneythatisusuallysentinformallyandoftenbyortosomeofthe16millionpeoplewithoutabankaccount.But30percentofthisgroupownmobilephones,andSouthAfricanphonecompaniessuchasWizzitarenowofferingbankingservicesviatextmessagethatpromiseasecurebutlower-costwayofmovingmoney.In2006Wizzithadhalfamillioncustomers,eightoutoftenofwhomhadnobankaccountandhadneverusedanATM.39
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Communicationforefficientandmoreequitableeconomies
Communicationforefficientandmoreequitableeconomies
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40WorldEconomicForum(2005),Global Competitiveness Report 2005–2006,Chapter2.1
41Seewww.doingbusiness.org/ExploreTopics/StartingBusiness
42HDeSoto(2001)The Mystery of Capital,London:BlackSwan
43Thenewly-establishedCommissiononLegalEmpowermentofthePooriscurrentlyworkingwithUNDPtoseehowtheobstaclescanbeovercome.Seehttp://legalempowerment.undp.orgformoredetails
44ThisisnowbeginningtohappenwiththelaunchinApril2007oftheMedicinesTransparencyAlliance(MeTA)whichaimstomakedatapublicontheprice,availabilityandqualityofmedicinesforHIV,malariaandtuberculosisinordertoimproveaccesstomedicalcare.SeeFinancialTimes,19April2007,p4
Governmentscanalsoencourageinvestmentandfacilitateentrepreneurshipbycreatingacultureoftransparencyandreducedcorruption.Theycanboosteconomicactivityonalargeaswellassmallscalebymakingbureaucraticandregulatoryprocedures–suchasbusinessregistration,licensingprocesses,andimport/exportprocedures–simpler,faster,cheaperandmoretransparent.Incountrieswithlowlevelsoftransparency,registeringanewbusinesscostsfourtimesmorethanincountrieswheretheleveloftransparencyishigh.40InSweden,forexample,registeringabusinessofficiallyinvolvesthreeprocedures,takesanaverageof16daysandcostsonly0.7percentofpercapitagrossnationalincome(GNI).InMozambique,itrequires13procedures,takesanaverageof113daysandcosts85.7percentofaveragepercapitaGNI.41
Accesstocapitalisoftenamajorproblemforsmallbusinessesandthusasignificantconstraintonincreasingeconomicactivity.Poorpeoplegenerallylackassetswhichcanbeacceptedassecurityforloans.EconomistHernandoDeSotopointedoutthatthisisnotnecessarilybecausetheydonothaveassetsbutbecausethesearenotofficiallyrecognised–forexample,theirhousesmightbeininformalsettlements.42Therewouldbegreatpotentialeconomicbenefitinestablishingmechanismsforreleasingthecapitallockedupintheseassets;andcreatingandmaintainingtransparentandaccessibleinformationsystemswouldbecentraltosuchreforms.43
Reducingcorruptionalsocontributestoamoreenablingenvironmentforeconomicactivity.Whereacultureofopennessandtransparencyexists,withaccesstoinformationandknowledge,andeffectivepublicscrutinyprocesses,corruptionisreducedandeconomiesgrow.TheExtractiveIndustriesTransparencyInitiative(EITI)launchedattheWorldSummitonSustainableDevelopmentin2002wasdesignedtoincreaselevelsoftransparencyaboutpaymentsbycompaniestogovernments,andaboutthesharingofrevenues.EITIisanimportantandvaluablemodelformakingeconomicinformationavailabletoinformcitizensbetterandpreventcorruption.Itisamodelthatshouldbeextendedtoothereconomicsectors.44However,itisimportantthatthisinformationbeprovidedregularlyandinaconsistentway,otherwiseitrisksbeingmanipulatedforpoliticalpurposes.
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Salma,awomaninherlate40swholeftherhusbandwhenhedidnotprovideforthefamilyandsetupabusinessasatailorinSangharinSindhprovince,Pakistan,wastalkingtoajournalistfromthePakistanmedia.
‘Povertycanonlybealleviatedifthegovernmentextendsinterest-freeloanstopoorpeoplethroughsomeNGOandtakestheseloansbackineasyinstalments,onlythenpeoplecanestablishtheirbusiness.ThereshouldbeagarmentfactoryforwomeninSangharcity,wherethousandsofwomenandgirlsarereadytowork…’
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45Forexample,Uganda’sfirstPRSPhighlightedagricultureasoneproductivesectorthatneededtogrowinordertoprovideopportunitiesformanypoorpeopletoimprovetheirincomes.Butitfailedtotakeintoconsiderationthefactthatlargepartsofthecountry’sproduction,andalargeproportionofitspoorpeople,werepastoralists.ThePRSPfocusedoncommercialhorticultureforexport,andfailedtoincludesomesimplemeasuresthatcouldhavehelpedpastoralistsincreaseoutputandprofitmorefromtheexportofmeatandlivestock.Pastoralists–whoareoftenamongthemostmarginalisedgroupsinanycountry–hadnotbeenconsultedandwerenot‘visible’totheurban-basedpolicymakers
Inthevitalareaofnationaleconomicpolicymaking,wherethechoicesmadehaveprofoundconsequencesforthedistributionofwealthandpower,theviewsandinterestsofpoorpeopleandmarginalisedgroupsareoftenunheardorignored.Opendebateandscrutinyofeconomicpolicy,throughfreemedia,ismorelikelytoresultinpolicythatfacilitatespro-pooreconomicgrowthandsupportsthelivelihoodsofthepoor.Butoneofthemostsustainedinternationalattemptstobringpoorpeopleintopolicymakinghas,sofar,beenlimitedinitssuccess.ThePovertyReductionStrategyPaper(PRSP)approach,introducedbytheWorldBank,aimedtoincludeawiderangeofdomesticstakeholdersandinterestedgroupsintheformulationoflow-incomecountries’short-termdevelopmentstrategies,oftenasapre-conditionfordebtreliefandinternationalfinancialsupport.InthefirstroundofPRSPstheconsultationprocessesweregenerallyweak:debateaboutcountries’overalleconomicpolicieswasavoided,andtherewasinadequateparticipationofpoorpeople–theintendedbeneficiariesofthestrategies.45PublicparticipationhasincreasedinmanycountriesinsubsequentroundsofPRSPs,butwhetherthiswillbesustainedremainstobeseenascountriesintroducetheirownnationaldevelopmentplans,oftenstressingtheimportanceoflong-termeconomicdevelopment.
Whereinternationalpolicymakingisconcerned,therearealsoinequitiesincommunication,informationandparticipationthatneedtobeaddressed.Theopenness,transparencyandaccountabilityofmanyinternationaleconomicbodiesandforums–suchastheInternationalMonetaryFund(IMF)andWorldBank–needtobeimproved;frequentlytheinformationandanalysisavailabletonegotiatorsfromdevelopingcountriesonmanyhighlycomplexandtechnicalissuesisfarfromadequate.
Thishasbecomeevenmoreapparent,giventhescientificcomplexityofthemajorenvironmentalchallengesthatthreatenthelong-termdevelopmentofalltheworld’spopulation.Someofthese–suchasclimatechange,over-fishingandlossofbiodiversity–areglobalchallenges,wherethethreattothe‘commons’affectseveryone,andcountriesmustworktogethertorespondeffectively.Otherenvironmentalchallenges–suchaslossofsoilfertility,shortageoffreshwater,pollutionandwastedisposal–aremorelocalintheirincidenceandimpact.Dealingwiththempresentssomeofthemosturgentcommunicationchallengesfacingtheworldtoday.Itrequiresthesharingoffactualandscientificinformation;debateonimpactsandpolicyresponses;negotiatingactionbetweengovernmentsandcivilsocietynationally,andamonggovernmentsatagloballevel;anddiscussingandagreeingtrade-offs,compensations,mechanismsandothermeasures–allofwhichdependontransparentmonitoringprocessesandaccountabilitymechanisms.
�1 Communicationforefficientandmoreequitableeconomies
Where a culture of openness and transparency exists, with access to information and knowledge, and effective public scrutiny processes, corruption is reduced and economies grow.
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Indevelopingcountries,patternsofmediareachvaryenormously,withnewspaperreadershipstrongerinurbanareas,radiothesinglemostimportantmediuminAfrica,andtelevisionbecomingincreasinglypervasiveinAsiaandSouthAmerica.Forpeopleeverywhere–richandpooralike–themediaaretheprimaryprovidersofnewsandinformationfromoutsidethecommunity,andmediacoveragereflectsandaffectseveryaspectofcultural,social,politicalandeconomiclife.Themedia,therefore,playafundamentalroleininformationandcommunicationprocesses.Themediasupportandenableallaspectsofpoliticalprocessesandthenegotiationofpower,relationshipsbetweenpeopleandgovernment,andtheformationofgoodgovernance.Themediaarealsoanimportantpartofcivilsociety,reflectingdifferentvoices,competinginterestsandtheclashofopinionswithinit.Theyhelparticulateneedsanddemands,shapeopinionandattitudes,andprovideavehicleforpoliticalandculturalexpression.
Freemedia46areanessentialcomponentofaccountability.Theyhavethepotentialtoreportonandinvestigatethedecisionsandbehaviourofthepowerful,exposingcorruptionandprovidingaspaceforissuestobedebatedandagendasdeveloped.InPoverty and Famines,47AmartyaSenfamouslyarguedthatnofaminehasevertakenplaceinacountrythathasmulti-partypoliticsandfreemedia.Whiletherelationshipbetweenpoliticiansandthemediais–attimes–antagonistic,48mostgovernmentsarecommitted,atleastinprinciple,toestablishingaregulatoryandenablingenvironmentthatallowsthemediathefreedomand‘space’tospeakandactfreely.Itiswhensuchpoliticalwillandprotectedspaceareabsentthatthemediacannot,orfailto,holdgovernmentstoaccount.
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46‘Free’mediaisdefinedasfreeofgovernmentandstateinterference.Mediafreedomandindependenceisalsoaffectedbytheboundariesofitsowninstitutionalconstraintsandconcentratedownership
47ASenandJDreze(1981)Poverty and Famines,Oxford:OxfordUniversityPress
48The19thcenturyUSjournalistEmeryKelencynicallynotedthat:‘Theinterviewisanintimateconversationbetweenjournalistandpoliticianwhereinthejournalistseekstotakeadvantageofthegarrulityofthepoliticianandthepoliticianthecredulityofthejournalist.’CitedinJonathonGreen(1986)The Cynic’s Lexicon,London:SphereBooks,p112
Theroleofthemedia Inearly2007CharlesGyudeBryant,
headofthetransitionalgovernmentinLiberiafrom2003–2006,waschargedwithembezzlingmorethanUS$1millionofstatefundswhileinoffice.TheLiberianmediaactivelycommentedonhisgovernment’sperformancewhilehewasinpower.Heretheyinterviewhimonthedayofhisinauguration.
tim a hetherington | panos pictures
Attheheartofchange:Theroleofcommunicationinsustainabledevelopment
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49‘Pluralistic’mediaisdefinedasmediathatarediverseandindependent,therebyprovidingavarietyofinformationtoallgroupsinsociety
Foratrulyindependentandpluralisticmediatoexist,therealsoneedstobepluralismofmediacontent.Onlywhenmediaisdiverseandpluralisticinbothformandcontentcanthecompetitionofvoices,opinions,factsandinterestsbefullyengaged.Whenthistakesplace,governmentsandthepowerfulinallsectorsofsocietyarefarmorelikelytobeheldtoaccount.Thequalityofmediacontentisasimportantasthequantity.Achievingqualityandengaged,informedandrespectedmediaisaresponsibilityofthemediathemselves;andwhilecitizenshavetherighttochoosethekindofmediatheywant,themediahavearealself-interestinhelpingtoestablishapublicofeducatedconsumerswhoare‘medialiterate’,whoknowwhattheywantandneed,andwholegitimatethemedia’sroleinholdingthepowerfultoaccount.
Bytakingonthischallenge,themediaareperformingapublicservicerole.Sucharoleisnotlimitedtopubliclyowned,state-ownedorcommunitymedia.Commercialandreligiousmediacanalsofulfilit,combinedinvariousdegreeswiththeirotherfunctions.Theessentialsofpublicservicemediaareaccessibility(includingbypoorandmarginalisedpeople)andquality contentthatistrue,informative,andreflectsdifferentvoicesandperspectives.Inotherwords,contentthatisbasedongoodjournalism.Itisthequalityofcontentthatmakesmedia–whetherpubliclyorprivatelyowned–meaningfulactorsindevelopment.
Themediaalsoneedtobepluralistic49intermsofownership,scopeandscale(encompassingmassmedia,communityandcitizenmedia).Pluralismofownershipanddiversityofmediacreatethepublicsphereinwhichdifferentvoicesandopinionscancontend.Allmediaorganisationsandentitiesoperateaccordingtotheirownagendasandpriorities,businessopportunitiesandconstraints.Manyareownedbyindividualsororganisations–businesspeople,politicalactorsorparties,orreligiousorganisations–whopromotetheirparticularinterests.Themediaarenotneutral,evenwhentheyarecommittedinprincipleto‘publicservice’.Theymustattractandkeeptheiraudienceandconsumers,aswellassatisfytheexpectationsanddemandsofownersandstaff.Anapparentpluralityofmediacanbedeceptive.Theexperienceofmanydevelopingcountrieswhentheyliberalisedtheirmediainthe1980sand1990swasthattheygainedmoremediaoutlets,butthesewereconcentratedincities,andthequalityanddiversityofwhatwaspublishedorbroadcastdidnotimprove.Theincreasingconcentrationofmediaownershipinmanymarketsinboththedevelopedandthedevelopingworldmeansthat–despiteaplethoraoftitlesandoutlets–theactual‘voices’,rangeofinterestsandviewsreflectedmaybeextremelynarrow.
�� Theroleofthemedia
Fatimata,a62-year-oldwomanfromOuahigouyainBurkinoFaso
‘Beforeitwasasilentlifebetweenmenandwomen…womenkepttheirideastothemselves,evenifthesewouldhavebeenahelptothecommunity…Nowadays,theradioisamajorsourceofinformation.Thiskeepswomenuptodatewithallthenewsfromthearea,thetown,neighbouringcountriesandoverseas.Wenowhavewomenwhopresideovermeetingsinthevillage,inthelocalarea…Theyhaveallbeendemocraticallyelectedbyvillagegroupsandotherpoliticalstructures.’
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50GlobalForumforMediaDevelopment(2007)Media Matters,London,p6
Qualityofcontentinevitablyraisestheissueofcensorship.Thereareverydifferentviews,inallcountries,aboutthedegreetowhichmediacontentshouldbecontrolled;andeverysocietywillcontinuallybestrugglingwiththetensionbetweenindividualfreedomofexpressionandthecollectiveloyalties,beliefsandmoresthatbindacommunity.Shouldthepublicbeprotectedfrom‘hatemedia’andfromsociallyunacceptablecontent?Ifso,howandbywhom?Thechoicessocietiesmakemaybeverydifferent,andwillchangeovertime.Nosystemofregulationandcontroliswithoutflaws,butPanosLondonbelievesthatoversightbythemediathemselvesandbycivilsocietyratherthangovernmentismostlikelytostayrootedinthecollectiveviewandbecompatiblewithgoodgovernance.
RadioMilleCollines,whichhelpedtoincitethegenocidalviolenceinRwandain1994,issometimespresentedasanexampleofthedangersoffree,unfetteredmedia.Whilethisisanextremeexample,mediamanipulationofpublicopinionisunfortunatelynotuncommon.Thebestantidotetosuchmanipulation,however,isadiversityofmedia,notrestriction.Pluralistic,independentmediathatareinclusiveandresponsivetodiversityhavehistoricallyplayedavitalroleinpreventing,mockingorchallengingvoicesthatbreedextremism.Asarecentpublicationlookingattheeffectofmediaondevelopmentpointsout:‘Healthypublicspherescanhostawiderangeofviewswhichcandiluteintolerance.Policymakersshouldincreasesupportformediaassistanceprogrammestowidenaccessformoderatevoicesandbalanceddiscourse.’50Inshort,liberalisation,pluralisationandregulationarerequiredforbalancedmediaenvironmentsandcontentprovision.
Inthepast,thelimitednumberofmediaoutletsmeantthatthepublichadasharedexperienceofthemedia,whatevertheirquality.Nowthisshared‘publicsphere’isstartingtofragment,inbothdevelopedanddevelopingcountries.Withmedialiberalisationandcheapertechnology,audienceshavemanymoreformalmediaoutletstochoosefrom,andnowanyindividualorgroupcanproduceitsownmediaoutput,asawebsite,blogorthroughcitizenjournalism.Theincreaseinfreedomand‘voice’iswelcomeandliberating,butmostofthecontentontheworldwidewebhasnotbeenfilteredbyprofessionaljournalisticstandardsandoftenmakesnoclaimstobeingobjectiveorauthoritative.Thefragmentationalreadyallowsnewcommunitiestoformaroundsharedinterestsandconcerns,butontheInternet,manypeoplewillbespeakingwithnobodylistening.Thechallengeforbothestablishedandnewmediaoutletswillbetoestablishsitesandarenaswherequalityinformationcanbegatheredandstimulatingdebatescanflourish.Onlythenwilltherebeconfidencethatmoreinformed,inclusivedebateistakingplaceinthenewworldICTsarecreating.
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Only when media is diverse and pluralistic in both form and content can the competition of voices, opinions, facts and interests be fully engaged.
Attheheartofchange:Theroleofcommunicationinsustainabledevelopment
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51PanosLondonhascompiledalistofrecommendationsandcommitmentsforstrengtheningcommunicationmadebykeyinternationaldevelopmentconferencesandagreementssincethe1980s.See:Mapping declarations and statements on communication for development,atwww.panos.org.uk/heartofchange
Open,participatoryinformationandcommunicationprocesseslieattheheartofchangingsocietiesandindividualbehaviour.Theycontributesubstantiallytobetter,moretransparentandaccountablegovernance,tothecreationofavibrantanddynamiccivilsociety,andtorapidandmoreequitableeconomicgrowth.Buttheyneedtobeputattheserviceofthepoor,whowanttobeinformed,tounderstandandcontributetothedebatesanddecisionsthataffecttheirlives–atcommunity,nationalandinternationallevels.Poorpeople–indeed,allpeople–longtospeakandbeheard.ThisisachallengeasimportantasanyoftheMDGs,foritunderpinsthemall.Itistimetotakethischallengeseriously.
Astarthasalreadybeenmade.Governments,internationalorganisationsandNGOsalreadyknowmanyofthethingsthatneedtobechangedinordertoputinformationandcommunicationatthecentreofdevelopmentinitiatives;andthereisaplethoraofdeclarations,charters,agreements,pledgesandotherstatementsofprinciplesettingoutwhatshouldbedoneinthisfield.51Whathasbeenmissingisawide-ranging,holisticapproachtotheinformationandcommunicationchallengesintheirentiretyand–evenmoreimportantly–thesustainedpoliticalwilltoaddressthem.Itispreciselybecausepoliticiansandpower-holdersrecognisetheimportanceofinformation,communicationandthemediathattheyfeartheconsequencesofincreasingaccessandavailability.
Theirreluctancehastobeovercome.Openingupinformationandcommunicationflowsdoeshaverisks.Butthebenefitsfaroutweighthoserisks.Effectivecommunicationisnotabout‘mediamanagement’,top-downpronouncements,sophisticatedpublicrelations,targetedadvertisingand‘spin’.Thoseapproachesleadtoalossofpublicconfidenceandgrowingdistrustintheintegrityoftheleadersandinstitutionsthatusethem.Effectivecommunicationemergesfromaprocessofengagementanddialogue,fromlisteningandresponding.Itoffersamorepowerfulmeansbywhichpolitical,governance,socialandeconomicobjectivescanbereachedatboththenationalandinternationallevels.
Helpingbillionsofpeoplecurrentlylivinginastateofabsolutepovertytoimprovetheirlivesisthegreatestchallengefacingtheworldoverthenext20years.Addressingtheeffectsofglobalclimatechangeatthesametime–whichislikelytoaffectpoorpeopledisproportionately–increasesthescaleofthischallenge.ReachingtheMDGsby2015willrequirehugeinvestmentsofpoliticalwillandfinancialresourcesbygovernmentsinboththedevelopedandthedevelopingworld;butitwillalsorequireabelatedrecognitionthatcommunicationiscentraltoallaspectsofsustainabledevelopment.
�� Conclusion
Conclusion
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Addressingthechallengeofcommunicationisurgent.ThelatestICTrevolution–justliketheintroductionofmovabletypetotheprintingpress500yearsago–isprovidingnewtoolsandexpandingopportunitiesforpoorandmarginalisedpeopletoturninformationintoknowledge,equippingandempoweringthemtoparticipateinthedebatesanddecision-makingprocessesthataffectthem.Accesstocommunicationtechnologiesandflowsofinformationareincreasingrapidly,andthiswillhavesignificanteffectsonsocietyandpoliticsinbothdevelopedanddevelopingcountries.Governmentsandgovernanceinstitutionscannotignorethis.Theymustadapttothenetworkedworld.Strategicsupportforcommunicationprocessesshouldthereforebebuiltonthefollowingprinciples:
1Opennessandtransparencynurturegoodgovernanceandparticipatorypoliticalanddevelopmentprocesses.
2 Communicationandmediaarepublicgoods.
3 Communicationisanessentialelementofalldevelopmentinterventions.
Belowwesuggestanagendaforactionthatneedstobeundertakenbygovernments,internationalorganisations,NGOsandthemedia,ifthepowerandpotentialofinformationandcommunicationaretobemorefullyrealised.
Asaprerequisite,governmentsanddevelopmentactorsneedtorecognisethecentralroleofinformationandcommunicationindevelopment–especiallytheimportanceofstrengtheningthecapacitiesofpoorandmarginalisedpeopletoparticipateinpoliticalanddevelopmentprocesses.Communicationshouldbeidentifiedasanessentialelementofalldevelopmentcommitments,analysesandplans–atglobal,nationalandsectorallevels.FormalcommitmentstocommunicationshouldbeincludedininternationalundertakingssuchastheParisDeclarationonAidEffectivenessandtheUNMillenniumDeclaration,aswellasinnationaldevelopmentstrategies.Thesecommitmentsmustbemorethanemptyrhetoric–tobecomerealitytheyneedinputsofplanning,skillsandresources,justlikeanyotherdevelopmentgoal.Theyrequireleadershipandexpertiseatthehighestlevel.Unlesssuchcommitmentsaremadeandactedupon,developmentinterventionswillcontinuetofailandtheworld’spoorwillcontinuetobesidelined.
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Formal commitments to communication should be included in international undertakings...as well as in national development strategies.
Attheheartofchange:Theroleofcommunicationinsustainabledevelopment
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1 Buildmoreopen,transparentinformationandcommunicationsystemsandpoliticalcultures
Governmentsshouldpromotemoreopen,participatoryinformationandcommunicationenvironmentsandthedevelopmentofapublicspherewitharighttocommunicate,byestablishingfreedomofexpressionandfreedomofinformationlegislationandsupportingitsuse.
Governmentsneedtowinthesupportandengagementoftheircitizensiftheyaretogovernpeacefullyandeffectively.Todothis,theyneedtoengagewithcitizensusingthemultiplechannelsofinformationandcommunicationthatareincreasinglyavailable,andsupportpeople’sexpectationsoftransparencyandtheirdesiretoshareinformationfreely.
Governmentsshouldensuretheirowninternalcultureandadministrativesystemsarebasedontransparency,dialogueandlistening.Thisrequiresinstitutionalchange,managerialandtechnicaltraining,andpoliticalcommitment.
Tobenefitfromnewopennessonthepartofgovernments,citizensneedtohavethecapacitiesandskillstomakeuseoftheopportunitiesofferedtothem.Thisrequiresinvestingineducation,skillsandbasicinfrastructure,aswellasdesigningcommunicationprocessesthatmatchtheculturesandsocialconditionsoftheintendedusers.
Donorscansupportcivilsocietyorganisationsandotheractors(suchastheprivatesector)tousefreedomofinformationlaws;tomonitorgovernmentperformanceandholdgovernmentsaccountable;tolobbyandparticipateinmoreopenpolicy-making(suchasPRSPs);andtobeincreasinglytransparentthemselves.Alltheseprocessesneedexpertisetodesignandleadthem,andtrainingandorganisationalchangetoimplementthem.
Donorscanpersuade,helpandsupportgovernmentstoseethelong-termbenefitsof,anddevelopthepoliticalwillfor,openandparticipatorycommunicationsystemsandprocesses,andsupporttheirdevelopment.
�� Agendaforaction
Agendaforaction
Imagecreditstoptobottom zed nelson | panos pictures
pep bonet | panos pictures
stuart freedman | panos pictures
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2 Treatinformation,communicationandthemediaas‘publicgoods’andinvestaccordingly
Governments,donorsandtheprivatesectorshouldapproachcommunicationandinformationprocesses–includingthemedia–as‘publicgoods’,withinvestmentandresponsibilitiesdividedaccordingly.
GovernmentsshouldensurethatreliableandaffordableICTsareavailableforeveryone.TheyshouldfacilitatetheoperationofthemarketbyopeningnationalICTsectorstocompetitionininfrastructureandservices:competingprivateprovidersaremoreeffectivethanstateprovidersinbringinginnovation,qualityandlowcosts.
Governmentsshouldalsofillthegapsinmarketprovisionofcommunicationsandmediathroughregulationorsupport,inareaswherethemarketdoesnotmeettheneedsofpoorandmarginalisedpeople.Thismightmean,forinstance,subsidiesfortheprovisionoftelephoneservicestothepoororpeopleinremoteareas;orregulationoffrequencyallocationtoensurethatnon-profitusers(suchascommunityradiostations)arenotsqueezedoutbyprofitableactors(suchasmobilephonecompanies).
Mediainafreecompetitivemarketsufferfinancialpressuresthatoftenmilitateagainsttheircapacitytocarryouthigh-qualitypublicinterestjournalism.Governmentsanddevelopmentorganisationsshouldseekinnovativewaystoprovidefinancialsupportforpublicinterestmediacontentwithouteditorialinterferenceandwithoutundulyunderminingtheoperationofthemarket.Thisremainsachallengeforbothdevelopedanddevelopingcountries).
Governmentsshouldacttoaddressissuesthatarebeyondthecompetenceofindividualprivatesectoractors.Suchissuesmightinclude,forinstance,provisionofelectricitytoruralareas;developmentofsoftwareforlocallanguages;orleadershiptobringtogetherneighbouringgovernmentsandprivatesectoractorstosolveproblemsofinternationalICTinfrastructure.
Governmentsandotherinstitutionsneedtolearnaboutandreflectonthecostsandbenefitsofswitchingtoopensourcesoftwarestandards.Potentialbenefitsincludedesigningandintroducingsystemsthatwillbeabletoabsorbnewtechnologicaldevelopmentsinthefutureandsowillnotneedtobereplacedtoofrequently.
Developmentaiddonorsshouldsupportgovernmentsintheiractionstoredressmarketfailures.
Aiddonorsshouldalsosupportgovernmentsintheprocessesofdesigningandintroducingnewinformationandcommunicationsystems;andinbuildingtheenvironmentofskills,training,andbasicinfrastructure(suchaselectricity)withoutwhichnewICTscannotbeeffectivelyused.
InternationaldonorsshouldalsosupportthedifficultprocessesofnegotiatinginternationalICTagreements.Thevariouspartnersinvolvedinbuildingandmanaginginternationalinfrastructure–includinggovernments,privatesectorandcivilsocietyorganisations–oftenhavedifferentshort-terminterests,andthemodalitiesofworkingtogetherforlong-termandwiderbenefitareonlystartingtoemerge.
�� Attheheartofchange:Theroleofcommunicationinsustainabledevelopment
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52Seealsotherecommendations–TheRomeConsensus–fromthe2006WorldCongressonCommunicationforDevelopmentinRomeatwww.devcomm.org
3 Takeaholisticviewofcommunicationprocessesandintegratecommunicationsintodevelopmentplanningandimplementation
Governmentsshouldtakeaholisticviewofinformationandcommunicationprocesses.Theyshouldestablishanoverarchingpolicyframeworkthatenablescommunicationtohelpmeettheirdevelopmentgoals(incorporatingthemedia;ICTs;knowledge,skillsandcapacities;andinstitutionalreforms).Aholisticapproachmeansstartingfromtheperspectiveofpoorandmarginalisedpeopleandunderstandingtheflowsofinformationandcommunicationthataffecttheirlives.Thiscommunicationanalysiswillinvestigatethesocialaspectsofinclusion/exclusionfromcommunication.Whoisexcluded,whyaretheyexcludedandwhatcanbedoneaboutit?
Supportforcommunicationshouldbeakeyelementinanydevelopmentsupportandplanning.Theroleofcommunicationshouldbemoreclearlyidentifiedindevelopmentanalysisandplanningbygovernments,internationalorganisationsanddevelopmentagencies,fromhigh-levelinternationalagreementsdowntolocal-levelresourcemanagementprojects.
Governmentsanddevelopmentorganisationsshouldbuildtheirownknowledgeofandexpertiseinallaspectsofcommunication.Thisneedstobeaddressedasamatterofurgency.52
�� Agendaforaction
ThesepeopleinBangalore,IndiahavetelevisionsatellitedishesbutgovernmentsshouldensurethatreliableandaffordableICTsareavailableforeveryone,eveninremoteareas.
mark henley | panos pictures
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4 Investinmediadevelopment
Theestablishmentandmaintenanceofadiverse,dynamicandfreemediaisvitaltodevelopment.Theimportanceofgettingthemedia‘right’isespeciallygreatinyoungdemocracies,asmediaplaysanimportantroleinformingthenatureofsociety.Theimportanceofmediafordevelopmenthasbeenrecognisedinseveralrecentinitiativesbygovernmentsandmultilateraldevelopmentagencies,andbymediaorganisationsthemselves.Therehasalsobeenmuchdiscussionamongmediasupportorganisations,inconsultationwithdevelopingcountrymedia,onhowmediacanmosteffectivelybesupported–mostrecentlyintwoinitiativesaimedatstrengtheningAfrica’smedia.53Theseanalyseswereconsistentinhighlightingthefollowingareasifmediadevelopmentistotakeplace:
i)Establishmediafreedomandanenablingandsupportiveregulatoryenvironment
Governmentsshouldestablishasecurebaseofindividualfreedomofexpressionandaccesstoinformation;andlegislationwhichsupportsandcodifiesitsoperation.Thisincludeslegislationonlibelanddefamation,whichshouldbeclearandconsistentlyapplied.
Regulationisneededtolimitconcentrationofownershipandpromotecompetition.Legislationandlicensingconditionsshouldnotimplycontrolbygovernment:theyshouldbeindependentandcontrolledbycivilsocietyorthemediaitself,andbeimplementedtransparently.
Regulationshouldbeadoptedtofacilitatetheentryofsmallactorssuchascommunityradiostationsintothemediasector.Inmanycountries,licencesforcommunitymediainparticulararecurrentlybannedorheavilyregulated.
Internationaldonorsshouldsupportthelegislation-developmentprocesses,includingpublicconsultation,andthetrainingandinstitutionalchangesneeded–ingovernments,mediaandcivilsociety–toensurenewlawsareproperlyimplemented.
ThegrowingtrendbythedevelopmentministriesofOECDgovernmentstochannelincreasingamountsofaidindirect‘budgetsupport’todevelopingworldgovernmentsmustbebalancedbyincreasingfinancialsupporttocivilsocietyandmediadevelopmentorganisationsworkingtosupportmediafreedomandcapacityandexpandparticipatorydebate.
ii)Supportthedevelopmentofmediainfrastructureandlong-termsustainability
Governmentsshouldfindwaysofprovidingdirectandindirectsupporttofosterhigh-qualitypublicinterestmediacontent.
Governmentsshouldensuretheprovisionofadequatebasicinfrastructureandservices,whicharevitallyimportantforthemediatoworkeffectively–suchaselectricitysupplies,Internetconnectivityandtelephones.
Thecommunityradiosector,inparticular,needsfinancialsupport,sincetheresourcesofthepoorcommunitiestheyservearefrequentlyinsufficienttosupportradiostations.Suchsupportmaybeprovidedbygovernments,internationaldonorsandcivilsocietyorganisations.
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53SeetheUnitedNationsEconomicCommissionforAfrica(Draft–2006)The Case for Strengthening Media in Africa: Framework and Proposalsat:www.uneca.org/africanmediaandtheBBCWorldServiceTrust(2006)African Media Development Initiative(seefootnote21)
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iii)Buildmediacapacityandprofessionalism
Governments,internationaldonorsandmediasupportorganisationsshouldallsupportthefollowing:
Traininginjournalism(andmediamanagement).Goodmedianeedskilledandprofessionaljournalists.
Establishinganddevelopingjournalismandmediainstitutionssuchasassociationsandunions.Thesecanhelptobuildtheprofessionalism,standardsandstrengthofthemediaprofessions.
Initiativestogivejournaliststhespecialistknowledgetheyrequiretounderstandandreportoneconomic,environmental,healthandotherpolicyissues–bothatnationalandinternationallevels.
iv)Supportimprovementinthequalityanddiversityofmediacontent
Governmentsshouldintroducepolicyandregulatoryframeworksandsupportsystemsforencouragingandsupportinglocalmediacontent(whichcostsmuchmoretoproducethanreproducingglobalmediacontentsuchasimportedsoapoperas).Internationaldevelopmentandmediasupportorganisationscandirectlysupportsuchinitiativesandlocalcontentproduction.
Media,mediainstitutionswithincountries,andinternationalsupportorganisationsshouldallplayaroleindevelopingthepublic’s‘medialiteracy’.Thiswouldenableaudiencestodistinguishgoodqualitymediafrombad,objectivityfrompartisanship,opinionfromanalysis,andinvestigativereportingfromslander.
Governments,internationalorganisationsandthemediathemselvesshouldsupportpublicdebateonthenorms,standardsandexpectationsofthemedia–tobuildawarenessandsharedstandardsonfreedom,content,andsocialresponsibility,ifany.
Civilsocietyorganisationsandgovernmentcancontributetoimprovingthequalityofdebateinthemediaiftheyseethemediaaspartners,valuetheircontributionasindependentsocialactorsandactivelyseektoengagewiththem.
�1 Agendaforaction
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Notes
Attheheartofchange:Theroleofcommunicationinsustainabledevelopment
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AboutPanosLondon
Inclusive
Webelievethatembracingtheviewsofpoorandmarginalisedpeopleisessentialforsustainableandeffectivedevelopment.
Takingpartindialogueanddebatecontributestoahealthyandvibrantsociety.
Empowering
Webelievethatpoorandmarginalisedpeopleshoulddriveandshapethechangesneededtoimprovetheirlives.
Weenablepeopletoshareinformationandideas,speakoutandbeheard.
Balanced
Webelievepeopleneedaccessibleinformationreflectingawiderangeofviews.
Thisallowsthemtomakeinformedchoicesaboutcrucialissuesthathaveanimpactontheirlives.
Diverse
Werespectdifferentviews,valuelocalknowledgeandencouragearangeofapproachesinourworkworldwide.
Webelievethatfreedomofinformationandmediadiversityareessentialfordevelopment.
Illuminating
Weshedlightonignored,misrepresentedormisunderstooddevelopmentissues.
Webelievethattheviewsofpoorandmarginalisedpeoplegivegreaterinsightintotheirlivesandofferuniqueperspectivesonthechallengestheyface.
www.panos.org.uk Imagecreditstoptobottom sven torfinn | panos pictures
marc french | panos pictures borje tobiasson | panos pictures karen robinson | panos pictures giacomo pirozzi | panos pictures
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PanosLondon9WhiteLionStreetLondonN19PDUnitedKingdom
Inthislandmarkpublication,PanosLondonsetsoutwhatitbelievesshouldbetheroleofcommunicationinlong-term,sustainabledevelopment.Itchallengesgovernmentsandallinvolvedinpolicy-makingandplanningtolistentotheviewsofordinarypeople,toinvolvecivilsocietyindecision-makingandtorecognisetheimportantpartthemediacanplayindebatingdevelopmentissuesandchallenginggovernmentaccountability.
Writteninaclearandconcisestyle,At the heart of changesuggestsfourkeyareasforactionbygovernments,NGOs,themediaandinternationalorganisations,inordertorealisethepowerandpotentialofinformationandcommunication.
tel+44(0)2072781111fax+44(0)[email protected]
CoverimageBelongingtoacooperativegroupgivesthesewomeninCameroonthechancetocommunicatetheirviewsmorewidely.Sustainabledevelopmentdemandsthatpeopleparticipateinthedebatesanddecisionsthataffecttheirlives.
giacomo pirozzi | panos pictures