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TOWARDS A COMMON UN SYSTEM APPROACH
Harnessing Communication To Achieve The Millennium Development Goals
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Section 1: UNESCO Background Paper Towards a Common UN System Approach: The Role of Communication for Development in Achieving the MDGs
Executive Summary 8
Introduction ��1.1 BackgroundtotheRoundTable 121.2 ThemeandObjectivesofthe10thRoundTable 13
Communication for Development and the UN system �62.1 EvolvingCommunicationandDevelopmentParadigms 162.2 NewandOldChallenges 182.3 CommunicationintheUNSystem 21
Good Practices in Interagency Collaboration �53.1 TheUNInter-AgencyRoundTableonCommunicationforDevelopment 253.2 WorldCongressonCommunicationforDevelopment 263.3 WorldSummitontheInformationSociety 263.4 UNGroupontheInformationSociety 263.5 CommunityMultimediaCentres 273.6 InternationalProgrammefortheDevelopmentofCommunication 273.7 UN-Water 273.8 ResearchonICTs&Poverty 273.9 ICTsTraining 273.10 RuralICTs 283.11 FreedomofInformation 283.12 PressFreedom 283.13 ParticipatoryVideo 283.14 HIV/AIDS 283.15 RenewableEnergy 283.16 InternationalDayforEradicatingPoverty 293.17 CommunityRadioPolicy 293.18 ParliamentaryBroadcasting 29
Key Expected Outcomes �9
ContentsThenewUNSecretary-General,MrBanKi-moon,hassaidthat“thetruemeasureofsuccessfortheUnitedNationsisnothowmuchwepromise,buthowmuchwedeliverforthosewhoneedusmost”.WebelievethatstrengthenedcollaborationamongUNagenciesintheareaofcommunicationfordevelopmentwillincreaseourcapacitytodeliverbyenablingustocombineeffortsandbuildsynergies.
The10thUNInter-AgencyRoundTableonCommunicationforDevelopmentaimsatdiscussingthewaysinwhichwecanreinforceourcollaborationinthisarea,withparticularemphasisonachievingtheMillenniumDevelopmentGoals.
ThispublicationprovidesanoverviewoftheissuesthatwillbecoveredduringtheRoundTable,aswellassuggestionsastohowinter-agencycoordinationcanbeimproved,bothatheadquartersandatcountrylevel.Thetwobackgroundpapersincludedinit,preparedrespectivelybyUNESCOandtheUNDP,complementeachother.WehopethattheideasdiscussedinthesetwopaperswillstimulateallourcolleaguesinUNagenciestofullyengageintheprocessof“deliveringasone”andtotransform,throughconcreteactions,ourcommitmentsintorealresults.
Abdul Waheed KhanAssistant Director-General for Communication and Information,UNESCO
Forward
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Section 2: UNDP Background Paper: Harnessing Communication to Achieve the MDGs
Introduction: Definitions and Scope of Communication for Development �7 CommunicationforDevelopment:ScopeandDefinitions 37 DefinitionsandCharacteristics 37 TheScopeofCommunicationforDevelopment 39 CommunicationinGovernance,orCommunicationasParticipation 39 CommunicationinSupportofSpecificDevelopmentSectors 40 KnowledgeandInformationandCommunicationTechnologies 40 TheCrossCuttingNatureofCommunicationforDevelopment 41
How Communication for Development is Central to the Achievement of the MDGs �� ARightsBasedApproachtoDevelopment 42 DeliveringontheMDGs 43 OwnershipandCommunicationforDevelopment 44 GovernanceandAccountability 44 GlobalisationandtheRoleofKnowledgeinDevelopment 45
Need for Systematic Integration of C�D into UN Development Planning and Assessment Tools at Country Level �8 The“Communication”Confusion 48 Anabsenceofdata 49 TheDizzyingPaceofChange 49 AMultisectoralIssuebutLittleLearningorPlanningAcrossSectors 50 WhoKnowsWhatisGoingon? 50 TheLackofChampionsandCapacity:WhoShouldKnowWhatis Goingon? 51 TheLongTermNatureofImpact 51 DistancefromGovernment 51
How Coordination Can Be Best be Improved at Country Level Through the CCA/UNDAF Process 5�TheCurrentCCA/UNDAFProcess 52HowdoCommunicationforDevelopmentIssuesFeatureinCCA/UNDAFProcess? 53HowtheUNDAF/CCASystemmayEvolveintheFuture 55
Recommendations and proposals for incorporating c�d into the UNDAF/CCA and other country level planning processes 57SummaryofRecommendations 57
ANNEX I: Bibliography 6�ANNEX II: Access To Information And The Media: Governance Indicators 65
Section 3: Draft Plan of Action 71
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UNESCO Background Paper prepared for the 10th UN
Inter-Agency Round Table on Communication for Development
Addis Ababa, Ethiopia, 12-14 February 2007
The Role of Communication for Development in Achieving the MDGs
ThispaperissubmittedbyUNESCOasacontributiontothe10thCommunicationforDevelopmentRoundTable.ItwaswrittenbyMr.PeterDaCostaandeditedbyMr.WijayanandaJayaweerawiththeassistanceoftheteamfromtheCommunicationDevelopmentDivisionofUNESCO.WewishtothankUNICEF,theWorldBank,theUNDPOsloGovernanceCentreandtheUniversityofQueenslandfortheirinvaluablecommentsandfeedbacktotheoriginaldraft.
Acknowledgement
TOWARDS A COMMON UN SYSTEM APPROACH
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Thisdocumentwaspreparedasabackgroundpaperforthe10thUNInter-AgencyRoundTableonCommunicationforDevelopment,whichistobeheldinAddisAbabafrom12-14February2007,inlinewiththeUNGeneralAssemblyResolutionA/RES/51/172ofDecember1996.Thepaperhasfiveparts.TheintroductorysectionprovidesbackgroundandspellsouttheobjectivesoftheforthcomingRoundTable.Withreferencetotheevolutionofthefield,section2discussesthestateofcommunicationfordevelopmentintheUNsystem.Section3highlightsacross-sectionofexistinggoodpracticesininter-agencycollaboration,whilesection4articulatesthekeyexpectationsfromthe10thRoundTable.AtentativePlanofAction,includingconcreteareasinwhichUNagenciescancollaborateasafirststeptowardsenhancedpartnershiparoundcommunicationfordevelopment,isappendedasanannex.
Theintroductorysectionbeginswithahistoricalreview.Sinceitsinceptionin1986,theRoundTablehascometoberecognizedasanimportantmechanismofinter-agencycooperationandcoordinationforpromotingandadvancingCommunicationforDevelopment.Organizedonthebasisofacommonthemeinfluencedbycurrenttrendsandpractice,theRoundTablehassoughttofosterandpromoteenhancedunderstandingandconcretecollaborationonCommunicationforDevelopmentwithintheUNsystem.DetailedrecommendationshaveemanatedfromeachRoundTable,whichhavebeeninstrumentalinbuildingastrongcommunicationfordevelopmentconstituencywithintheUNsystemandbeyond.
The10thRoundTabletheme,‘DevelopingaUNsystem-widecommonapproachtocommunicationfordevelopmentinviewofachievingtheMillenniumDevelopmentGoals’,hasbeenselectedfortworeasons:theunprecedentedpoliticalsupportfortheMDGs,whichprovideastrongunifyingbasisforinter-agencycollaboration;
andtherecognitionofCommunicationforDevelopment’spotentialtohelpdelivertheMDGsbecauseitispredicatedonparticipationandownership,andbecauseitfacilitatespublicdebate.ThelatestUNreforms,whichaimtodeepencoordinationandcoherencetowardsmeetingtheMDGs,constituteanunprecedentedopportunityfortheUNfamilytoharnesscommunicationfordevelopmentmoresystematically,bothatcountryandheadquarterlevel.
The10thRoundTablehasthreemainobjectives:Increasingjointinter-agencycollaborationatinternational(headquarters)andnational(UNcountryteam)levels;StrengtheningawarenesswithinandamongUNagenciesonwaysinwhichtheimpactandeffectivenessofcommunicationfordevelopmentcanbemeasured;andIntroducingmechanismstoharmonizecommunicationfordevelopmentprogrammingapproacheswithintheUNsystemSection2beginsbyexaminingtheevolutionofcommunicationinthecontextofpost-WorldWarTwodevelopmentandreconstructionefforts.Incontrasttothelinear,hierarchicalapproachespousedbyearliermodernizationanddependencytheories,CommunicationforDevelopmentemergedasatwo-wayprocess,totheextentthatinterpersonalapproachesaretodayrecognizedalongsidemassmediacommunicationanddiffusionmodelshavelargelygivenwaytoparticipatoryapproaches.Ensuringthatwomenandothermarginalizedgroupsarefullyinvolvedinthedevelopmentconversationishoweverstillachallenge.
CommunicationforDevelopmentcanbeclassifiedintothreebroadapproaches:behaviourchangecommunication,communicationforsocialchangeandadvocacycommunication.Thereissignificantcrossoverbetweentheseapproaches,andinpracticetheapplicationofeachiscontext-specific.
Despitetheevolutionofthefield,anumberofoldandnewchallengesremainthatmustbeaddressedifcommunicationistobemoreeffectiveinadvancingdevelopment.Firstistherapidspreadofglobalization,withallitscontradictions.Secondistherapidexpansionofinformationandcommunicationtechnologiesoverthepast20years.Thirdisestablishinghowcommunicationfitsinto,andbecomesanactivepartof,localandnationaldevelopmentprocesses.Fourthishowtodemonstratetheaddedvalueandimpactofcommunicationinaddressingdevelopmentchallenges,andensurethatitformsanintegralpartofgovernment,internationalanddonorpolicies,strategiesandpractice.
AfundamentalreassessmentandreprioritizationisneededtoseehowCommunicationforDevelopmentcandelivertheownershipandparticipationneededfortheMDGstosucceed.ThisnecessitatesnewlevelsofcollaborationandcoordinationamongUNsystemactors.WhileawidevarietyofactivitiescanbeclusteredundertheCommunicationforDevelopmentumbrella,UNinter-agency
ExecutiveSummary
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relationsarecharacterizedbyalackofcoherence,limitedpartnership,andanabsenceofco-ordination.Communicationrarelyfeaturesasanintegralpartofcommonsystemdevelopmentplanningandimplementationprocesses,isnotunanimouslyunderstoodorappreciatedatthehighestlevelsofdecision-making,andisviewedasadownstreampublicrelationsordisseminationfunction,ratherthanasanupstreamcomponentofprogrammedevelopmentanddelivery.
SuccessivewavesofreformhavesoughttoaddressthewiderUNsystemcoordinationdeficit,andtoplacetheMDGsatthecentreoftheUN’sdevelopmenteffort.Whilesomeprogresshasbeenregistered,anumberofconcernsremain.OneistheunresolvedtensionbetweenglobalstrategiesofeachUNagencyandthedoctrineofcountry-ownedand-ledprogrammes.Anotherconcern,raisedbytheSecretary-General’sHigh-LevelPanel,isthattheUNisnotactiveenoughinadvisinggovernments,conveningstakeholders,advocatingforinternationalnormsandstandards,providingtechnicalassistanceandadvisingonbuildingandstrengtheninginstitutions.
WhilethissystemicrealityaccountsforthepiecemealandfragmentednatureofCommunicationforDevelopmentintheUN,thelackofadvocacywithinthesystemisalsolargelytoblame,aswellasweaknessesinmonitoringandevaluation.TheemphasisintheongoingUNreformsonimprovingcoordinationandcoherenceconstitutesanunprecedentedopportunityforCommunicationforDevelopmentadvocatestoensureitformsanintegralpartoftheUN’sfutureplansandprogrammes.
Section3highlightssomegoodpracticesininter-agencycollaboration,withtheimportantcaveatthatinmanycases,initiativesdescribedarenotconsonantwiththeagreedunderstandingofCommunicationforDevelopmentasspelledoutintheDecember1996UNGeneralAssemblyResolutionA/RES/51/172.Assuch,thecasescitedshouldbeviewedasinstancesofcollaborationaroundinformationandcommunication.TherearerelativelyfewexamplesofUNsystemagenciescollaboratingwitheachother,whilegoodpracticesthatdoexistarelargelyintheICTsareaandarelimitedmostlytopilotprojectswhosesuccesseshavenotbeenreplicatedatscale.
GoodpracticeshighlightedincludetheWorldCongressonCommunicationforDevelopment,WorldSummitontheInformationSociety,InternationalProgrammefortheDevelopmentofCommunication,UN-Water,theInternationalInitiativeforCommunityMultimediaCentres,andtheRoundTableitself.
Keyexpectedoutcomesofthe10thRoundTablearespelledoutinSection4.AfirstexpectationistoarriveatacommonunderstandingofCommunicationforDevelopmentaspractisedintheUNsystem.Second,the10thRoundTableshoulddeveloptheparametersofacommonapproach,takingintoaccountframeworkssuchashumanrights,nowatthecentreoftheUN’swork.Third,themeetingshouldreachagreementonspecificthemes,issuesandareasonwhichUNagenciescanworktogetherconcretelyandtogoodeffect,bothwithincountriesandatinternationallevel.Afourthexpectedoutcomeisanagreementonhowtoreinforceexistingmechanisms(suchastheUNDAF,CCAsandPRSs)soastofacilitatedeliveryonthecommonapproachandstrategy.Inlightoftheneedformoresystematicandrigorousmonitoringandevaluationhighlightedearlierinthispaper,afifthexpectationistheidentificationofandagreementonthetypesofindicatorsthatneedtobedevelopedorharnessed.AfinalexpectedoutcomeofthemeetingisthatalltheaboveexpectationsbecodifiedinajointlyagreedPlanofActionwhicharticulatesstepsandactionstoputinplaceandimplementacommonUNCommunicationforDevelopmentapproachandstrategy.ApreliminaryPlanofActionisappendedasanannextothispaper.Ithighlightsavisionandmission,objectives,principles,thematicprogrammefocus,expectedresults,performanceindicatorsandotherelements,aimedatinformingdiscussionsduringthe10thRoundTable.
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1. INTRODUCTION
1.1 Background to the Round TableTheRoundTablewasfirstintroducedin1986asaninformalmechanismforUNsystemcollaboration1.In1994,andonthebasisoflessonslearned,theUNGeneralAssemblycommissionedaJointInspectionUnit(JIU)torecommendwaysofbetterintegratingcommunicationintheworkofUNagencies.TheJIUreport2urgedUNagenciestoworktogethermorecloselyindevelopingbettercommunicationfordevelopmentstrategies,andproposedthattheexistinginformalroundtableberegularized,includingallUNagenciesandtheregionaleconomiccommissions.
InformedbytheJIUrecommendations,theUNGeneralAssemblypassedtworesolutionsoncommunicationfordevelopmentintheUNsystem3,andencourageddecisionmakerstoincludeitasanintegralcomponentindevelopingprogrammesandprojects.Theroundtablewasrecognizedas“animportantmechanismofinter-agencycooperationandcoordinationforpromotingandadvancingcommunicationfordevelopment…”,andtheGeneralAssemblyrequestedtheUNSecretary-General,inconsultationwiththeUNESCODirector-General,tosubmitbiennialreportsontheroundtable’simplementation.Itwassubsequentlyagreedamongparticipatingagenciesthatthehostingoftheroundtableberotated.
Fourroundtables4havetakenplacesincethen,organizedonthebasisofacommonthemeinfluencedbycurrenttrendsandpractice.Theoverarchingobjectiveoftheseroundtableshasbeen“toensureunderstandingamongtheUNagenciesregardingtheimplementationofprogrammesandprojectsthatcontributetocommunicationfordevelopmentorusethatspecificapproachtoresolvedevelopment-relatedissues”(UNESCO2006).
ConvenedbyUNESCO,the6thRoundTablerecommendedthatcommunicationshouldbeviewedasanintegralcomponentofdevelopmentprojectsandprogrammes,andthatcommunitiesshouldbeprovidedwiththeskillsand
equipmenttovoicetheiropinionsandaspirations.The7thRoundTable,hostedbyUNICEF,concludedthatgreaterpriorityneededtobegiventoevaluatingcommunicationprogrammesandurgedthatmoreresourcesbededicatedtodevelopingcapacityforfosteringbehaviourchange.The8thRoundTable,hostedbyUNFPA,calledfortheformationofaninternationalcoalitiononHIV/AIDScommunicationstrategiesandtools,andforkeyagenciesandimplementerstoidentifyandimproveaccesstoproventoolsandreduceduplication.The9thRoundTable,hostedbyFAOinSeptember2004inRome,highlightedanumberofemergingchallengeswhich,whileconstitutingnewopportunities,hadalsoledtoamarginalizationofpoverty-relatedissues–necessitatingenhancedcollaborationandcoordinationonCommunicationforDevelopmentinitiativesasakeytoachievingtheMDGs.
Therecommendationsfromthesemeetingshavebeeninstrumentalinbuildingastrongcommunicationfordevelopmentconstituency,bothwithintheUNsystemandbeyond.Acrucialnextstepistoputinplacepoliciestoensurecommunicationisintegraltodevelopmentissues.Suchpolicieswouldhelpearmarksufficientfundstocarryouttheworkandalsoestablishbenchmarksfordifferentissues.ThisisparticularlyrelevantwithinthecontextofachievingtheMDGs(see1.2below).Tothisend,andmostrecently,the9thRoundTablecameupwithanumberofconcreteproposals5(includingthedevelopmentofanactionplanandthesettingupofaninter-agencyworkinggroup)whichinformandunderpinthe10thRoundTable’skeyobjectiveofputtinginplacemechanismstoensureacommonUNsystemapproach.
1.2 Theme and Objectives of the 10th Round TableThe10thRoundTableonCommunicationforDevelopmentwilltakeplaceinAddisAbaba,Ethiopiafrom12-14February2007,convenedbyUNESCO,onthetheme‘DevelopingaUNsystem-widecommonapproachtocommunicationfordevelopmentinviewofachievingtheMillenniumDevelopmentGoals’.ThethemewasselectedinrecognitionoftheunprecedentedpoliticalsupportfortheMDGsasaglobalframeworkforreducingpovertyandmakingdevelopmentmoreeffective.Manydevelopmentactors,includinggovernments,bilateralandmultilateral
1.TheearlyRoundTablesprovidedanimportantforumfortheongoingdebateondiffusionversusparticipationCommunicationforDevelopmentmethodologiesandapproaches.TherehasbeenahighdegreeofcontinuitybetweentheearlyandmorerecentRoundTables.Forexample,proposalsemanatingfromthe2004RoundTableinRome–suchasthecallforcommunicationneedsassessmentsatthestartofanydevelopmentinitiativeandanappealfordonoranddevelopmentagenciestosetupwell-resourceddevcommunits–aresaidtoechosuggestionsmadebyErskineChilders,apioneerofdevelopmentcommunicationintheUNsystemwholedUNDP’sDevelopmentSupportCommunicationsServices(DSCS)from1967to1975andwasactivelyinvolvedintheearlyRoundTables(Rogers2005)2.Recommendation6notedthattherewas“noforumwherebydiscussionsareheldandviewsexchangedondevelopmentandhumanitarianassistancecommunicationprogrammes”.TakingintoaccountUNESCO’smandateandtheexistenceoftheInternationalProgrammefortheDevelopmentof
Communication(IPDC)since1980,Recommendation7ofthereporturgedtheProgrammetomobiliseresourcesfromUNagencies,bilateralandmultilateralorganisations,NGOs,foundationsanduniversitiesinordertoincreasesupporttothedevelopmentofcommunicationindevelopingcountries.3.Resolution50/130in1995,andresolution51/172in19964.InZimbabwein1996on‘CommunicationAccessforRuralDevelopment’hostedbyUNESCO;inBrazilin1998on‘CommunicationforSocialChangeandDevelopment’hostedbyUNICEF;inNicaraguain2001on‘HIV/AIDSCommunicationandEvaluation’hostedbyUNFPA;andinItalyin2004on‘FocusonSustainableDevelopment’hostedbyFAO.5.Forthefulllistofrecommendations,seepp.9and10ofthe9thRoundTablereport.
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agencies,aswellascivilsociety,havesoughttoaligntheirprioritiesaroundtheMDGs(cf.Deane2004,WCCD2006),whichhavebeenplacedatthecentreoftheUNsystem’sdevelopmenteffortsbysuccessivereforms,includingthejust-releasedreportoftheHigh-LevelPanel6.TheMDGsthereforeprovideastrongunifyingbasisforinter-agencycollaboration7.
Theimportanceofcommunicationhasbeenwidelyacknowledgedbythedevelopmentcommunity,andsignificantevidenceofitsimpactexistsinrelationtoHIV/AIDS,sustainabledevelopmentandotherpressingdevelopmentchallenges(cfServaesetal2006).WhatisalsonowincreasinglybeingemphasizedisthepotentialcommunicationholdsforhelpingtodelivertheMDGs,preciselybecauseitispredicatedonparticipationandownership,andbecauseitfacilitatespublicdebate.Andyet,despitethisrecognition,academicsandpractitionersarguethatcommunicationhasneitherbeenfullyexploitedbygovernmentsnoraccordedtherequisiteprioritybydevelopmentagencies,arealitythatrendersthecommongoalofmeetingtheMDGslessachievable(CFSCetal2004).
Ashighlightedbypreviousinter-agencyroundtables,aswellasbypractitionersandacademicsinthefield,manyissuesneedtobeaddressed–amongthemtheneedforcapacitybuilding,research,monitoringandevaluation,freedomofexpressionandpluralism,enhancedfinancialinvestment,andscalingupofgoodpractices.However,theabsenceofacommonapproachandstrategyamongUNagencieshasmadeitallthemoredifficulttoaddressthesechallengesinasustainedandholisticway–resultinginadispersionofeffortanderosionofthepotentialofcommunicationtomakeadifferencetocommunities,strengthengovernanceandacceleratedevelopment.Thisisnottosaythatattemptshavenotbeenmadetofosteracommonapproach.InrecentyearsmanyUNagencieshavemadeeffortstowardsharmonizingdifferentperspectivesinCommunicationforDevelopment8.
ThelatestUNreforms,whichaimtodeepencoordinationandcoherencetowardsmeetingtheMDGs,constituteanunprecedentedopportunityfortheUNfamilytoharnesscommunicationfordevelopmentmoresystematically,bothwithin
developingcountries9andatheadquarterlevel.Theroundtablethusassumesincreasingimportanceasaforumforfosteringenhancedcollaboration.Itistothisendthatthe10thRoundTablewillfocusonpracticalandachievableinterventionsaroundwhichUNagenciescandevelopacommonapproach,strategyandactionplanforharnessingcommunicationfordevelopment.Indoingso,itwilldrawonexperiencesandlessonslearnedinthewidercommunityofpractice.
The �0th Round Table has three main objectives:•Toincreasejointinter-agencycollaborationatinternational(headquarters)andnational(UNcountryteam)levels;•TostrengthenawarenesswithinandamongUNagenciesonwaysinwhichtheimpactandeffectivenessofcommunicationfordevelopmentcanbemeasured;and•TointroducemechanismstoharmonizecommunicationfordevelopmentprogrammingapproacheswithintheUNsystem
Thisdocumenthasbeenpreparedasabackgroundpaperforthe10thRoundTable.Itspurposeisfive-fold.First,itisintendedtoinformthediscussionbyintroducingandpromotingpossibilitiesforincreasedinter-agencyjointcollaborationoncommunicationfordevelopment.Second,itsetsouttoestablishanagendaforintensifyingthiscollaborationoncommunicationfordevelopment10.Third,ithighlightssomegoodpracticesinjointinter-agencycollaboration.Fourth,itidentifiesinternationalandcountrymechanismsandstructuresthatcanbeharnessedtowardsfosteringacommonapproach,andproposesstrategiestoactivelystrengthencommunicationforrealizationoftheMDGs.
Therestofthepaperwillproceedasfollows.Withreferencetotheevolutionofthefield,section2discussesthestateofcommunicationfordevelopmentintheUNsystem.Section3highlightsacross-sectionofexistinggoodpracticesininter-agencycollaboration,whilesection4articulatesthekeyexpectationsfromthe10thRoundTable.Atentativeplanofaction,includingconcreteareasinwhichUNagenciescancollaborateasafirststeptowardsenhancedpartnershiparoundcommunicationfordevelopment,isappendedasanannex.
6.‘RenewingtheUnitedNations:AProgrammeforReform’(September2002);‘InLargerFreedom:TowardsDevelopment,SecurityandHumanRightsforAll’(March2005),thefive-yearreviewandfollow-updocumentfromtheMillenniumSummit;‘DeliveringasOne:ReportoftheSecretary-General’sHighLevelPanel’,UnitedNations,NewYork(November2006)7.WhilethereisunanimityaroundtheMDGsthemselves,thereareconflicts–bothwithintheUNsystemandoutsideit–astohowtoachievethem.DifferingviewsonwhichMDGsshouldbeprioritizedreflecttheparticularmandatesandagendasofdifferentagencies,afactorthatmakesacommonapproachallthemoredifficult.8.OneattempttodosoisUNICEF’sdevelopment,alongwithFAO,WHO,theWorldBankandCDC,ofastrategicinter-agencycommunicationplanningtoolkit.
9.Akeyrecommendationof‘DeliveringasOne’,theReportoftheSecretary-General’sHigh-LevelPanel,isthat:“TheUNshould‘deliverasone’byestablishing,by2007,fiveOneCountryProgrammesaspilots.Subjecttocontinuouspositiveassessment,demonstratedeffectivenessandprovenresults,theseshouldbeexpandedto20OneCountryProgrammesby2009,40by2010andallotherappropriatecountryprogrammesby2012”(p.12)10.IndividualUNsystemagenciesworkonissuesthatrelatedirectlytotheirrespectivemandates,andexerciseleadershipandcomparativeadvantageinspecificareas(e.g.UNICEFinimmunizationcampaigns).TheRoundTablewillfocusonwaysofstrengtheningcollaborationamongstUNsystemagenciesinaddressinga)theunderlyingstructuralcommunicationenvironment,includingpolicies,indevelopingcountries,andb)capacitybuildingofdifferentgroups,includingmediapractitioners.
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2. COMMUNICATION FOR DEVELOPMENT AND THE UN SYSTEM
2.1 Evolving Communication and Development Paradigms CommunicationemergedaspartofabroaderdevelopmentandreconstructioneffortafterWorldWarTwo(Servaes2002).ModernizationtheoryunderpinnedeffortstosetpoorcountriesalongateleologicalpathdesignedtobringthemascloseaspossibletotheindustrializedNorth’slevelsofdevelopment.Duringtheearlypost-warperiod,communicationwasessentiallytop-down,basedontheassumptionthatdiffusionoftechnicalknowledgeviamassmediawouldtransformtraditionalsocietiesintomodernones.Communicationthereforeservedtotransmitinformationrelatedtohealth,agricultureandothersectoraldevelopmentissuesfromtheNorth,empoweredbyscienceandtechnology,to”ThirdWorld”subjectswhosebehaviouritwasassumedwouldchangeforthebetteronthebasisoftheinformationreceived.AlthoughtheUnitedNationswascreatedprimarilytohelpmaintainglobalpeaceandsecurity11,itprogressivelybecameakeyactorinpromotingdevelopment(Rogers2005).
Bythemid-1960s,thisapproachtodevelopmenthadsparkedamajorreaction.Dependencytheory,developedmainlybyLatinAmericanexperts,conceptualizedtheworldintotheindustrializedcoreandtheunderdevelopedperiphery,withthecolonialist,capitalistandimperialistcoredevelopingattheexpenseofthestructurallyimpoverishedperiphery.Fromthelate1950sonwardsalargenumberofformercoloniesinAfricaandAsia,galvanizedbynationalistmovements,gainedtheirindependence,addingacategoryof‘thirdworld’tothe(capitalist)‘first’and(socialist)second’worlddivide(Carlsson2003).AstheColdWarintensified,thepromiseofdevelopmentwasthendeployedbybothEastandWesttowinpoliticalinfluenceinthenewly-independentstates,whichneededhelptocombatpoverty,illiteracyandunemployment(ibid)12.
Bothmodernizationanddependencytheoriessharedanimportantcommonfeature:thenation-stateasaunitofanalysis.Thisleftthembothopentocriticismthatfarfromadvancingthedevelopmentagenda,thetwotheoriestendedtocanceleachotheroutduetotheirdeploymentasideologicallyoppositionalnarrativesduringtheColdWar.Onecritique,whichhadasignificantinfluenceonthetheoryandpracticeofcommunicationfromthelate1970sonwards,wasthe‘AnotherDevelopment’
perspective.Thisschoolofthoughtpositedthe“community”astheunitandlevelofanalysis,arguingthatsinceitwasincommunitieswithinstatesthattherealityofdevelopmentwasmostevident,theparticipationofcommunitiesinthedesignandimplementationofdevelopmentprogrammeswaskey.Alternativecommunicationsystemsandmediapracticeswerethereforeviewedasameansforlocalcommunitiestoengagewithandinfluencetheirdevelopment(Servaes1995).
Insharpcontrasttothelinear,hierarchicalapproachespousedbythemodernizationanddependencytheorists,communicationfordevelopmentthusbecameunderstoodasatwo-wayprocess,inwhichcommunitiescouldparticipateaskeyagentsinsettingnormativedevelopmentgoalsandstandards.Addedtothis,thenotionofparticipationwasdeepenedbytheemphasisoncommunityaccess.Asaresult,interpersonalapproachesarenowrecognizedalongsidemassmediacommunicationaskeytoachievingimpact.Messaging-baseddiffusionmodelshavebyandlargegivenwaytoparticipatoryapproaches,withtheemphasissquarelyonempowermentofcommunitiesandsocialchange(Servaes2002).
Communitiesareacknowledgedastheownersoftheirowndevelopment,andcommunicationisviewedaskeytofacilitatingandamplifyingthevoiceofthepoorandmarginalized.Lackofvoiceisunanimouslyagreedtobeanelementofpovertyitself(Panos2006).However,ensuringthatcommunities–includingwomenandothermarginalizedgroups–arefullyinvolvedinthedevelopmentconversationremainsachallenge.
The8thRoundTableidentifiedthreebroadCommunicationforDevelopmentapproaches13.Oneisbehaviourchangecommunication(BCC),whichaimstoempowerindividualsandenablecommunitiestomakeinformedchoicesastotheirwell-being,andtoactonthebasisofthosechoices.Asecondapproachiscommunicationforsocialchange(CFSC),predicatedoncollectivecommunitychangeandlong-termsocialchange,andbasedonparticipatory,voice-amplifyingstrategiesthatemphasizedialogueandprocess.Athirdapproachisadvocacycommunication,involvingorganizedefforts,includingbycoalitionsandnetworks,toinfluencethepoliticalclimate,policyandprogrammingdecisions,publicperceptionsofsocialnorms,fundingdecisionsandcommunitysupportandempowerment,onspecificthemes,suchasHIV/AIDS(UNFPAetal2001).Thereissignificantcrossover
11.Ofthe18ChaptersoftheUNCharter,fivedealwithpeaceandsecurityissueswhileonlyonechapter(ChapterIX)makesexplicitmentionof‘development’(Rogers2005).12.Incontrastwithmodernizationanddependencyapproaches,moreculturally-orientedversionsarguethatdevelopmentiscontext-specificandrelative,asopposedtomonolithicorabsolute.Thus,developmentshouldbeseennotmerelyasafunctionofeconomicgrowth,butasanintegral,multidimensionalanddialecticalprocesscontingentoninteractionsbetweentheindividual,societyandecology(Servaes1999).
13.Servaes(2005)identifiesfiveapproaches:a)behaviourchangecommunication(interpersonalcommunication);b)masscommunication(communitymedia,massmedia,ICTs);c)advocacycommunication(interpersonaland/ormasscommunication);d)participatorycommunication(interpersonalcommunicationandcommunitymedia);ande)communicationforstructuralandsustainablesocialchange(interpersonalcommunication,participatorycommunicationandmasscommunication).
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betweentheseapproaches,andinpracticetheapplicationofeachiscontext-specific.
2.2 New and Old ChallengesTheaboveevolutionincommunicationanddevelopmenttheoryandpracticenotwithstanding,anumberofchallenges,oldandnew,needtobeaddressedifcommunicationistoberecognisedandharnessedasameanstotheendofmoreeffectivedevelopment.Asub-setofthesechallengesisdiscussedbelow.
Anoverarchingchallenge,identifiedbythe9thRoundTable,istherapidspreadofglobalization.Onemanifestationisthegrowinginequalitywithinandbetweencountries,aswellasbetweenindividualsandgroups(cf.UNDP2005,WorldBank2005)14.TheMDGs,whichmeasureprogressintacklingpovertybyaggregatingandaveragingchangeatnationallevel,donotaddressissuesofdistribution,meaningthatsomeofthegoalscouldbeachievedwithoutinpracticereducinginequality.Thus,theverypoorestcouldbeleftbehindevenasprogressagainsttheMDGindicatorsismet(UNDP2005).Beyondeconomicdimensions,inequalitiesofopportunity–inhealth,education,andthefreedomandcapacityofpeopletoactivelyparticipateinandshapesociety–widengapsbetweenindividualsandgroupsovertime,bothwithinandacrossgenerations,negativelyaffectingdevelopment(WorldBank2005).
Againstthisbackdrop,theeraofglobalizationisoneof“radicaltransformation”,inwhichnewly-createdidentitiesaretranscendingboundariesofthestate,geographiccommunitiesandtraditionalinstitutions(Balit2004).Globalizationcomeswithmanycontradictions.Forexample,ontheonehandmediapluralityisthreatenedbyownershipconcentration,andculturaldiversityisbeingthreatenedbyuniformity.Butontheotherhand,however,newtechnologiesarefacilitatinghorizontallinkagesbetweencommunitieslikeneverbefore(ibid).
Indeed,therapidexpansionofinformationandcommunicationtechnologies(ICTs)15overthepast20yearsorsopresentsbothopportunityandchallenge.AsevidencedbytheWorldSummitontheInformationSociety(WSIS)process,ICTs–whichhavethepotentialtodeliverarangeofservices,helpcapacitybuilding,empowercommunities,andbridgesocialdivides–areviewedasimportanttoolsineffortsto
achievetheMDGsinhealth,educationandcommunitydevelopment(Servaesetal2006).Affordable,accessibletechnologiessuchasmobilephonesandlowcostradiohavedemonstrablyimprovedconnectivityandaccesstoinformationforpreviouslymarginalizedcommunities.
However,insomeareas,theICTrevolutionhasservedonlytowidenexistingeconomicandsocialdividesasnewinformationgapsthreatentofurthermarginalizethepoor,especiallyinruralareas(Balit2004).Asaresult,itisnowbeingstronglyarguedthataccesstoICTsshouldnotbeviewedasanendinitself,butasameanstotheultimategoalofsocialinclusion.ExpertsagreethatICTsaremostsuccessfulwhendeployedaspartofanintegratedapproachtodevelopmentandsocialchange(Servaesetal2006).Assuch,anumberofUNagencies,includingUNESCOandFAO,aredevelopingandimplementingprojectstoexploreinteractivity,two-wayflowsofinformation,communityengagementineffectiveuseoftechnologies,andthedevelopmentoflocalcontentandlocalknowledge(UnitedNations2006).
Athirdchallengeistoestablishhowcommunicationfitsinto,andbecomesanactivepartof,localandnationaldevelopmentprocesses.‘Participation’and‘voice’arewell-entrenchedinthedevelopmentdiscourse,andyetmechanismstoensurethesetendtobelacking.WhilecivilsocietyactorsinsistthattheultimategoalofCommunicationforDevelopmentistoshiftpowerrelationsandfacilitatesocialchangeledbythepoorthemselves,somearguethatthepoorcannotdeterminetheoutcomeofpolicyprocesses,butcanonlyinformdecisions,whicharetheprovinceofpolicy-makers,advisedbytechnocrats.Thislatterperspective,whichleavesinsufficientroomforbroaderengagementinpolicyadvocacy,remainsdominant.Aconsensusperspectivearguesthatthereisnoeither-or.Thepreferenceisforaholistic,‘diagonal’approach,harnessingverticalaswellashorizontalcommunicationtoinformdecision-makingathigh-level,incommunitiesandin-between.
Relatedtotheabove,anddiscussedextensivelyinthe9thUNRoundTable,istheconceptionofcommunicationaspartofabroaderresearchapproach.Communicationcan,andshould,beusedtoassessthesituation,includingnotonlycommunicationneedsandcapacitiesbutalsopoliticalrisksandtechnicalissues.
14.Inequalityhasatleasttwodimensions.Oneisinequalitywithincountries.Ofthe73countriesforwhichdataisavailable,incomeinequalityisrisingin53countries(accountingfor80%oftheworld’spopulation),whileitisonlynarrowingin9countries(with4%oftheworld’spopulation).Thisholdstrueinbothhighandlow-growthsituations,andacrosscountries.Aseconddimensionisinequalitybetweenrichandpoorcountries.Thegapbetweentheaveragecitizeninrichandpoorcountriesisgettingwider.In1990the
averageAmericanwas38timesricherthantheaverageTanzanian.TodaytheaverageAmericanis61timesricher.Althoughgrowthratesarerising,absoluteincomeinequalityisstillincreasingbetweenrichandpoorcountries(UNDP2005).15.In2005,thenumberofinternetusersexceeded500million,surpassingindustrialnationsforthefirsttime.Morethan75%oftheworld’spopulationnowliveswithinrangeofamobilephonenetwork(culledfromhttp://topics.developmentgateway.org/special/informationsociety).
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The9thRoundTable’srecommendationthatacommunicationneedsassessment16beundertakenattheinceptionofanydevelopmentinitiativeisaresultofsuchaconception.Itsproponentsarguethatwhenusedinsuchaway,CommunicationforDevelopmentisprobablyprovidingthebiggestadded-valuetodevelopmentinitiativesintermsofresults,sustainabilityandriskscontrolorprevention.
Manydevelopingcountrygovernmentsrarelydoenoughtoensureandamplifyvoiceandparticipation,whiledevelopmentagenciestendtodesignandmanageparticipationinsuchawayastoendorseorvalidatetop-downthinking.IntheAfricancontext,agoodexampleofthislackofpoliticalwillisthefactthatalthoughtheroleofcommunicationisspelledoutincontinentalnormssuchastheAfricanCharteronBroadcasting,whichemphasizestherighttocommunicate,fewgovernmentshaveinternaliseditspolicyprescriptionsonregulatoryissues,publicservicebroadcasting,communitymedia,andtelecommunicationsandconvergence17.EventheNewPartnershipforAfrica’sDevelopment(NEPAD),whichisunequivocalinassertingAfricanownershipofitsowndevelopment,ismoreorlesssilentwhenitcomestocommunication–inpartbecauseofafailuretoadvocateforitsinclusion.
Indeed,andputtogetherwiththeabsenceofpoliticalwill,thelackofcoordinatedandcountry-focusedpolicyadvocacymakesthescalingupofCommunicationforDevelopmentgoodpracticedifficult.Internationaldonorsstresstheprimacyofvoicebutbyandlargefailtooperationalizecommunicationasatoolfortwo-wayengagement.TheomissionofCommunicationforDevelopmentfromthe2005MillenniumProjectOverviewReport,intendedasapracticalguidetoachievingtheMDGs,istelling18.Othermajorpolicydocuments,normsandstandardsalsomirrorthislackofrecognitionorprioritization.Asaresult,governmentsanddevelopmentagencieshavenotbeenabletoexploitthevalue-addedofcommunication,andthepotentialofmediaandotherformsofcommunicationtohelpbringaboutsocialchangeremainslargelyuntappedandunderutilized.
Inlightoftheabove,afourthchallengeremainshowtodemonstratetheaddedvalueandimpactofcommunicationinaddressingdevelopmentchallenges,andensurethatitformsanintegralpartofgovernment,internationalanddonor
policies,strategiesandpractice.Communicationprocessesreceiveinsufficientattentionfromdevelopmentplanners,andarenotsufficientlyintegratedatthestartofplanningprocesses.Forexample,theUNDevelopmentAssistanceFramework(UNDAF),thecommonstrategicframeworkforoperationalactivitiesoftheUNsystematcountrylevel,oftendoesnotincludethebuildingofcommunicationmediaandcapacitiesasanintegralcomponent19.
Neitherhascommunicationbeenharnessedsufficientlytogoodeffectinadvancingpovertyreductionstrategies(PRSs),agreedtobetheprincipalstrategyformeetingthecornerstoneMDGofhalvingpovertyby2015.PractitionersandtheoristshavealsohighlightedthefactthatdespiteastrongemphasisinthePRSsonparticipation,“poorpublicunderstanding,limitedpublicdebateandlowlevelsofcountryownershipthreatensuccessfulimplementationofthisstrategy”(CSFCetal2004).
Overall,whilealltheabovechallengeshavebroughtnewopportunities,theyhavealsoledtothemarginalizationofpoverty-relatedissues,preciselytheissuestheMDGsweredesignedtoaddress.Goal3,forexample,aimstopromotegenderequalityandempowerwomen.Yetalthoughwomenrepresentanincreasingshareoftheworld’slabourforceandaretheprincipalactorsathouseholdandcommunitylevel,theystillremainatadisadvantage,includingineconomicadvancementandpoliticalparticipation(UnitedNations2006).Insufficientattentionhasbeendevotedtoensuringthatdevelopmentisfullyinclusiveofwomenandgirls,andCommunicationforDevelopmenthastendedtoreplicatethisfailure.
Ashasbeenargued,initiativesdesignedtoachievetheMDGs“…shouldbebasedoncoreprinciplesofdevelopmentthinking,suchasequity,gendersensitivity,inclusion,andculturalsensitivity”(CSFCetal2004).Furthermore,suchprinciplesmustbereflectedinthefundingandpracticeofcommunicationharnessedbydevelopmentagenciestowardsmeetingtheMDGs(ibid).AfundamentalreassessmentandreprioritizationisthereforeneededtoseehowCommunicationforDevelopmentcandelivertheownershipandparticipationinthepublicsphereneededfortheMDGstosucceed.ThisnecessitatesunprecedentedlevelsofcollaborationandcoordinationamongUNsystemagencies,fundsandprogrammes.
2.3 Communication in the UN SystemParagraph6ofUNGeneralAssemblyResolutionA/RES/51/172,issuedinDecember1996,emphasizes“…theneedtosupporttwo-waycommunicationsystemsthat
16.TheWorldBankpreferstouse‘Communication-BasedAssessment’.17.AstudycommissionedbyUNESCOandconductedbytheCommonwealthBroadcastingAssociationfoundthatwhilethetendencyinAfricanCommonwealthcountriesistobroadcastmajoroccasionsonradioandtelevision,fewstatebroadcastersfeatureparliamentaryproceedingsliveoronasustainedbasis.WhereparliamentisfeaturedonradioandTV,programmingtendstobepackaged(UNESCO2003)18.Anelectronicsearchofthedocumentsrevealsnomentionoftheword‘media’,andnomentionof‘communicationfordevelopment’.‘Informationandcommunications’appearsfivetimes,while‘telecommunications’appearstwice.
19.ArecentevaluationcommissionedbytheUN(Longhurst2006)foundsignificantshortfallsintheUNDAFprocess,includingweakinterfacewithnationalpovertyreductionstrategies(PRSs),poorcoordinationwithnon-UNactors,andinadequatemonitoringandevaluation.
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enabledialogueandthatallowcommunitiestospeakout,expresstheiraspirationsandconcernsandparticipateinthedecisionsthatrelatetotheirdevelopment”.ThistextremainstheclosestthingsofartoacommonsystemdefinitionofCommunicationforDevelopmentarticulatedatthehighestlevelofUNsystempolicymaking.Itsemphasisontwo-waycommunicationisconsistentwithtoday’sparadigmofcommunicationasanamplifierofvoice,facilitatorofparticipation,andmeansoffosteringsocialchange20.
Fewagencieswoulddisagreewiththisdefinitiononpaper.Inpractice,however,agenciesdeploydifferingcommunicationmethodsandstrategies21todeliverontheirrespectivemandatesandobjectives–whileallassertingthattheMDGsprovideanoverarchingrationalefortheirwork.CommunicationforDevelopmentintheUNsystemallowsforawidevarietyofactivitiestobeclusteredunderabroadumbrella.
Agoodnumberofexamplesofinter-agencycollaborationonCommunicationforDevelopmentcanbefound,andsection3belowhighlightssomeofthese.Nevertheless,althoughsomegoodpracticesstandoutattheinternational(headquarter)level,manyareatprojectlevelwithincountries,andmostofthesehavenotbeenscaledupbeyondpilotlevel.Whilesomenoteworthyinitiativesareunderway(suchasworkontherighttoinformationinthecontextofgoodgovernance,ledbyUNDPworkingwithUNESCO),thereisinsufficientfocus,particularlyatcountrylevel,onputtinginplacetheinfrastructure,policiesandcapacitiesneededtoensuretherightofcitizenstoinformation.Asarule,individualUNagenciesaremuchmorelikelytopartnerwithexternalactorsthanwithotheragenciesinthesystem.
Byandlarge,inter-agencyrelationsinCommunicationforDevelopmentarecharacterizedbyalackofcoherence,limitedpartnership,andanabsenceofco-ordination.Thisislargelybecause,andiscompoundedbythefactthat,ashighlightedabove,communicationrarelyfeaturesasanintegralpartofcommonsystemdevelopmentplanningandimplementationprocessessuchasUNDAFandtheCommonCountryAssessment(CCA),orinnationalprocesses,notablythePRSs.Inturnthisisbecausecommunicationisnotunanimouslyunderstoodorappreciated
atthehighestlevelsofinternationalanddevelopingcountrypolicymaking,andisviewedoperationallyasadownstreampublicrelationsordisseminationfunction,ratherthanasanintegral,upstreamcomponentofprogrammedevelopmentanddelivery22.
Thecoordinationandcoherencedeficitisnotlimitedtothecommunicationarena,buthashistoricallybeenasystem-wideproblem,withsuccessivewavesofUNreformseekingtostrengthenUNcoherencebothatheadquarterlevelandin-country.In1997theUNDevelopmentGroup(UNDG),chairedbytheUNDevelopmentProgramme(UNDP)Administrator,wassetuptocoordinatealloperationalagenciesfordevelopment23.Thesamereformsalsosoughttoconsolidatetheroleofthein-countryUNResidentCoordinatorsbydesignatingthemcoordinatorsoftheUNCountryTeam(UNCT),andbyassertingtheoverarchingroleoftheUNDAFandCCA(DFID2005).
Subsequentwavesofreformin2002,2005and2006haveplacedtheMDGsatthecentreoftheUN’sdevelopmentefforts,reinforcedhumanrights,genderequality,sustainabledevelopmentandotherconcernsasfoundationalforalltheUN’swork,andestablishedtheUNDGExecutiveCommittee.Thevisiondrivingthereformshasbeen‘DeliveringasOne’,andmostacknowledgethattherehasbeensomeprogressinmovingtheUNsysteminthisdirection.However,anumberofconcernsremain.
Oneoftheseisthe“unresolvedtensionbetweenglobalstrategiesofeachoftheagenciesandthedoctrineofcountry-ownedandcountry-ledprogrammes…”(DFID2005).Thistensionbetweenheadquarters-drivenvisionandcountry-levelactionspartlyexplainswhy,withmostoftheinnovativeworkinCommunicationforDevelopmenttakingplaceonapilotbasiswithindevelopingcountries,ithasbeendifficulttoapplythelessonsfromthesesuccessesandimplementthematscaletonationallevelandacrosscountries.
Linkedtothis,andastheHigh-LevelPanelhasstressed,theUNisnotactiveenoughinadvisinggovernments,conveningstakeholders,advocatingforinternationalnormsandstandards,providingtechnicalassistanceandadvisingon
20.Seethedifferentbutcomplementarydefinitionsonp.6ofthebackgroundpaper(Servaesetal2006)preparedfortherecently-heldWCCD.21.ServaesandMalikho(2004)haveidentifiedthefollowingdevelopmentcommunicationapproachesdeployedinorganizations:Extension/DiffusionofInnovations;Networkdevelopmentanddocumentation;ICTsforDevelopment;SocialMarketing;Edutainment(EE);HealthCommunication;Socialmobilization;Information,EducationandCommunication(IEC);Institutionbuilding;Knowledge,attitudesandpractices(KAP);DevelopmentSupportCommunication(DSC);HIV/AIDScommunityapproach;andCommunityParticipation.
22.ThisledtheWCCD’sRomeConsensustonote:“CommunicationforDevelopmentisasocialprocessbasedondialogueusingabroadrangeoftoolsandmethods.Itisalsoaboutseekingchangeatdifferentlevelsincludinglistening,buildingtrust,sharingknowledgeandskills,buildingpolicies,debatingandlearningforsustainedandmeaningfulchange.Itisnotpublicrelationsorcorporatecommunication”.23.TheseincludeUNDP,UNICEF,UNFPAandWFP(thefourUNFundsandProgrammesthatfalldirectlyundertheSecretary-General’sauthority),theSpecializedAgenciessuchasWHO,FAOandIFAD(whichhavetheirownindependentGoverningAssemblies),andobserverssuchastheBrettonWoodsInstitutions(DFID2005).
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buildingandstrengtheninginstitutions(UnitedNations2006).ThisisinlargepartbecauseofthefragmentednatureoftheUNpresenceindevelopingcountries,compoundedbytheproliferationofotherdevelopmentactors,includingNGOs,bilateraldonors,foundationsandtheprivatesector.AccordingtotheHigh-LevelPanel,theUNsystem’scurrentdesign“…risksperpetuatingamyriadofnicheplayers,whichindividuallywillnothavetheinfluenceandauthoritytosecureastrongvoiceinnationalandglobaldebates”(UnitedNations2006).
Atleastinpart,thissystemicrealityaccountsforthepiecemealandfragmentednatureofCommunicationforDevelopmentintheUN.Nevertheless,thelackofadvocacywithinthesystemisalsolargelytoblame.SystemicweaknessesinmonitoringandevaluationalsomakeitallthemoredifficulttoprovidetheevidenceneededtodemonstratetheimpactofCommunicationforDevelopmentinhelpingmeettheMDGs.
ChallengesofthisnaturearebeinggrappledwithnotonlywithintheUN,butintheCommunicationforDevelopmentcommunityatlarge.Thepreoccupationwithprovidingverifiableevidenceofimpactasameansofcementingthecredibilityofthefield,forexample,underpinnedtherecently-heldWCCD,whichrecommended,amongotherthings,that“developmentcommunicationprogrammesshouldberequiredtoidentifyandincludeappropriatemonitoringandevaluationindicatorsandmethodologiesandimprovedevelopmentoutcomes”24.
TheemphasisintheongoingUNreformsonimprovingcoordinationandcoherencetowardsenhancedimpactconstitutesanunprecedentedopportunityforCommunicationforDevelopmentadvocatesinsideandoutsidethesystemtodemonstrateitsvalue-addedandtoensureitformsanintegralpartoftheUN’sfutureplanningandprogrammingprocesses.Manyproposalshavealreadybeentabledasthewayforward25.Whatremainsistodevelopacommonunderstanding,commonapproachandactionplanspellingoutaprogrammeoftime-boundactivities,withcleardeliverablesandtargets,tobeimplementedjointlybyUNagencies.26
3. GOOD PRACTICES IN INTER-AGENCY COLLABORATION
ThemostrecentNotebytheSecretary-GeneralonCommunicationforDevelopmentprogrammesintheUNsystem(A/61/165)highlightsanumberofnoteworthyinitiativesledbydifferentagencies,broadlyclassifiedasrelatingtoCommunicationforDevelopment.Nevertheless,andinmanycases,initiativesdescribedarenotconsonantwiththeagreedunderstandingofCommunicationforDevelopmentasspelledoutintheDecember1996UNGeneralAssemblyResolutionA/RES/51/172.Assuch,thecasescitedbelowshouldbeviewedasinstancesofcollaborationaroundinformationandcommunication.
Indeed,theUNhaslongcollaboratedwithexternalpartnersonCommunicationforDevelopment,includingtheacademicandresearchcommunity27andpractitioners.YettherearerelativelyfewexamplesofUNsystemagenciescollaboratingwitheachother.ContentanalysisoftheSecretary-General’sNoterevealsthatmanygoodpracticesofpartnershiparoundinformationandcommunicationinvolveexternal,non-UNsystemactors.Furthermore,thosegoodpracticesthatexistarelargelyintheICTsareaandarelimitedmostlytopilotprojectswhosesuccesseshavenotbeenreplicatedatscale.
ItshouldbenotedherethattheSecretary-General’sNoteisinformedbycontributionspreparedbystaffatheadquartersinthevariousUNagencies.Inviewofthevisiongap,identifiedabove,betweenheadquartersandcountryprogrammes,itislikelythatthistranslatesintoaknowledgegap,andasaresultanumberoffield-basedinitiativesmayhavenotbeenreported.Inevitably,manyofthegoodpracticeshighlightedbelowareinternational,asopposedtocountry-specific28.
3.1 The UN Inter-Agency Round Table on Communication for DevelopmentTheRoundTableisanimportantperiodicforumforcoordinationandcoherenceofUNsystemCommunicationforDevelopmentprogramming.Undertheoverall
24.TheRomeConsensus:CommunicationforDevelopment,AMajorPillarforDevelopmentandChange,FinalDraft,Rome27October2006.25.Anumberarecontainedinthereportofthe9thRoundTable.ProposalsintheWCCDRomeConsensusandbackgroundpaperarealsoofrelevancetotheUNsystem.26.TheReportoftheHigh-LevelPanelonUNreformshasrecommendedthefollowingstrategicdirections
for‘DeliveringasOne’:CoherenceandconsolidationofUNactivities,inlinewiththeprincipleofcountryownership,atalllevels(country,regional,headquarters);Establishmentofappropriategovernance,managerialandfundingmechanismstoempowerandsupportconsolidation,andlinktheperformanceandresultsofUNorganizationstofunding;OverhaulofbusinesspracticesoftheUNsystemtoensurefocusonoutcomes,responsivenesstoneedsanddeliveryofresultsbytheUNsystem,measuredagainsttheMillenniumDevelopmentGoals;EnsuresignificantfurtheropportunitiesforconsolidationandeffectivedeliveryofOneUNthroughanin-depthreview;Implementationshouldbeundertakenwithurgency,butnotillplannedandhastyinamannerthatcouldcompromisepermanentandeffectivechange.27.NotablyintheIAMCR-UNESCOroundtables(Sydney,1996;Glasgow,1998;Singapore,2000)andanumberofjointICA-IAMCR-UNESCOsessions.28.Itwasnotpossibleduringthepreparationofthispapertogatherdataonfield-basedactivitiesfromthedesignatedRoundTablefocalpoints,allheadquarter-basedstaff.
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directionofUNESCO,butwithresponsibilityfororganizingandconveningrotatingfrommeetingtomeeting,itbringstogetherUNagenciesandtheirpartnersaroundaspecifictheme.Mostofthekeyagenciesarerepresented.
3.2 World Congress on Communication for DevelopmentThefirstsucheventofitskind,theCongresstookplaceinRome,Italyfrom25-27October2006.Itspurposewastodemonstratethatcommunicationisessentialformeetingtoday’smostpressingdevelopmentchallengesandshouldthereforebefullyintegratedintodevelopmentpolicyandpractice.AlthoughtheCongresswasnotaUNevent,agenciesofthesystemwerefullyinvolvedinitsorganization,andtheworkingdefinitionofCommunicationforDevelopmentarticulatedintheRomeConsensusisconsonantwiththeprinciplesagreedbythe9thRoundTable.FAOandtheWorldBankweretwoofthethreemainorganisers,withtheCongresstakingplaceatFAOheadquarters.UNESCOandUNICEFwerepartoftheSteeringCommitteewhileIFAD,UNCTAD,UNEP,UNDPandUNFPAwereamongotherUNagenciesthatservedasmembersoftheAdvisoryGroup.
3.3 World Summit on the Information SocietyTheUNsystemplayedapivotalroleinorganizingWSIS,heldintwophases(Geneva2003,Tunis2005).TheInternationalTelecommunicationUnion(ITU)wastheleadorganizingUNsystemagencyforbothphases.UNagenciesareassignedaprominentroleintheimplementationoftheWSISoutcomes,withtheUNGeneralAssemblyendorsingtheTunisCommitmentandTunisAgendafortheInformationSocietyinResolution60/252.InTunis,ITUwasdesignatedsolefacilitator/moderatorfor2outof11actionlines,andjointmoderatorforanadditional6actionlines.UNESCOwasdesignatedsolefacilitatorfortwoactionlines(C8onculturaldiversityandidentity,linguisticdiversityandlocalcontent,andC9onmedia)andjointfacilitatorfor6outofatotalof11.ITU,UNESCOandUNDParekeyimplementingfacilitatorsofdifferentpartsoftheGenevaDeclarationofPrinciplesandActionPlan,aswellastheTunisAgenda.
3.4 UN Group on the Information Society ThegroupwasestablishedinApril2006bytheUNsystemChiefExecutivesBoard(CEB)forCoordinationasthenewinter-agencymechanismtocoordinatepolicyandsubstantiveissuesintheimplementationoftheWSISActionPlan.ItbringstogetherCEBmembers(UNagencies,programmes,funds,andspecializedagencies).Itisdesignedtofosterprogrammeandpolicycoordinationandcoherence,andprovideoverallguidancetoUNsystem.ITUhasbeenappointedthefirstrotatingchair.
3.5 Community Multimedia CentresUNESCO’sInternationalInitiativeforCommunityMultimediaCentres(CMCs)hasbeenwidelyacknowledgedandtakenupbyUNsystemagencies.Morethan130CMCs,includingpilots,havebeencreatedandsupportedin20countrieswithvaryingdegreesofinvolvementfromotherUNagencies.TheinitiativeiscurrentlybeingscaledupinthreecountriesinAfrica–Mali,MozambiqueandSenegal.InMozambique,UNESCOworkscloselywithUNDP.3.6 International Programme for the Development of Communication (IPDC)29
TheIPDCistheprincipalmultilateralforumintheUNsystemthatmobilizestheinternationalcommunitytodiscussandpromotemediadevelopmentindevelopingcountries.Itnotonlyprovidessupportformediaprojects,butalsoseekstosecureahealthyenvironmentforthegrowthoffreeandpluralisticmediaindevelopingcountries.Sinceitsinceptionin1980,IPDChaschanneled$93milliontomorethan1,100mediadevelopmentprojectsin139developingcountries.
3.7 UN-WaterEstablishedin2003,UNWateristheofficialUN-designatedfollow-upmechanismtothewater-relateddecisionsemanatingfromtheWorldSummitonSustainableDevelopmentin2002,aswellastheMDGs.Activeatglobal,regionalandcountrylevels,UN-WateraddsvaluetotheworkandexpertiseofdifferentUNagencies,bybringingcoherenceandintegration,andservingasthecommonUNvoiceonwaterandsanitation.UN-WatertakestheleadinorganizingtheannualUNWaterDay(22March)andtheUNDecadeonWater(2005–2015).Some24UNagencies,includingthefiveregionalcommissions,belongtoUN-Water,alongwithanumberofnon-UNpartners.AgenciesbelongingtoUN-Waterhavecollaboratedonanumberofcommunicationactivities,includingtheproductionofaudio-visualmaterial
3.8 Research on ICTs & PovertyUNDPandUNESCO,incollaborationwithotherUNsystemagencies,areundertakingamulti-countryresearchprojectaimedatprovidingevidenceontheextenttowhichICTsimpactonpoverty.
3.9 ICTs TrainingITU’sTelecommunicationDevelopmentBureauisworkinginpartnershipwithUNESCO,UNEP,UNITAR,andWHOtodeveloptools,trainingmaterials&guidelinesforthedevelopmentofcapabilitiesinthefieldoftelecommunicationsscienceandtechnologyindevelopingcountries.
29.Multilateralismisviewedasthebestwaytopromotemediadevelopmentindevelopingcountries.Forpoliticalandethicalreasons,mediaismorecomfortablewithinternationalassistanceprovidedthroughIPDC,becauseitensurestheirindependenceandcredibility.
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3.10 Rural ICTsIFADisworkingcloselywithFAOtodevelopaRuralKnowledgeNetworkinEastAfrica,withtheaimofdeterminingwhetherICTscanstrengthenmarketrelationshipsamongruralpoor.IFADandFAOhaveworkedtogetheronFarmerFieldSchoolssince1998.FAOworkscloselywithIFADandtheWorldBank.
3.11 Freedom of InformationUNESCOworkscloselywithUNDPin-countryinpromotingfreedomofinformationlegislation.InpromotingtherighttoinformationlegislationinIndia,thetwoagenciesatcountrylevelproducedafilmtoshowhowtherighttoinformationcanbeappliedtoputastoptolocalcorruption.Thefilmhasbeenwidelydistributed,accompaniedbyabookentitled“FreedomofInformation:AComparativeLegalSurvey”authoredbyTobyMendel.
3.12 World Press Freedom Day UNESCOpartneredwithUNDPandUNDPItoorganizeWorldPressFreedomDay2006,whichfocusedonmediafreedom,accesstoinformationandfreedomofexpressionascriticaltotheeradicationofpoverty.
3.13 Participatory VideoIn2004UNDP’sCSOsDivisionpartneredwiththeGlobalEnvironmentFacilitySmallGrantsProgramme(atrustfundwiththeWorldBankandUNEP)andtheHumanRightsStrengtheningProgramme(ajointprogrammewithOHCHR)tocommission‘InsightsintoParticipatoryVideo:ahandbookforthefield’.UNDPhasworkedwithUNAMA(Afghanistan)todeveloppublicandciviceducationinformationprogrammes.
3.14 HIV/AIDS CommunicationInSeptember2002UNDPlaunched‘BreakingtheSilence’,thefirst-everprogrammeforArabstatesonHIV/AIDS.IthascollaboratedwithUNAIDS,UNICEF,UNIFEM,ILO,andOHCHR.‘Africa2015’isaUNDP/UNAIDS/UNICEFpartnershipharnessingcelebritiesandpoliticalleaderstopromoteHIV/AIDSprevention,towardsmeetingtheMDGs.FAOandUNICEFareimplementingHIV/AIDSasensitizationandbehaviourchangecommunicationprojectin5provincesinCameroon.
3.15 Renewable EnergyWithfundingfromtheUNFoundation,UNEPlaunchedE-Commerce&RenewableEnergy(e-Care)inDecember2005.E-Careisa3-yearinitiativetodelivercommercialandsocialservicesinGhanausingICTsandcleanenergysystems.
3.16 International Day for Eradicating PovertyUNEPisapproachingUNDPtoexplorepotentialforjointobservance.
3.17 Community Radio PolicyUNDP,UNESCOandUNICEFworkcloselytogethertopromotecommunityradioinIndia,particularlytosupportthegovernmentinpolicydevelopmentinconsultationwithcivilsociety,asaresultofwhichtheIndianGovernmenthasannouncedacommunityradiopolicy.
3.18 Parliamentary Broadcasting:InAfghanistan,UNDPandUNESCOworktogethertopromotedirectbroadcastingofparliamentarydebatesasapublicservice.
4. KEY EXPECTED OUTCOMES
Ashighlightedinsection1ofthispaper,theobjectivesofthe10thRoundTablearetoincreasejointinter-agencycollaboration,strengthenawarenessontheneedformonitoringandmeasurementofimpact,andagreeonmechanismstoharmonizeCommunicationforDevelopmentprogrammingapproacheswithintheUNsystem.WhatfollowsarekeyexpectedoutcomesoftheRoundTable.
4.1 Common Understanding:Fromtheoutset,andinviewofthewiderangeofcommunicationactivitiesbeingimplementedbydifferentagencies,themeetingneedstoarriveatacommonunderstandingofCommunicationforDevelopmentaspractisedintheUNsystem.Theideaisnottodisciplineagenciesintocompliance,butrathertofosterconsensusonwhatCommunicationforDevelopmentmeansorshouldmean,bothconceptuallyandinpractice,intheUNsystem.Achievingthisconsensusisacriticalfirststeptoimprovingcoordinationandcoherence,chartingawayforwardonjointcollaboration,andenhancingsystem-wideimpact.
4.2 Common Approach and Strategy:Onthebasisofacommonunderstanding,participantswillneedtodeveloptheparametersofacommonapproach.HumanrightsarenowatthecentreoftheUN’swork.Therights-basedapproachalreadyguidesthecommunicationstrategiesofagenciessuchasFAOandUNDPandlessonscanbelearnedfromsuchexperiencetodate.The10thRoundTableprovidesanimportantopportunitytolaythegroundworkforformallycodifyingacommonapproach,togetherwithanaccompanyingstrategy.
4.3 Joint Programmes: Themeetingshouldagreeonspecificthemes,issuesandareasonwhichUNagenciescanworktogetherconcretelyandtogoodeffect,bothwithincountriesandatinternationallevel.Theapproachshouldbestrategic,
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withinterventionsselectedaccordingtorelevance,feasibility,andthelikelihoodofmaximumimpact.Approachesthataremostlikelytosucceedarethosethatprioritizefocusedinterventionsaroundwhichagenciescanworkholisticallyindeliveringimpactincountries.Toensurescalingup,particularattentionshouldbepaidtosystemic,asopposedtoone-offinterventions.
4.4 Mechanisms:The10thRoundTableshouldalsoagreeonhowtoreinforceexistingmechanismssoastofacilitatedeliveryonthecommonapproachandstrategy.OfcriticalimportanceisfindingwaystoincrementallyintegrateCommunicationforDevelopmentintoexistingcountrymechanisms,suchastheUNDAF,CCAs30andPRSs.Regional(andsub-regional)mechanismsmayalsobeworthexploring.ExistingglobalforasuchastheGeneralAssembly,UNDG,andECOSOCcouldbeusedtoraisetheprofileofCommunicationforDevelopmentintheUNsystemasawhole.
Intermsofspecificideas,astandingproposalisthatgovernments,donorsanddevelopmentagenciesrendertheincorporationofacommunicationneedsassessmentinanydevelopmentinitiativemandatory,eventuallydevotinganagreedpercentageofthebudget,0.5or1%,tofundtheassessments(thisemanatedfromthe9thRoundTableandwastakenupbytheWCCD).TheUNDPOsloGovernanceCentrehasdevelopedapracticalguidetocommunicationforempowermentwhichadvocatesforupstreamcommunicationaudits31whiletheWorldBankhasdevelopedacommunication-basedassessmentmethodology.TheseeffortscanallbeharnessedtowardsstrengtheningtheUNsystem’sdiagnosticandprogramminginstruments,globallyandincountries.
4.5 Measuring ImpactInlightoftheneedformoresystematicandrigorousmonitoringandevaluationhighlightedearlierinthispaper,animportantexpectationistheidentificationandagreementonthetypesofindicatorsthatneedtobedevelopedorharnessed.Suchindicatorsarekey,forconsistentlytrackingtheimpactofCommunicationforDevelopmentasafield,fordemonstratingthatacommonUNsystemapproachcanreapdividends,andforprovidingtheempiricalrationaleforfutureprogrammes.Ashasbeenemphasized,communicationindicatorsmustbeanintegralpartof
everyprojectplanningprocessattheupstreamdesignstage.Althoughitisnotalwayspossibletodirectlyattributedevelopmentoutcomestocommunication,suchindicatorsshouldbeabletoeffectivelymeasuretheextenttowhichthecommunicationenvironmentdevelopsovertime,andtodeterminetheroleofcommunicationinterventionsinimprovingthein-countryenablingenvironment.‘Impact’mustbeholisticallydefined,inqualitativeaswellasquantitativeterms,indirect,indirectandcontextualobjectives,andshortversuslong-termperspectives.Termsofreferenceofdevelopmentassistanceprogrammesshouldalsoincluderequirementsforresearchonlongertermchange,notjustshorttermeffects,andforsystematicresearchtoinformprogrammedesign(Servaesetal2006).
4.6 Plan of ActionAlltheaboveexpectationsshouldbecodifiedinajointlyagreedplanofaction,asproposedbythe9thRoundTable,whicharticulatesstepsandactionstoputinplaceandimplementacommonUNCommunicationforDevelopmentapproachandstrategy.Preliminaryplanofaction,aimedatinformingdiscussionsduringthe10thRoundtableisappearedinSection3tothispublication.
30.GiventhattheUNDPbackgroundpaperwillincludedetailedproposalsonhowtomainstreamCommunicationforDevelopmentintheUNDAFprocessandPRSs,thispaperdoesnotgointodetailonthisissue.31.Formoredetails,see‘CommunicationforEmpowerment:Developingmediastrategiesinsupportofvulnerablegroups.PracticalGuidanceNote’,DemocraticGovernanceGroup,BDP,UNDP2006.Apilotprojectin5countriesisshortlytogetunderway.
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RelevancetotheworkoftheUnitedNations.UNCDF,NewYork.
Servaes,J1995.DevelopmentCommunication:ForWhomandforWhat?Communication,21(1):39-45.
Servaes,J1999.CommunicationforDevelopment.OneWorld,MultipleCultures.HamptonPress,Cresskill.
Servaes,J2002.ByWayofIntroduction.InServaes,J(ed),ApproachestoDevelopmentCommunication.UNESCO,Paris.
Servaes,J2005.‘CommunicationforDevelopmentandSocialChange’,Keynoteaddressdeliveredataworkshopon‘FutureDirectionsforAustralia’sRelationswithherNeighbours:CriticalIssuesinHealth,DevelopmentCommunicationandpeace-building’,FoundationforDevelopmentCooperationFDC,Brisbane,5September2005.
Servaes,J.(ed.)2006.CommunicationforDevelopment.MakingaDifference.MainstreamingPaperfortheWorldCongressonCommunicationforDevelopment(WCCD),Rome,25-27October2006,WorldBank,WashingtonDC.
UNGeneralAssembly,2006.CommunicationforDevelopmentprogrammesintheUnitedNationssystem.NotebytheSecretary-General.A/61/165preparedbyUNESCOforthe61stsessionoftheUNGeneralAssemblyonInformationandcommunicationtechnologiesfordevelopment.
UnitedNations2006.DeliveringasOne–ReportoftheSecretary-General’sHigh-LevelPanelonUNSystem-wideCoherenceintheAreasofDevelopment,HumanitarianAssistance,andtheEnvironment,NewYork.
UnitedNations2006.TheMillenniumDevelopmentGoalsReport2006,NewYork.
UNMillenniumProject2005.InvestinginDevelopment.APracticalPlantoAchievetheMillenniumDevelopmentGoals.OverviewoftheReporttotheSecretary-General,NewYork.
UNDP2005.HumanDevelopmentReport2005:InternationalCooperationataCrossroads.Aid,TradeandSecurityinanUnequalWorld,NewYork.
UNDP2006.CommunicationforEmpowerment:DevelopingMediaStrategiesinSupportofVulnerableGroups.PracticalGuidanceNote.UNDPBureaufor
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Harnessing Communication to Achieve the MDGs
TOWARDS A COMMON UN SYSTEM APPROACH
2
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1. INTRODUCTION ABOUT THE DEFINITIONS AND SCOPE OF COMMUNICATION FOR DEVELOPMENT
Thispaper,preparedonbehalfofUNDPforthe10thInter-AgencyRoundTableonCommunicationforDevelopment[C4D],focusesonhowcommunicationfordevelopmentcanbebetterintegratedintocountryleveldevelopmentstrategies.ItcomplementsanotherkeynotepaperpreparedforthemeetingbyUNESCO,whichfocusesprincipallyoncoordinationandcoherenceissuesattheinternationallevel,butwhichalsohasimportantrecommendationsforactionatcountrylevel.ItshouldbestatedthatthisUNDPpaperagreeswithandendorsesboththeanalysisandtherecommendationssetoutintheUNESCOpaper.Somefurthercomplementaryandadditionalrecommendationsaremadeattheendofthispaper.Thispaperfocusesonfourissues:•AnarticulationofwhyC4DisincreasinglyrelevanttocountryleveldevelopmentstrategiesaimedatmeetingnationalMillenniumDevelopmentGoals(MDGs);•AnexplanationofcurrentcountryleveldevelopmentplanningprocessesandhowthesemaydevelopfurtherinthecontextofcurrentUNsystemwidereformefforts;•HowCommunicationforDevelopmentcanbetterbeincorporatedandprioritizedwithinCommonCountryAssessments,theUNDAFandfuturedevelopmentplanningsystems;•Recommendationsonmechanismsforenhancingcoordinationandcoherenceanddevelopingmoreeffectivemonitoringandevaluationsystemsatcountrylevel.
Communication for Development: Scope and DefinitionsItisextremelydifficulttoenvisageanorganizationalandstrategicframeworkforC4Datcountrylevelsucceedingwithoutaveryclearunderstandingofwhatthetermdoesanddoesnotencompass.ThispaperisrootedinaframeworkofdefinitionsandcharacteristicsofC4Dthathavebeenestablishedoverseveraldecadesnow,andwhichhavebeenrepeatedatearlierRoundTablesandothermeetings.
Section2oftheaccompanyingUNESCOBackgroundPaperoutlinesveryeffectivelyhowtheUNUNsystemcurrentlydefinesandtreatsC4D.ItisimportanttohighlighthoweversomeofthedefinitionalissuesrelatedtoC4Dastheyrelatedirectlytotheorganizationalandstrategicchallengesforcountrylevelprogramming.
Twosetsofissuesareimportanthere:firstthecharacteranddefinitionsofC4D;andsecondthescopeofC4D(whatthistermencompasses).
Definitions and CharacteristicsMostdefinitionsofcommunicationfordevelopmentfocusonitscharacteristics,definingitconsistentlyasaparticipatoryandtwowayprocess,anddistinctfrom
ThispaperissubmittedbyUNDPasacontributiontothe10thCommunicationforDevelopmentRoundTable.ItwaswrittenbyJamesDeaneoftheCommunicationforSocialChangeConsortiumandeditedbyBjoernFoerdeoftheUNDPOsloGovernanceCentre.InvaluablecommentswereprovidedbothontheoriginalconceptualoutlineandthedraftbyElizabethMcCall.
Acknowledgements
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externalrelationsandpublicrelations.TheformalUNdefinitionofCommunicationforDevelopment,adoptedinGeneralAssemblyresolution51/172Article6says:
“Communication for development stresses the need to support two-way communication systems that enable dialogue and that allow communities to speak out, express their aspirations and concerns, and participate in the decisions that relate to their development”.
Itisthisdefinitionthatunderpinsthe10thUNroundtable.Morerecently,theWorldCongressonCommunicationforDevelopmentinOctober2006definedtheterminastatemententitledThe Rome Consensus: Communication for Development – A major pillar for Development and Changeas:
“A social process based on dialogue using a broad range of tools and methods. It is also about seeking change at different levels including listening, building trust, sharing knowledge and skills, building policies, debating and learning for sustained and meaningful change. It is not public relations or corporate communication”
ThisisbroadlyconsistentwiththeearlierGeneralAssemblyresolutionaswellasothercharacterizationsofthefield,andwiththelast9thUNRoundtableonCommunicationforDevelopment,heldin2004,alsoinRome.Itarguedthatamongothercharacteristics,that:
“Communication for development is about people, who are the drivers of their own development; It contributes to sustainable change for the benefits of the poorest; It is a two way process [and] is about people coming together to identify problems, create solutions and empower the poorest; It respects indigenous knowledge and culture and that local context is key; It is critical to the success of the Millennium Development Goals.32”
Allofthesedefinitionsfocuscentrallyoncommunicationthatenablespeople,particularlyvulnerablegroups,toparticipateinshapingdecisionsthataffecttheirlives.Thisroleofcommunicationasempowermentcontrastssharplywithhowmostcommunicationiscurrentlyunderstoodatcountrylevelwithinthedevelopmentsystem,whichisoftenfocusedonenchancingthepublicprofileofdevelopmentinstitutionsandadvocacyforspecificprogrammeareas.Itistheempowermentroleofcommunicationthatunderpinsalltherecommendationsinthispaper.
The Scope of Communication for DevelopmentAstheRomeConsensussignified,thedefinitionsandcharacteristicsofcommunicationfordevelopmentarewidelyagreedamongmanystakeholdersandactors,atleastwithinthecommunicationfordevelopmentcommunity.However,thescope–orlandscape-ofwhatdoesanddoesnotcountasacommunicationfordevelopmentactivitycanpresentagreaterchallenge,particularlyinrelationtohowdevelopmentsystemscoordinateandplanit.Forthesakeofsimplicity,andforthepurposesofthispaper,CommunicationforDevelopmentencompassesthefollowingthreemainspheres:•Communicationingovernance,orcommunicationasparticipation.•Communicationinsupportofspecificdevelopmentsectors.•KnowledgeandInformationandCommunicationTechnologies.Thisisnotdesignedtobeafullycomprehensivelistofallactivitiesthatfallwithintheremitofcommunicationfordevelopment,anddifferentlabelsandconceptswillbehighlightedindifferentcontexts.However,forthesakeofbrevityandinanefforttoportraythelandscapeofcommunicationfordevelopment,thesethreeareasareproposed.
Communication in Governance, or Communication as ParticipationThissphereencompassestheroleofcommunicationinenablingcitizens,especiallypoorpeople,toamplifythevoicesofthelatter,toenablethemtoparticipateinpublicdebateontheissuesthataffecttheirlivesandtoholdtheirgovernmentstoaccount.Italsounderpinsandcutsacrosstheothertwospheres.Itincludesforexampleworkon:•EnsuringaccessandrightstoInformation,especiallyforpoorpeople•Supportingcommunityempowermentthroughcommunicationforsocialchange,andotherdialoguefocusedmethodologieslinkedtobroaderciviceducationinitiatives•Promotingcommunicationaspartofanoverarchingrights-basedapproachtodevelopment,andillustratinghowcommunication(particularlywithandthroughmedia)intersectswithandenrichescivilsocietyvoices•Promotingtheroleofcommunicationininformingandgeneratingpublicdebate,andinensuringthevoicesofvulnerableandmarginalizedgroupsareprominentinsuchdebate;anditsalliedroleinenhancingownership,accountabilityandtransparencyindevelopmentpolicy(suchasformulatingdevelopment,povertyreductionandotherrelatedstrategies)•Supportingmedia(includingmediafreedom,communitymedia,capacitybuildingandenhancingfinancialsustainabilityofindependentmedia,mediapolicy,pro-poor/developmentfocusedcontent,professionalismandethicsinmedia)•Strengtheningahealthypublicsphere,characterizedbyinformedmedia,avibrantcivilsocietyanddecentralizedpatternsofinformationexchange•Promotingtheroleofcommunicationinsupportingculturaldiversity,as
32.PowerpointversionofDeclarationof9thUNCommunicationforDevelopmentRoundtable,2004,www.fao.org
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representedinthe2001UNESCOUniversalDeclarationonCulturalDiversity,andinthewordsofthe2004HumanDevelopmentReport,todevelop“multiculturalpoliciesthatrecognizedifferences,championdiversityandpromoteculturalfreedoms,sothatallpeoplecanchoosetospeaktheirlanguage,practisetheirreligion,andparticipateinshapingtheirculture—sothatallpeoplecanchoosetobewhotheyare”.
Communication in Support of Specific Development SectorsThisspherefocusesontheroleofcommunicationinhealth,environment,livelihoods,gender,educationandsoon.Thisisamassivefieldencompassingtheroleofcommunicationbothinfacilitatingbehavioralchange,empoweringpeoplesotheycantakeactiononrelevantissues,andincatalyzingprocessesofsocialchangeinsocietyrelatedtotheseissues.Itencompassesmajorandincreasingexpenditureinthefieldof:•Health,brokendownintocommunicationforbehaviourandsocialchangeprogramminginHIV/AIDS,TB,malaria,nutrition,polioandotherchildhoodimmunizationprogrammes,aswellasmanyotherrelatedissues(almostallhealthissueshaveanimportantcommunicationdimension);•Agricultureandlivelihoods,rangingoverawideareafromcommunicationinsupportofimprovedagriculturaltechniques,landreformdebatesandpolicy,empowermentofpoorfarmersbyamplifyingtheirperspectives,ensuringinstantaccesstomarketinformationetc.FAOwasthehomeofsomeoftheearliestandmostpioneeringcommunicationfordevelopmentprogramming.•Theroleofcommunicationinsupportofmanyothersectors,includingenvironment,gender,education,habitatandsoon.
Knowledge and Information and Communication TechnologiesThisencompassesareasprincipallyconcernedwithinformationandcommunicationtechnologies,including:•CreatingenablingappropriateanddynamicICTpolicyenvironments;•Innovativemodelsoffinancingfortheuseoftechnologiesindevelopment(e.g.enablingfarmerstoknowtheendpriceoftheirproductsatmarkettosecurebetterprices,fishermenknowingtheweatherforecastthroughmobiletelephonyetc.);•TheuseofICTsinfacilitatingbetterfunctioningmarketsandinfacilitatingcashtransactions,particularlyamongthosewithoutbankaccounts;•Enablingdevelopingcountriestointegrateintotheglobaleconomybystrengtheninginfrastructure,anddevelopingmoreknowledgebasedeconomies;•E-governanceinitiativesdesignedtomakegovernmentservicesmoreefficientandtransparent;
•Thedevelopmentoftelecentres,villageknowledgecentresandsimilarprojects;•Overcomingthedigitaldividebetweenrichandpoorcountries,andbetweenrichandpoorwithincountries.
The Cross Cutting Nature of Communication for DevelopmentThesearethemain,butnottheonlysphereswhicharegenerallytakentofallintothearenaofcommunicationfordevelopment.Otherissueswhichoftenfallwithinthisfieldincludecommunicationofacademicordevelopmentresearch,advocacyinsupportofpro-poordevelopmentobjectives,thepromotionandcatalyzingofsocialmovementsandotherissues.Furthermore,manyofthesefieldscross-fertiliseeachother.E-governanceinitiativesarecloselylinkedtoAccesstoInformationissues;HIV/AIDScommunicationprogrammingiscloselylinkedtoenhancingtheparticipationofpeoplewithHIVinHIVpolicyresponses;theuseofnewICTsinteractsdynamicallywiththeuseoftraditionalmedia,suchasradio,inenhancingpublicdebate;broadcastingpoliciesthatcaterforvulnerablegroupsaffectsalldevelopmentsectors.Thepurposeofthissectionhasbeentocreatesomeclarityofwhatcommunicationfordevelopmentisandwhatitisnot,andtohighlightthatitisalarge,diversefieldwithmanyareasthatinterrelatewitheachother.Theseissuesinevitablyhaverepercussionsforhowitcanbestbestructuredwithinthecontextofnationaldevelopmentplanningsystems.Werevisittheseissueslaterinthispaper.Onefinalpointisworthmakinginthiscontext.Communicationfordevelopmentisprincipallyrelatedtocitizen’sempowerment,andintimatelyboundupwithissuesoffreedomofexpression,mediaindependenceandthecreationofahealthypublicsphere.Assuch,incommonwithdevelopmentapproachestocivilsociety,itpresentsrealchallengesinhowmainstreamdevelopmentpoliciesengageswithit.Muchcommunicationfordevelopment,forexample,isfocusedonenablingpeopletoholdgovernmentstoaccount.Inthiscontext,supportingcommunicationfordevelopmentthroughmechanismssuchasbudgetsupportorothermechanismsthatflowthroughgovernmentorgovernmentcontrolledsystemsbecomesproblematic.
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2. HOW COMMUNICATION FOR DEVELOPMENT IS CENTRAL TO THE ACHIEVEMENT OF THE MDGS
IntheintroductiontothispaperwehighlightthecharacterandscopeofC4D.InthissectionwebrieflysummarizethemainargumentsthatmakethesespheresofcommunicationfordevelopmentincreasinglyrelevanttomeetingtheMillenniumDevelopmentGoals.Thereisanunprecedentedconsensusinglobaldevelopmentpolicy,rootedintheMillenniumDeclarationandtheMonterreyConsensus(2002),re-emphasizedbytheGleneaglesG-8summit(2005),andarticulatedmostrecentlyintheParisDeclarationonAidEffectiveness.Sevensetsofissuesunderpinthisconsensus:1.Arightsbasedapproachtodevelopment;2.TheachievementoftheMDGs,anchoredwithintheumbrellaoftheMillenniumDeclaration,astheprincipalstrategicframeworkfordevelopment;3.Theimportanceofnationalownershipinformulatingandimplementingnationaldevelopmentstrategies;4.Thenecessityforgoodgovernance,particularlythecapacityofcitizens,ratherthandonors,toholdgovernmentstoaccountfordeliveryofservices;5.Recognizingtheimportanceofglobalization;6.Theimportanceofcoherence,alignmentandharmonizationofdevelopmentpolicy;7.Managingforresults.ThelasttwooftheseIssuesarecoveredinSection3and4respectively.Thissectionarguesthatlittleprogressislikelytobemadeinthefirstfivesetsofissueswithoutastrong,concertedandprioritizedfocusoncommunicationfordevelopment.Theseargumentshavebeenmadeindetailelsewhere,andareonlysummarizedhere.
Attheheartofallofthemisasimpleargumentthatthereisonecharacteristicthatmakeshumanshuman,thatunderpinsoursuccessasaspeciesanddeterminesthecharacterofourcivilizations,andthatisourcapacitytocommunicatewitheachother.Curiously,thisisalsotheoneelementalmostentirelystructurallyabsentfromthewayinwhichweorganizeandprioritizedevelopment.
A Rights Based Approach to DevelopmentMostofthedevelopmentsystemrecognizesthecentralityofhumanrightstoachievingdevelopmentgoals,andmanyUNorganizationshaveadoptedtherightsbasedapproachintheirwork.Theimportanceofrightsindevelopmenthasbeenincreasinglyacknowledgedbyeconomiststoo,manyoftheminfluencedbytheworkofNobelPrizewinningeconomist,AmartyaSen.Theapproachfocusesparticularlyonidentifyinginsocietythosewhoarerightsholdersandthosewhoareduty
bearersandfocusesonmanyconcepts–suchasaccountability,empowermentandparticipation–thatarethreadedthroughthispaper.TheOverseasDevelopmentInstitutedefinestheapproachas:
A rights-based approach to development sets the achievement of human rights as an objective of development. It uses thinking about human rights as the scaffolding of development policy. It invokes the international apparatus of human rights accountability in support of development action. In all of these, it is concerned not just with civil and political (CP) rights (the right to a trial, not to be tortured), but also with economic, social and cultural (ESC) rights (the right to food, housing, a job) 33.
Theroleofcivilsocietyiswidelyacknowledgedandincreasinglysupportedaspartofarightsbasedapproachtodevelopment,andparticipatorymethodologiesareincreasinglymainstreamedintotheworkofmostdevelopmentorganizations,includingtheUN.
Thespecificroleofcommunicationwithinthissphere,however,remainspoorlyunderstoodandlittleprioritized.Theroleofthemediainamplifyingcitizens’voices,andparticularlyofcommunitymediatoprovideplatformsforpeopletounderstandandrealizetheirrightsisonlynowattractingattention.Howdifferentcommunitiescommunicatewitheachotheracrossgeographical,ethnicorreligiousboundaries,howprocessesofcommunitychangecatalyzebroadersocietywideprocessesofsocialchange,howculturalidentitiesstrengthen,changeorcoalescetorealizerights–alltheseissuesareintimatelyboundupwithhowpeoplerealizetheirrights.Theabilityofhumanstocommunicatewitheachotherisnotagiven,asmuchdevelopmentpolicysometimesassumes.Thecapacityofpeople-particularlypeoplelivinginpoverty-toarticulatetheirperspectivesfreelyandcommunicatetheminwaysthatwillattractattentionanddemandrespectdependsoncommunicationchannelsbeingavailabletothem.Thecapacityofpeopletocommunicateamongeachother,andtoforgecommunitiesofcommoninterestacrossboundariesrequirescommunicationinfrastructures.Theabilityofpeopletounderstandwhatpoliciesareshapingtheirlivesdependsonthatinformationbeingmadeavailable,oratleastaccessibletothem.Thereislittleinthewayofasystematicapproachwithinthedevelopmentsystemthatrecognizesthesechallenges.
Delivering on the MDGsCommunicationforDevelopmentencompassesandisintegraltoallaspectsofrights-basedpro-poordevelopmentincludinggovernance,health,education,
33.Maxwell,S.(1999),Whatcanwedowitharightsbasedapproachtodevelopment?,ODIBriefingPaper
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livelihoods,genderempowermentandpovertyreduction.AssuchtheyhavedirectrelevancetotheworkofeachUNagencyinvolvedinanyofthesesectors.SomeofthemainlinksbetweencommunicationandMDGswerearticulatedin2004whenagroupofrepresentativesofbilateralandmultilateralagenciesgatheredinBellagio,Italy.[Box1onthenextpagecontainsanextractfromastatementsummarizingtheirconclusions.]
Ownership and Communication for DevelopmentAfocusontheimportanceofownershipindevelopmentpolicyisnotnew,andhasbeenthecentraltheoreticalprincipleofpovertyreductionstrategies(PRSPs)andofUNdevelopmentpolicyoverthelastsevenyears(andinthelattercasefarlonger).Theroleofcommunicationinfosteringcountryownershipiswidelyacknowledged.Ownershipthatisfeltbygovernments,butnotsharedbyitscitizenshasfrequentlyprovedtobeunsustainableandbrittle.Forcitizenstodevelopownershipofasetofpoliciestheyneedtobeinformedaboutthem,andtheyneedtodiscuss,debateandarticulatetheirperspectivesonthem.Inalandmarkstudypublishedin2005bytheWorldBankandDFID[MozzamelandOdugbemi,2005],aninsufficientfocusoninformingandfosteringpublicdebateamongcitizenswasheldsignificantlyresponsibleforlackofownershipofPRSPs,andinsomecasesfortheirrelativefailure.Theimportanceofownership,arguablythecentralpillarof21stCenturydevelopmentpolicy,restsoneffectivecommunicationfordevelopment,particularlyintheformofanengaged,informedmedia,andonmechanismsthatenablepublicstoopenlydiscussanddebateissuesandcommunicatetheirperspectivesintopublicpolicyprocesses.Thisconceptofownership,andtheimportanceofcitizen’scapacitytosubjectdevelopmentpoliciesthatconcernthemtopublicdebate,hasbeenrehearsedinmanymajorreportsondevelopment,mostnotablyintheReportoftheCommissionforAfrica.Whiletheroleofcivilsocietyinthisregardiswidelyacknowledgedandtosomeextentsupported,theroleofcommunicationisnot.
Governance and AccountabilityDevelopmentprogressisconsistentlyrecognized,notleastinrepeatedHumanDevelopmentReports,asbeingprincipallylinkedtostandardsofgovernanceandtheupholdingofrightsindevelopingcountriesratherthan[only]toaidflowsornaturalresources.AcentralconclusionofthereportoftheCommissionforAfrica,echoedrepeatedlyinotherstatementsanddeclarationsisthatmanydevelopingcountrygovernmentshavebecomemoreaccountabletodonorsthantotheirowncitizensandthatthismustchange34.
Citizenscannotholdgovernmentstoaccountunlesstheyareinformedofandhaveaccesstoinformationontheissuesthatshapetheirlives.Theroleofthemediaandofcommunicationstructuresatalllevels[community,subregional,national,regionalandinternational]isinextricablyboundupwithhowcitizensunderstandandengageindemocraticlife.Therightsandcapacitiesofpeople,particularlythoselivinginpoverty,tovoicetheirownperspectivesandhavethemheardinpublicdebate,arewidelyrecognizedascriticaltoeffectivegovernance.Thisisacentralconcernofcommunicationfordevelopment.
Globalisation and the Role of Knowledge in DevelopmentTheroleofknowledgeandnewtechnologiesinenablingcountriestoengageintheglobaleconomyhasbeenhighlightedformanyyears,particularlysincetheWorldBank’s1998WorldDevelopmentReportfocusedontheroleofknowledgeindevelopment.TheWorldSummitontheInformationSocietywasanexplicitacknowledgementofthegrowingimportanceofthedigitaldividebetweenrichandpoorcountries,andbetweenrichandpoorwithincountries.TheroleofICTsinfacilitatingeffectivemarkets,enablingcountriestointegrateintotheglobaleconomyanddevelopingmoreknowledgebasedeconomieshasbeenrepeatedlyhighlighted.SotoohavetheopportunitiesICTsprovideinenablingfarmerstonegotiatebetterpricesatmarkets,villagestoengageinnationaleconomiesandpoliciesandforcitizenstoaccessinformationonissuesandservicesthataffectthem.Theextraordinarygrowthofmobiletelephonyinparticulariswelldocumentedasitsroleinfacilitatinghorizontal,peopletopeoplecommunication,inenablingpeoplewithoutbankaccountstoholdandtransfercashvirtuallyanditsroleinpotentiallyempoweringpeoplelivinginpoverty.
34.ReportoftheCommissionforAfrica,page94,paragraph45,www.commissionforafrica.org,2005
BELLAGIO STATEMENT ON COMMUNICATION AND THE MDGs 35
In2000,theworldcommittedtotheMillenniumDeclaration,andtomeetingeightMillenniumDevelopmentGoalsby2015.In2004,prospectsforachievingthesegoalsarealreadyindoubt.
Toalargedegree,successinachievingthemrestsonparticipationandownership.Communicationisfundamentaltohelpingpeoplechangethesocietiesinwhichtheylive,particularlycommunicationstrategieswhichbothinformandamplifythevoicesofthosewithmostatstakeandwhichaddressthestructuralimpedimentstoachievingthese
35.BellagioStatementonCommunicationandtheMDGs,CommunicationforSocialChangeConsortium,2004http://www.communicationforsocialchange.org/pdf/statementmdgmeetingnov04final.pdf
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goals.However,suchstrategiesremainalowpriorityondevelopmentagendas,underminingachievementoftheMDGs.Forexample:•TheprincipalstrategyformeetingtheprimaryMDGofhalvingpovertyby2015istheimplementationofpovertyreductionstrategies.DespiteanemphasisinthePRSPprocessonparticipation,poorpublicunderstanding,limitedpublicdebateandlowlevelsofcountryownershipthreatensuccessfulimplementationofthisstrategy.Similarproblemsthreatensectorwideapproachesandbudgetsupportprogrammes.
•Thegoalofhalvingextremepovertyandhungerby2015willnotbemetunlessruralpovertyisaddressed.Knowledge,communicationandparticipationareessentialtothisprocess.Ruralpeopleneedtobeabletocollectivelyidentifyandarticulatetheiraspirations,toanalysetheoptionsavailablefromruralserviceprovidersandtotakeaction.Ruralserviceprovidersfaceobstaclestoengagingwithruralpeopletoidentifytheirprioritiesandoptions,aswellastosupportthearticulationoftheseissuestopolicymakers.Developmentagenciesandinternationaldonorsneedinformationaboutruralpovertyforpolicydevelopmentandimplementation.Inclusivecommunicationstrategiescanfacilitatetheparticipationandsharingofknowledgebetweenthesevariousstakeholders.
•ThegoalofcontainingHIV/AIDSby2015,andalliedeffortstoincreaseaccesstoantiretroviraldrugs,willnotbereachedunlessmorepriorityisgiventocommunication.SuccessfulHIV/AIDSstrategiesdependoncommunicationtohelppeopleconstructasocialenvironmentinwhichbehaviourchangebecomespossible.Throughdialogueanddiscussion,theycanconvertstigmatosupport.Wherelessthan10%ofpeopleknowtheirHIVstatus,communicationisneededtoensurethatARVsreachandbenefitthosewhoneedthem.StrategieswhichplacethevoicesofthoseaffectedbyHIV/AIDSatthecoreareessentialtoeffectcommunitybaseddemandforpreventionandtreatment.
•Thegoalofreducingchildmortalityischallengedbyincreasingratherthandecreasingchildmor-talityrates.Theglobaleffortto
eliminatepolio,forexample,hasbeenunderminedbyantiimmunizationcampaigns.Communicationstrategiesthatengagedialogueontheissuesarecriticaltosuccessfulresponsestothischallenge.Thedevelopmentofnewvaccinesislikelytofaceasimilarchallenge,rootedindistrust,poorpublicunderstandingandlackofpublicdebateifnotintroducedwithappropriatecommunication.
•HighpriorityontheDevelopmentCooperationagendaisgiventoenhancingdemocracy,enlargingparticipationandstrengtheningofhumanrightsforpoorpeople.Toreachthisgoaltheimportanceofatwowaydevelopmentcommunicationwherepoorpopulationsaregivenpossibilitiestoshareinformationandhaveachanneltovoicetheirneedscannotbeoverestimated.
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3. NEED FOR SYSTEMATIC INTEGRATION OF C4D INTO UN DEVELOPMENT PLANNING AND ASSESSMENT TOOLS AT COUNTRY LEVEL
Thispaperhassofarsoughttodemonstratethescaleandscopeofthecommunicationfordevelopmentfield,anditsrelevancetotheachievementoftheMillenniumDevelopmentGoals.Inthissection,weassesswhetherandtowhatextentcommunicationfordevelopmentiscurrentlystructured,organizedandcoordinatedatcountrylevel.
Thebriefandsimplisticresponsetothisquestionisthatitisn’t!Someofthecomponentsthatmakeupthecommunicationfordevelopmentfield,particularlyrelatedtogovernance,areincorporatedintocountryplanninglevelprocesses.Thereis,withinmanysectorspecificstrategiessuchasinhealthandeducation,asignificantemphasisoncommunication,butevenherecommunicationisoftenalowpriority(thereisincreasingrecognition,forexample,thatinthefieldofHIV/AIDS,preventionofHIVtransmission,andthecentralroleofcommunicationinHIVpreventioninparticular,hasbeenasubstantiallyneglectedpriority).Ingeneral,however,planningforcommunicationfordevelopmentisbothfragmentedandunstrategic.Someofthemainreasonsforthisarepresentedinthefollowingsections.
The “Communication” ConfusionTheproblemsfacedbyUNcountryofficesandotherdevelopmentorganisationsstartwithalackofclarityoverwhatcommunicationisandwhyitmatters.Formostorganizations,thetermcommunicationmeanssomethingverydifferenttotheconceptsdealtwithattheroundtable.WhiletheGeneralAssemblyhasadefinitionofcommunicationfordevelopment(seeSection1),thisisnotwidelyknownamongthebroaderUNordevelopmentcommunity.
Formostdevelopmentagencies,includingmanycivilsocietyorganizations,theterm“communication”isassociatedwithboostingofinstitutionalprofileoradvocacytosecurepublicorpoliticalsupportfortheorganisation’saims.Thereis,atcountrylevel,asignificantincreaseinadvocacy-relatedactivitiesandagrowingnumberofcommunicationofficersinmanyagencies,focusprincipallyonenhancingorprotectinginstitutionalreputations,visibilityoragendas.Becauseofthis,manycommunicationfordevelopmentefforts,focusedforexampleonsubjectingpolicyinitiativestoinformedscrutinyandpublicdebate,arecarriedoutbypersonnelwhoareprincipallyemployedtopromotethosepoliciesinthebestpossiblelight.
An Absence of Data Thereisalmostnodatacollectionsystemfocusedonunderstandingtheinformationneedsofpeoplelivinginpoverty(e.g.whatinformationisavailabletopeopleontheissuesthataffecttheirlives,ortheextenttowhichthemediacoversissuesofpoverty).Thereisnosystemthatgathersinformationontheopportunitiesavailabletopeopletofeedtheirperspectivesintopublicorpolicydebate.Thereisagenerallackofinformationanddataoncommunicationissuesatnationallevelandwhatinformationdoesexistisfragmentedandinsufficientlyaccessible.ArecentmajorstudybytheBBCWorldServiceTrustfortheAfricanMediaDevelopmentInitiativeexaminingmediaandmediasupportissuesin17countriesfoundthat:
“The picture is of a sector undergoing significant growth and transformation due to democratic reform and globalization, typically accompanied by economic growth and the availability of new technologies. However, even including the wealth of valuable insights available from other published research, systematic and reliable data on the sector simply does not exist. There is a lack of robust research demonstrating what is and is not working in the attempts by many players to strengthen the media. The lack of reliable information has been a factor constraining private and public (donor) investment.” 36
Itisunsurprisingthereforethatfewpolicyresponsesaremadesincethereisnosystemicmechanismfordetectingorunderstandingthecharacterorseriousnessoftheseissues.Intheabsenceofclearerdataonpeople’sinformationandcommunicationneedsandrealities,activitiesinevitablywillcontinuetobeunstrategicandinsufficientlyeffective.
The Dizzying Pace of ChangeThislackofinformationisparticularlyproblematicgiventheextraordinarilyrapidandfundamentalchangesincommunicationenvironmentsinrecentyears.Themediainmostdevelopingcountriesonly15yearsagowaslargelygovernmentowned,centrallycontrolledandpoorinquality.Widespreadmedialiberalizationhasachievedwhathasbeentermed“theotherinformationrevolution”withaflourishingofnew,dynamicmediaactors,rangingfromanexplosionofcommercialandcommunityFMradio,aburgeoningprintmediasector,andgrowingreachoftelevision,includingviasatellite.
36.AfricanMediaDevelopmentInitiative:ResearchSummaryReport,BBCWorldServiceTrust2006,Page13,http://downloads.bbc.co.uk/worldservice/trust/pdf/AMDI/AMDI_summary_Report.pdf
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Themediaisrecognizedashavingplayedaleadingroleinsocialandpoliticalchangeinmuchofthedevelopingworld:independentprintmedia,forexample,hasbeenacknowledgedinternationallyforexposingcorruptioninKenyaintheGithongoaffair37;ashastheroleofcommunityradioinplayingacentralroleinfacilitatingpeacefuldemocratictransitioninNepal38.
Newtechnologies–particularlythemobilephoneandtheinternet-aretransformingeconomic,politicalandsocialsystems.Dynamicandpowerfulinterrelationshipsarebeingformedbetweenoldcommunicationtechnologies(suchasradio)andnewtechnologiessuchasmobiletelephonyandinternet.Theeffectsofthesechangesonpeople’slives,particularlypoorpeople’slives,arelittleunderstoodinthedevelopmentsystem,notleastbecauseithaslittlemeansofgatheringdataorevidenceofthesechanges.
A Multisectoral Issue but No Learning or Planning Across SectorsManycommunicationfordevelopmentissuescutacrossdifferentdevelopmentsectorsandtheUNorganizationsthatcoordinatethem,andyetthereisnoclearmechanismforsharinganalysis,learningorexperiencesonthesesectors,ordevelopingwhatcouldbehighlyimpactfulpolicyinitiativesonthem.Improvingaccesstoinformationfromgovernment,forexample,cutsacrossallsectors.Sotoodoestheroleofcommunitymedia,whichhasdemonstratedimpactinthefieldsofgovernance[holdingauthoritiestoaccountanddeepeningdemocracy],empowerment[providingavoicetothepoorest],health[demandingbetterservicesincluding,forexample,ARVsinHIV/AIDS],livelihoods[improvingagriculturaltechniquesandmarketinformation],education,emergencies,conflict,habitat,culturalexpressionamongmanyothers.
Communitymediaisconsistentlyhamperedbythelackofanenablingpolicyenvironmentinmanycountries.AcollectiveUNanalysis,assessmentandperspectiveonsuchanissueatcountrylevel,andajoineduppolicyapproachandengagementwithgovernmentscouldplayanimportantrole.
Who Knows What is Going On?Thereisverylittlemappingofcommunicationofdevelopmentinitiativeswithincountriessohardevidenceonhowwellorganized,relevantandstructuredsuchinitiativesareatcountrylevelisdifficulttodetermine.Manymediaandcommunicationorganizationsreportsubstantialduplicationoffundingeffortatcountrylevel,whileatthesametimefundsarenotavailableforproblemsclearly
identifiedbypractitionersontheground.Biggerproblemsincludeanabsenceorverylowprioritizationofcommunicationfordevelopmentprogramminginmanysectors,noclearfundinglines,andnomechanismtoprioritizeitinnationalplanningsystems.
The Lack of Champions and Capacity: Who Should Know What Is Going On?Communicationfordevelopmenthasfewchampionsinthedevelopmentsystemandsubstantiallackofclarityoverwhoshouldhaveresponsibilityforcoordinatingthissphere.Thereisextremelylimitedhumancapacityandexpertiseinthisfieldatseniororevenmidlevelswithinthedevelopmentsystem.Forthesereasons,thereareverylimitedmechanismsforensuringthatrelevantissuesandquestionsareraisedinnationalplanningprocesses.Organizationalresponsibilitiesandcapacitieswithinthedevelopmentsystemareunclearandinsufficient.
The Long Term Nature of Impact Mostcommunicationfordevelopmentinitiativestakealongtimetoachieverealimpactandcomeastheconsequenceofalongterminvestmentincapacityatcountrylevel.Strengtheningacommunitymediasector,creatingacultureandprofessionalismofpublicinterestjournalism,seeingthebenefitofpropoorICTstrategies,usingcommunicationtoempowerandhelpshiftsocialnormsinsociety–allofthesearelongtermprojects.ThecentralroleofcommunitymediainthepeacefultransitiontodemocracyinNepalwastheresultofmorethanadecadeofwork.
SitesliketheCommunicationInitiative39haverevealedtheextraordinaryrichness,diversityandscaleofcommunicationfordevelopmentactivitiesbeingundertakinginmanydevelopingcountries.However,mostoftheseoperateinaclimatewheremostsupportforthefieldisshortterm,projectdelineated,sometimesdonordriven,fragmented,andunsuitedtobuildingthecapacityofnationallevelactors.
Distance from GovernmentMostdevelopmentfunding,andvirtuallyallbilateralandmultilateralagencies,workthroughdevelopingcountrygovernments.Mostcommunicationfordevelopmentactivities,particularlyinthemediafield,needtooperateindependentlyfromgovernments.Thispresentsmajorandarguablyincreasinglychallengesofhowsuchactivitiescanbeprioritizedindevelopmentaction.TheneedformanycommunicationandmediafordevelopmentactivitiestomaintainadistanceandcapacitytocriticizeandholdgovernmenttoaccountcanalsopresentsignificantchallengestoUNorganizations.
37.PoliticalGovernance,CorruptionandAid,Speech,SpeechbyHilaryBenn,“February2006,http://www.royalafricansociety.org/index.php?option=com_content&task=view&id=243&Itemid=24238.DemocracyinNepal:theroleofCommunityRadio 39.www.comminit.com
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4. HOW COORDINATION CAN BE BEST BE IMPROVED AT COUNTRY LEVEL THROUGH THE UNDAF/CCA PROCESS
Inthenextsection,wemakesomerecommendationsonhowcommunicationfordevelopmentcanbebetterincorporatedwithinCCAandUNDAFplanningprocesses.Inthissection,weprovideabackgroundtothisbyexplainingbrieflyhowtheprocesscurrentlyworks,andhowcurrentUNreformsarelikelytochangeit.
The Current CCA/UNDAF ProcessTheprincipalmechanismthattheUNcurrentlyusestocoordinatedevelopmentworkatcountrylevelistheUNDevelopmentAssistanceFramework(UNDAF),whichisdevelopedwithnationalgovernmentsandinconsultationwithcivilsocietypartners.Itisdesignedtoprovidethefoundationforalldevelopmentactioninthecountry.
TheUNDAF–articulatedintheCountryProgrammeActionPlan-isdevelopedonthebasisofaCommonCountryAssessment(CCA),ananalysisofthedevelopmentproblemsfacingacountry,againsomethingthatisusuallycarriedoutwiththenationalgovernment.TheCCA/UNDAFisdesignedtobemutuallycomplementarytoandconsistentwiththePovertyReductionStrategy(PRSP),aprocessmostoftenledbytheWorldBank.TheUNDAFisimplementedundertheaegisoftheUNDevelopmentGroup(whichbringstogetherallUNagencies)andtheUNResidentCoordinatorSystem,usuallymanagedbyUNDPthroughUNcountryteams.AllUNprojectsandprogrammesaredesignedtooperatewithintheframeworkoftheUNDAF.ThewholeprocessleadstothedevelopmentofaResultsMatrix,againstwhichperformanceisjudged.OnthebasisoftheResultsMatrix,anUNDAFMonitoringandEvaluationplanisdeveloped,andtheMatrixalsounderpinsanUNDEFEvaluation,orjointUNreviewwhichisconductedwithnationallevelpartners.
Increasingly,ifanissueisnotprioritisedwithineithertheCCA/UNDAFprocess,orthePRSPprocess,itisunlikelytobeprioritisedwithinnationaldevelopmentprogrammingbyanybilateral,multilateralorgovernmentalagency.Asmoredonorscommitthemselvestoworkingwithinthissystem,thisrealitywillintensify.Thisclearlyhasmajorimplicationsforcommunicationfordevelopment.
TheUNDAF/CCAsystemwereinitiallyusedin1999andrevisedin2002totakeintoaccounttheUNMillenniumDeclaration,andagainin2004totakeintoaccountlessonslearned.TheyaretheprincipalstrategicplanningtooloftheUNatcountrylevelforachievingtheMDGs.Thesystemisunderrevisionagainnow(seebelow).TheUNDAFisdesignedtoberootedintheCommonCountryAssessment.
AccordingtotheUN’sGuidelinesforUNCountryTreamspreparingaCCAandUNDAF(UN2004),thisanalyticalprocessidentifiesthe:
“...root causes of the major development challenges faced by the country. In doing so, it indicates who are the most vulnerable, disaggregating appropriately to capture the extent and location of poverty and highlighting gaps in capacity at various levels. As such, the analytical framework may be useful not just for the UN Country Team’s preparation for the UNDAF, but also for other national development interventions, like the PRSP. Conversely, if other comparable analyses already exist, the CCA should complement rather than duplicate these.”
TheUNDAFrepresentsanagreementwiththegovernmentoftherelevantcountryandisdesignedtoberootedintheCCA.Again,accordingtheGuidelines,
“Central [to the UNDAF] is the agreement of the Government and the UN Country Team that the UN focus on three to five priorities selected from these challenges identified through the CCA process. The selection of these top priorities should be driven by the collective comparative advantage of the UN system in addressing selected challenges identified in the CCA, as seen by the government, the UNCT and its other partners. In short, where can the UN system, seeking development results together, make the biggest difference? These three to five priorities are reflected in a results matrix….to guide and monitor progress.”
Clearly,eachUNagency(particularlyUNDP,UNFAP,UNFPA,UNICEFandWFP)developsitsowncountryprogrammestomeetneedsinitsownsector,butundertheUNDAFsystemthesearemeanttofeedintoandbeconsistentwiththeUNDAF.ThetimingoftheUNDAFisalsomeanttobeinlinewithnationaldevelopmentplanningcycles,includingPRSPswhereappropriate.TheCCAandUNDAFaremandatoryinallcountrieswherethereisaUNharmonizedprogrammecycle-–whichisallcountrieswheretwoormoreUNagenciespresentmultiyearcountryprogrammestotheirrespectivegoverningbodies.
How Do Communication for Development Issues Feature in CCA/UNDAF Process?TomakeanassessmentofhowthecurrentCCA/UNDAFprocessencompassescommunicationfordevelopmentissues,it’simportanttounderstandhowtheanalysisfortheprocessisundertakenandwhereinformationisderived.Itisclearthatcommunicationfordevelopmentwillonlyfeatureinnationaldevelopmentprogrammesifquestionsrelatedtoitareaskedinthecountryassessmentprocess.Thereareseveralcomponentsofthecurrentguidelineswhicharerelevanttocommunicationfordevelopment.
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AccordingtoUNguidelines:“The CCA draws on national monitoring and analytical processes, and on complementary assessments such as national human development reports, the economic and sectoral work of the World Bank and specialised agencies and on reports prepared in compliance with international treaties and country-specific observations and recommendations of the human rights mechanisms of the UN system. The CCA process and the CCA product should be of such a quality that they obviate the need for country macro analyses by individual UN agencies as part of their preparations for country programmes and projects”
Amongtheareasmostrelevanttocommunicationfordevelopment,theCCAprocessisdesignedtoresultin(thisisnotacompletelist):•Astrategicanalysisthatidentifiestherootcausesandgenderdifferentiatedandgroupspecific(minorities,indigenouspeoples,displacedpersonsetc)impactofpovertyandotherdevelopmentchallenges;•Theidentificationofrightsholderstomakeclaims,anddutybearerstomeettheirobligations(thisincludesananalysisof“people’sawarenessoftheirrightsandcapacitiesofrightsholderstomakeclaimsandrealizetheirrights;andtheroleandcapacityoftheStateandotherdutybearerstomeettheirobligations”[italicsinserted]).AHumanRightsBasedApproachtodevelopmentunderpinsmanyUNDAFs;•Ananalysisofopportunitiesforandobstaclestofree,activeandmeaningfulparticipationinnationalgovernanceanddevelopmentprocessesandoutcomes;AccordingtoUNguidelines,“The quality of the CCA and hence the relevance of subsequent country programming depends on the depth and quality of the analysis… The analysis must clearly identify underlying and root causes of the selected development challenges and national capacities to address them.… problem areas that are not analysed in detail (for instance, owing to a lack of immediately available information) should be earmarked for inclusion in the future research agenda of national institutions and authorities and development partners.”
Furthermore,principlesofparticipationfromcivilsocietyandothernonpublicactorsarealsointegratedintotheUNDAF/CCAprocess.
Ononelevel,therefore,manyoftheissueshighlightedascentraltoCommunicationforDevelopmentareconsistentwiththeexistingCCAprocess,includingafocusonahumanrightsbasedapproachtodevelopmentandthecentralityofparticipation.CCAsfrequentlymentionthemediasituationandmakereferencetotheroleofInformationandCommunicationTechnologies.ItisalsoimportanttoacknowledgethatCCAsarenotlengthydocumentsdesignedtocovereverydevelopmentissuein
detail.TheCCAforIndia,lastcompiledin2000,forexampleis58pagesinlengthand,incidentally,hasanentireboxonTheRighttoInformation:PeoplesInitiativeGathersMomentum.
Despitethis,andasdetailedabove,fewwouldarguethatcommunicationfordevelopmentissuesareprioritisedinUNDAFs,letaloneprioritisedintheirimplementation.Whilemediaissuesarementioned,sometimesprominentlyinthecontextofgovernance,therearefewsignsofasystemicsetofquestionandanalyses.The2006UNDAFforUganda,acountrywithoneofthemostcomplexanddynamicradioenvironments,doesnotmentionradioorbroadcastingormedia(exceptinanadvocacycontext).Togo,ontheotherhand,explicitlyhighlightstheimportanceofruralradioinits2006UNDAF.Clearly,theUNDAF/CCAprocessisdesignedatitshearttobecontextspecific.However,theproblemshighlightedinSection3ofthispaperclearlysuggestsomeveryspecificproblemsinenablingcommunicationfordevelopmenttobehighlightedadequatelyintheUNDAF/CCAsystem.
How the UNDAF/CCA System May Evolve in the FutureThereiscurrentlyunderwayaprocessofUNsystemwidereform,andalsoreformswithinspecificagencieswhichmaychangethecurrentUNDAF/CCAprocess.Suchprocessesarelikelytofurtherintensifytheemphasiswithinthedevelopmentsystemonincreasedcoordinationandharmonisationatcountrylevel.InMarch2005,morethanonehundreddonors,internationalagenciesanddevelopingcountrygovernmentsmetinParisandagreedtoimplementtheParisDeclarationonAidHarmonisation.Thisdeclarationcommitsallactorstoabidebykeyprinciples(ownership,alignment,harmonisation,managingforresultsandmutualaccountability)andcommittingdonorstochannellingsupportthroughcountriesowninstitutionsandprocedures.Thedeclarationwasmadeagainstabackgroundofrapidlyincreasingaidflows,fromaround$60billiionayearthroughthe1990sto$100billionin2005andaprojected$130billionby2010(BurallandMaxwell,2006).Thevastmajority–andprobablyanincreasingproportion–ofthisfundingislikelytobedeterminedandspentthroughcountryplanningsystems.InNovember2006,theHighLevelPanelonUNSystem-WideCoherencepublisheditsreport,DeliveringasOne(UN2006).ThereportfocusedheavilyonhowtheUNisandshouldbeorganisedatcountrylevelandmadeimportantrecommendationsforstrengtheningdevelopmentcoordination.Itrecommended:
•theestablishmentofunifiedUN“countryteams”withoneleader,oneprogrammeandonebudgetaryframework.ThisrepresentsasubstantialintensificationofthecurrentCCA/UNDAFprocess;•thatthis“OneUN”shouldbebasedonaconsolidationofalloftheUN’s
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programmeactivitiesatthecountrylevel,wherethecountrywishesit;•substantiallystrengtheningtheroleoftheResidentCoordinator,selectedonmeritandthroughcompetition;•theroleofUNDPtochange,withitsoperationalworktobefocusedonpolicycoher-enceandpositioningoftheUNcountryteam,leadingtheUN’sworkongovernance,butwithdrawingfromothersector-focusedpolicyandcapacityworkbeingdonebyotherUNentities.
ThispanelhasonlyrecentlyreportedanditisnotyetsurehowmanyofthePanel’srecommendationswillbetranslatedintopolicy,butitdoesseemclearthatthese,combinedwithothertrendsandprocesses,countrylevelplanningprocesseswillbegrowingstillfurtherinimportanceindeterminingdevelopmentpriorities.CommunicationforDevelopmentiscurrentlynotasignificantcomponentofnationallevelplanningprocessesandthisisarguablyamajorfactorinitsbeingarelativelylowpriorityindevelopmentaction.Giventhemanychangescurrentlyoccurring,itseemslikelythatunlessbettersystemsaredevelopedforintegratingcommunicationfordevelopmentintonationalplanningprocesses,suchmarginalisationcanbeexpectedtoincrease.
5. RECOMMENDATIONS AND PROPOSALS FOR INCORPORATING C4D INTO THE UNDAF/CCA AND OTHER COUNTRY LEVEL PLANNING PROCESSES
Summary of RecommendationsAseparatepaper,preparedbyUNESCO,hasmadeaseriesofrecommendationsforconsiderationbythe10thUNRoundtableforCommunicationforDevelopment.Thispaperinessenceagreeswiththoserecommendationsforactionatcountrylevel–andfocusesonsixmainsetsofissuesandemergingrecommendations:A.AtHQlevel,UNDGtakesresponsibilityforensuringthattheCCAguidelines–andotheremergingassessmentandplanningmechanisms-includeprovisionsforconductinginformationandcommunicationneedsassessments.B.AtcountryofficeleveltheUNResidentCoordinator,indiscussionwithUNESCO,takesresponsibilityforensuringthatinformationandcommunicationneedsassessmentsareincorporatedintoCCAs;andthatanalysisofthefindingsareincorporatedintoUNDAF.C.TheUNResidentCoordinator,indiscussionwithUNESCO,establishesandchairsanongoingcoordinationmechanismforcommunicationfordevelopment.Thismightinclude:•anannualmeetingatnationallevelandbiannualorquarterlymeetingsatsub-nationallevel,bringingtogethermultilateralagencies,bilateralagencies,government,civilsocietyorganizations,mediaandmediasupportorganizationsaswellascommunicationfordevelopmentorganizations;•jointpolicyactionbetweenUNagenciesonspecificcommunicationissues(e.g.freedomofexpressionlegislation,enablingbroadcastingenvironmentsforcommunitymediaetc);•meetingpreparedbyaclearscopingstudyonwhatishappening(whatisbeingsupported)inthefieldofcommunicationfordevelopment;•recognitionthatthepurposeisnottoexercisecontrol,buttocreateanenvironmentforensuringcomplementarity,learning,cooperation,creativityandpeerreview.D. MainstreamingcommunicationfordevelopmentwhilstalsobuildingstrongercapacityanddedicatedstaffingwithinUNoffices.E. DevelopmentofaframeworkandparametersforsupportingnationalpartnerstoagreeoncommonindicatorsagainstwhichworkofCommunicationforDevelopmentcanbemeasured[withpossiblelinktoUNDP’sworkonNationalIndicators].F. Developingsupportmechanismsthatencourageinnovationandindependenceincommunicationfordevelopment.
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Eachofthesewillbeexplainedinmoredetailinthesectionsfollowingbelow.A. At headquarters level, UNDG takes responsibility for ensuring that the cca guidelines include provisions for conducting information and communication needs assessmentsThefoundationforbetterdevelopmentactioninthisfieldneedstoberootedinamuchimprovedassessmentoftheinformationandcommunicationneedsandrealitiesofvulnerablegroups40.Thisisoneofthemostpoorlyunderstoodareasofdevelopmentaction,andtheintensificationofresearchandanalysisneedstobeurgentandsubstantial.TheCCAprocessdoesnotcurrentlyencourageasystematicapproachtotheseissues.
ItissuggestedthattheCommunicationforDevelopmentRoundtablerecommendsthatatHeadquarterslevel,theUNDevelopmentGrouptakesresponsibilityforensuringthattheCCAguidelines–andtheothercountryassessmentmechanismsthatarelikelytoemergethroughtheUNreformprocess-includeprovisionsforconductingparticipatoryinformationandcommunicationneedsassessments.
B. At country level, resident coordinators to ensure information and communication needs assessments included within the cca/undaf and communication for development coordination.CurrentUNreformproposalsenvisageanincreasinglycentralroleinaidharmonizationandcoordinationforResidentCoordinators.TheResidentCoordinatorhastheauthorityandcapacitytoensurethatcommunicationfordevelopmentissuesaremoreeffectivelyintegratedandprioritizedwithintheCCA/UNDAFprocess.
ItissuggestedthattheRoundtablemakearecommendationthattheResidentCoordinatortakesresponsibilityforensuringthatinformationandcommunicationneedsassessmentsareincorporatedintotheCCA.
Thisendorses,augmentsandcomplementstheexistingproposalsfromUNESCOonimprovedneedsassessments,particularlytheuseandfurtherdevelopmentwithotheragenciesofparticipatoryinformationandcommunicationauditmethodologieswithintheCCA/UNDAFprocesswhicharealreadybeingpilotedbyUNDP.
ItisalsoproposedthattheResidentCoordinatorberesponsibleforensuringthattheneedsandinterventionsidentifiedthroughtheCCA/auditsprocessesbeappropriatelyprioritizedwithintheUNDAFandalliedplanningprocesses.
C. Coordination of communication for development at country level through the resident coordinatorThereiscurrentlynosystemforeffectivemappingor,whereappropriate,coordinationofcommunicationfordevelopmentinitiativesatcountrylevel.Greatercoordination,coherenceandprioritizedsupportinthisareaisessential.ItissuggestedthattheCommunicationforDevelopmentRoundtablerecommendsthattheUNResidentCoordinator,indiscussionwithUNESCO,establishesandchairsanongoingcoordinationmechanismforcommunicationfordevelopment.Suchamechanismmightinclude:
•Aregular,perhapsannual,mappingprocesscapturingcommunicationfordevelopmentactionastheyrelatetotheMDGs,particularlythosesupportedbymultilateralandbilateraldevelopmentagencies.Itwouldfocuscentrallyontheextenttowhichmediaandcommunicationactionwasreflecting,amplifyingandsupportingtheperspectivesofpeoplelivinginpoverty.Suchaprocesscould,whererelevant,bestructuredaccordingtothedifferentspheresofcommunicationfordevelopmentsetoutinSection1ofthisreport(communicationasgovernanceandparticipation;communicationinsupportofspecificsectors,andknowledgeandinformationandcommunicationtechnologies).Thiscouldfeedintoanannualmeeting(nextbulletpoint).
•AnannualCommunicationforDevelopmentmeetingatnationallevel(augmentedinsomecountriesbymeetingsatsub-nationallevelwhereappropriate)bringingtogethermultilateralagencies,bilateralagencies,relevantgovernmentdepartmentsatnationalandsubnationallevels,communicationfordevelopmentorganizations,civilsocietyorganizationsandmediaandmediasupportorganizationsItspurposewouldbetomapanddiscusscommunicationandmediatrends,improvelearning,developsynergiesbetweenorganizations,reduceduplication,subjectinitiativestopeerreviewandidentifygapsinprovision.
•Otherconsultationandparticipationprocessescouldbedevelopedtosubjectcommunicationfordevelopmentstrategiesandinterventionstoanalysisandcommentfromorganizationsandpartnerswhohaveadirectlinkto/legitimateconstituencywithinthepoorestgroups.
•ACommunicationforDevelopmentpolicyforumfocusedondiscussionandidentificationofjointpolicyactionbetweenUNagenciesonspecificcommunicationfordevelopmentissues(e.g.freedomofexpressionlegislation,enablingbroadcastingenvironmentsforcommunitymedia,enablingpolicyenvironmentsforICTsetc).40.UNDP’sPracticalGuidanceNote‘CommunicationforEmpowerment:developingmediastrategiesin
supportofvulnerablegroups’outlinesamethodologyforinformationandcommunicationassessment.
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•Identificationofmechanismsformainstreamingofcommunicationfordevelopment(seenextbullet).
Suchamechanismwouldoperateintherecognitionthatitspurposeisnottocontrolorcorralallcommunicationfordevelopmentactioninacountry,buttocreateanenvironmentforensuringcomplementarity,learning,cooperation,creativityandpeerreviewSuchamechanismcouldinmanycasesbestbeestablishedaspartofamulti-stakeholderpartnership..
D. Mainstreaming communication for development whilst at the same time building human capacityAsoutlinedinthisreport,communicationfordevelopmentisdiverse,complexandisintegraltoalldevelopmentsectors.Thereareconsequentlystrongargumentsformainstreamingcommunicationfordevelopmentandensuringthatcommunicationfordevelopmentconsiderationsarestructurallyconsideredwithinvirtuallyalldevelopmentprogramming.TheproposalsrelatedtotheCCA/UNDAFprocessshouldgosomewaytoachievingthis.
However,therearealsostrongargumentsagainstmainstreaming.Theexperienceofmainstreaminginothersectors,suchasgenderand(intheearly1990s)HIV/AIDS,suggestthattheissuesuffersfromhavingnochampions,nodedicatedhumancapacityandnoconcertedprogrammingattentionorprioritization.Itcanbecomeinsteadatokenistictickboxandthenecessaryadaptationtorapidchangesuffers.Forcommunicationfordevelopmentprogrammingtobeproperlyprioritizedandimplementedatnationallevel,specific,qualifiedanddedicatedstaffneedtobeappointedatnationallevel.Suchhumancapacityisalmostentirelylackingatpresent.Whereitdoesexistitoftenresidesasasideactivityofcommunicationandadvocacyofficersoratajuniorlevel.Itisproposedthatsignificant,seriousandsufficientlyseniorleveldedicatedstaffwithanunderstandingandexperienceincommunicationfordevelopmentbeappointedwithinthedevelopmentsystematcountrylevel.
E. Development of common indicators against which work of communication for development can be measured ArecommendationshouldbemadeforthedevelopmentofaframeworkandparametersforsupportingnationalpartnerstoagreecommonindicatorsagainstwhichworkofCommunicationforDevelopmentcanbemeasured.ExamplesofsuchindicatorsarealreadyeffectivelyoutlinedintheUNESCOreport(Annex,Section7).ItisproposedthatboththeprocessandframeworkdevelopedthroughUNDP’sGovernanceIndicatorsprojectshouldbedrawnonwhererelevant.SomeofthemostrelevantindicatorsdrawnfromthisprojectarereproducedinAnnex1.
F. Support mechanisms that encouraging independence and innovation in communication for developmentCommunicationfordevelopmenthasprovenacomplexarenafordevelopmentsupport.Itisfastmoving,cutsacrossdifferentsectorsand,likecivilsociety,largepartsofitarebestsupportedinwaysthatmaintainitsindependencefromgovernmentandfromotherdevelopmentauthorities.ThedecisionbytheUKDepartmentforInternationalDevelopmentin2006tocreateaspecificmechanism–a£100millionGovernanceandTransparencyFund-tosupportpluralmediaandcivilsociety,wasinpartarecognitionthatexceptionalsupportstructuresarenecessarytosupportcomponentsofthissector.Akeybalancefordevelopmentinstitutionsandforcommunicationfordevelopmentpractitionerswillbetobalancetheneedforgreatercoherenceandharmonizationofdevelopmenteffortswhilstensuringtheindependenceandinnovationthatthesectorpossessesatitsbestismaintained.Itisrecommendedthatforrelevantcommunicationfordevelopmentactivities(particularlyinthefieldofgovernance),specificmechanismsoutsideofbudgetsupportandalliedsystemsneedtobedevelopedandsupporttothemincreased.
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ANNEX I: BIBLIOGRAPHY
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UNECA(2006)TheCaseforStrengtheningAfrica’sMedia:FrameworkandProposals-Draft,StrengtheningAfricanMediaInitiative(STREAM),UNECA
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UNFPAetal2001.CommunicationforDevelopmentRoundtableReport–FocusonHIV/AIDScommunicationandevaluation.Reportofthe8thInInter-AgencyRoundTableonCommunicationforDevelopment,Managua.
WorldDevelopmentReport(1998),KnowledgeforDevelopment,OUP/WorldBank
ANNEX II: ACCESS TO INFORMATION AND THE MEDIA: GOVERNANCE INDICATORS
SelectedfromMeasuringDemocraticGovernance:AFrameworkforselectingpro-poorandgender-sensitiveindicators,UNDP,2006,pages29-31
11. Access to information and the media
��.� Definition and scope of the areaAwell-informedcitizenryisakeycomponentofdemocraticgovernance.Accesstoinformationisfundamentalinbolsteringdemocraticprinciplesofopenness,transparencyandaccountabilityandineradicatingpoverty.Informationcanempowerpoorcommunitiesandstrengthentheirpositionwhendealingwithgovernment.Themedia(especiallypress,radioandtelevision)playakeyroleinprovidingcitizenswithinformation.
��.� Key questionsManydesirableattributesofthemediainademocracyandoftherighttoofficialinformationarebothgender-andpoverty-blind,e.g.afreeandindependentpress,journalistsabletoworkwithoutharassmentorintimidation,citizensprotectedfromunwarrantedpressintrusion.Inordertounderstandwhatismeantbyapro-poor,gendersensitivemediaorrighttoinformationitisnecessaryto:•Reviewwhatinformationpoormenandwomenrequiretoparticipateinpublicdecision-makingprocessesandachievefullcitizenship.•Resolvehowthisinformationisbestmadeavailableandaccessibletothemindifferentnationalandlocalcontexts.•Assesswhetherthemediaprovidethisinformationinanappropriatefashion.Pro-poor•Ifrighttoofficialinformationlegislationisinplace,arepoorpeopleusingit?•Isofficialinformationmadeavailableinformthatisuseablewithlowlevelsofliteracy?•Isitpossibletowaiveorreduceanychargesforinformationinordertoensurethatpoorpeoplearenotblockedfromaccessinpractice?•Isinformationproducedinaformthatisusefultothepoorintermsofcontentandaccessibility?•Hasthegovernmentdevelopedspecialprogrammestoraiseawarenessoftherighttoinformationamongmarginalisedgroups?(i.e.theSouthAfricanandIndianrighttoinformationlawsexplicitlyrequirepubliceducationprogrammestobedevelopedwhichtargetmarginalisedgroups.)•Dosystemsexistforprovidinginformationinruralareasthroughcommunityradio,
66 67
mobilephoneprovisionorlocalinternetaccesspoints?•Domechanismsexistthatenablethepoortoarticulatetheirowninformationrequirementsandneeds?•Dopublicofficialstraveltoruralareastoanswerquestionsandparticipateindiscussion?•Whichmediaareusedbythepoorassourcesfornewsandinformation?•Dothepoortrustthemedia?•Ofthoselanguagesusedbythepoor,whatproportionservesasthemeansofcommunicationforatleastonedailynewspaper/radio/TVprogramme?Gendersensitive•Ifrighttoofficialinformationlegislationisinplace,isitbeingusedbymenmorethanwomen?•Isinformationprovidedthatisrelevanttowomen?Issuchinformationavailableinawaythatallowswomenaccesswithoutbeingcontrolledbymen?•Arethegenderimplicationsofofficialinformationmadeexplicit,i.e.budgetaryinformationshouldrevealhowtaxationandpublicexpenditureaffectmenandwomendifferently?•Isofficialinformationtransparentaboutdiscriminationagainstwomenandmarginalisedgroups,e.g.bydemonstratinganawarenessofhowthesegroups’needsare,orarenot,beingaddressed?Thisisparticularlyimportantinsectorslikehealthandeducation.•Domechanismsexistthatenablewomentoarticulatetheirowninformationrequirementsandneeds?•Whatproportionofpress,radioandTVjournalistsatnationallevelarewomen?•Whatproportionofseniormediaexecutivesatnationallevelarewomen?•Whatistheextentofmediacoverageofissuesthatmightbeofdirectinterestorrelevanttothesituationofwomene.g.childandreproductivehealth(includingnutritionandaccesstocleanwater);domesticviolence.UNDPhasproducedspecificguidancefordevelopingandselectingindicatorsrelatedtotheeffectiveimplementationofarighttoinformationandtheimplicationsforthepoorandwomen,AGuidetoMeasuringtheImpactofRighttoInformationProgrammes(2006)whichcanbeaccessedattheUNDPOsloGovernanceCentre’swebsiteathttp://www.undp.org/oslocentre/.
ILLU
STR
ATIV
E P
RO
-PO
OR
IND
ICAT
OR
S
P
OSS
IBLE
DAT
A S
OU
RCE
S
Pove
rty-
stat
us
disa
ggre
gate
d1.
Per
cent
age
ofp
oor
hous
ehol
dsp
osse
ssin
ga
radi
oan
d/or
TV.
2.P
erce
ntag
eof
poo
rho
useh
olds
pos
sess
ing
am
obile
pho
ne.
3.P
erce
ntag
eof
sch
ools
inp
oor
dist
ricts
with
ac
cess
toth
eIn
tern
et.
4.N
umbe
rof
requ
ests
for
offic
iali
nfor
mat
ion
from
pe
ople
inp
oore
rar
eas
ofth
eco
untr
y.
1.U
seo
frad
io,T
V,m
obile
pho
ne,I
nter
neta
ndp
ress
as
info
rmat
ion
sour
ces
byth
epo
or.
2.C
over
age
byth
em
edia
ofi
ssue
sth
ata
ffect
the
poor
.3.
Evi
denc
eth
ats
tate
inst
itutio
nsa
rea
dopt
ing
info
rmat
ion
and
com
mun
icat
ion
mec
hani
sms
that
ar
ere
leva
ntto
the
poor
whe
nm
akin
gin
form
atio
npu
blic
abo
utth
eir
polic
ies
and
actio
ns.
4.E
vide
nce
that
the
regu
latio
nse
nabl
ing
right
to
info
rmat
ion
don
otre
stric
tacc
ess
byp
oor
peop
le,
e.g.
hig
hfe
esfo
rac
cess
too
ffici
alin
form
atio
n.
5.E
vide
nce
ofa
war
enes
sra
isin
gpr
ogra
mm
eso
nth
erig
htto
info
rmat
ion
targ
eted
atp
oor
peop
le.
1.P
erce
ntag
eof
poo
rho
useh
olds
po
sses
sing
ara
dio
and/
orT
V.2.
Per
cent
age
ofp
oor
hous
ehol
ds
poss
essi
nga
mob
ilep
hone
.3.
Per
cent
age
ofs
choo
lsin
poo
rdi
stric
ts
with
acc
ess
toth
eIn
tern
et.
4.N
umbe
rof
requ
ests
for
offic
ial
info
rmat
ion
from
peo
ple
inp
oore
rar
eas
of
the
coun
try.
1.S
urve
yda
tam
atch
edw
ithc
ensu
sda
ta2.
Qua
litat
ive
anal
ysis
ofm
ains
trea
m
med
iap
rogr
amm
ese
spec
ially
thos
eth
at
are
mos
tuse
dby
the
poor
3.C
SOa
sses
smen
tsa
ndq
ualit
ativ
e/
quan
titat
ive
anal
ysis
ofm
ajor
info
rmat
ion
shar
ing
initi
ativ
es4.
Qua
litat
ive
anal
ysis
oft
hele
gisl
atio
nan
dgu
idel
ines
for
prov
idin
gac
cess
to
info
rmat
ion
5.A
dmin
istr
ativ
eda
taa
ndC
SOre
port
s,
surv
eyd
ata
Spec
ific
to th
e po
or
68 69
ILLU
STR
ATIV
E P
RO
-PO
OR
IND
ICAT
OR
S
P
OSS
IBLE
DAT
A S
OU
RCE
S
Impl
icitl
y
pro-
poor
1.E
xist
ence
ofl
egis
latio
npr
ovid
ing
arig
htto
offi
cial
in
form
atio
nan
dits
effe
ctiv
eim
plem
enta
tion.
2.E
xist
ence
ofC
SOs
actin
gas
info
rmat
ion
inte
rmed
iarie
sfo
rth
epo
or,i
.e.t
rans
form
ing
info
rmat
ion
for
the
poor
by
usin
gap
prop
riate
tool
s
1.P
erce
ived
info
rmat
ion
defic
itab
outp
oliti
call
ife
and
actio
nso
fthe
gov
ernm
enta
mon
gth
epo
or.
2.P
erce
ptio
nof
whe
ther
the
mai
nstr
eam
med
ia
cove
ris
sues
that
are
ofi
nter
esta
ndre
leva
ntto
the
poor
.3.
Lev
elo
ftru
stin
Sta
teB
road
cast
ing
Cor
pora
tion
and
othe
rm
edia
am
ong
the
poor
.
1.Q
ualit
ativ
ean
dqu
antit
ativ
ean
alys
is
ofn
atio
nall
aws.
Fre
edom
.org
(ww
w.
priv
acyi
nter
naito
nal.o
rg)
mai
ntai
nsa
gl
obal
dat
abas
eof
cou
ntrie
sw
ithr
ight
to
info
rmat
ion
legi
slat
ion
2.A
dmin
istr
ativ
eda
tao
nnu
mbe
rof
C
SOs
regi
ster
edw
iths
uch
am
anda
te,
inte
rnat
iona
land
nat
iona
lqua
litat
ive
repo
rts
1.S
urve
yda
ta(A
nnex
1[1
1])
2.S
urve
yda
ta3.
Sur
vey
data
(Ann
ex1
[12]
)
Chos
en b
y po
or
ILLU
STR
ATIV
E G
END
ER S
ENSI
TIVE
IND
ICAT
OR
S
PO
SSIB
LE D
ATA
SO
UR
CES
Sex
disa
ggre
gate
d1.
Per
cent
age
ofP
ress
,rad
ioa
ndT
Vjo
urna
lists
at
natio
nall
evel
who
are
wom
en.
2.P
ropo
rtio
nof
wom
en/m
enth
ath
ave
requ
este
dof
ficia
linf
orm
atio
n.
1.P
ropo
rtio
nof
med
iac
over
age
onis
sues
that
are
of
impo
rtan
ceto
wom
en(e
.g.c
hild
/rep
rodu
ctiv
ehe
alth
and
dom
estic
vio
lenc
e).
2.E
vide
nce
that
the
gend
erim
plic
atio
nso
foffi
cial
in
form
atio
nar
em
ade
expl
icit,
e.g
.ho
wth
ebu
dget
af
fect
sm
ena
ndw
omen
diff
eren
tly.
3.E
vide
nce
that
the
prov
isio
nof
offi
cial
info
rmat
ion
isg
ende
rse
nsiti
vea
sa
resu
ltof
bei
ngd
isse
min
ated
th
roug
hdi
ffere
ntc
hann
els
for
men
and
wom
en.
1.D
ata
colle
cted
from
med
iao
utle
ts2.
Adm
inis
trat
ive
data
(alth
ough
sex
oft
he
requ
este
rm
ayn
otb
ere
cord
ed)
1.Q
ualit
ativ
ean
alys
iso
fmai
nstr
eam
m
edia
,CSO
sou
rces
,int
ervi
ews
with
sen
ior
med
iae
xecu
tives
from
sel
ecte
dm
edia
ou
tlets
2.F
ocus
gro
upd
iscu
ssio
nw
iths
elec
ted
offic
ials
from
key
gov
ernm
entm
inis
trie
s3.
Qua
litat
ive
anal
ysis
ofi
nfor
mat
ion
prog
ram
mes
on
men
’sa
ndw
omen
’s
issu
es,i
nclu
ding
an
asse
ssm
ento
fw
heth
erth
ech
anne
lsu
sed
are
appr
opria
te
Gen
der
spec
ific
70 7�
Draft Plan of Action
3IL
LUST
RAT
IVE
GEN
DER
SEN
SITI
VE IN
DIC
ATO
RS
P
OSS
IBLE
DAT
A S
OU
RCE
S
Impl
icitl
y ge
nder
ed
1.E
xist
ence
ofl
egis
latio
npr
ovid
ing
arig
htto
offi
cial
in
form
atio
na
ndit
sef
fect
ive
impl
emen
tatio
n.
2.E
xist
ence
ofC
SOs
actin
gas
info
rmat
ion
inte
rmed
iarie
sfo
rw
omen
i.e.
ana
lysi
san
ddi
ssem
inat
ion
ofin
form
atio
nth
ath
ass
peci
al
rele
vanc
eto
wom
en.
1.Q
ualit
ativ
ean
dqu
antit
ativ
ean
alys
is
ofn
atio
nall
aws.
Fre
edom
.org
(ww
w.
priv
acyi
nter
naito
nal.o
rg)m
aint
ains
a
glob
ald
atab
ase
ofc
ount
ries
with
rig
htto
in
form
atio
nle
gisl
atio
n2.
Adm
inis
trat
ived
ata
onn
umbe
rofC
SOs
regi
ster
edw
iths
uch
am
anda
te,i
nter
natio
nal
and
natio
nalq
ualit
ative
repo
rts
Chos
en b
y w
omen
1.P
erce
ntag
eof
wom
enw
hos
ayth
atth
eyre
ceiv
ead
equa
tein
form
atio
nfr
omth
ego
vern
men
tand
the
med
iao
npo
licie
san
dla
ws
that
affe
ctth
em.
1.S
urve
yda
ta
7� 7�
1. INTRODUCTION
1.1 ReducingpovertybyachievingtheMDGsisamissionsharedbyallUNagencies.Tothisend,ithasbeenunanimouslyrecognizedthatreducingpovertyinallitsformsmustnecessarilyinvolveamulti-dimensionalapproachthatispredicatedonachievingnotonlyanadequatestandardofliving,butothercivil,cultural,economic,politicalandsocialrights.CommunicationforDevelopment,asocio-culturalprocesswhichputsthepeoplemostaffectedatthecentreofdecision-makingaroundtheirowndevelopment,canplayanimportantroleinfosteringdialogue,facilitatinginformationandknowledgesharing,buildingunderstandingandconsensusaroundcollectiveaction,andamplifyingthevoiceandinfluenceofpeopleinpolicyprocesses(Servaesetal2006).
1.2 Ashasbeenemphasized,CommunicationforDevelopmentworksmosteffectivelywhentherequisiteenablingenvironmentisinplace.Elementsofsuchanenablingenvironmentinclude:afree,independentandpluralisticmediasystem,wheremediaareaccountabletotheiraudiencesandthroughwhichopendialogueanddebatecanoccur;open,transparentandaccountablegovernmentthatencouragespublicdiscourse,broadpublicaccesstoavarietyofcommunicationmediaandchannels,aswellasaregulatoryenvironmentthatpromotenon-discriminatorylicensingforlocalradioandlow-costuniversalaccesstotheInternetandtelephoneservices;andanopensocietyinwhichallgroupsareabletoparticipatefullyindevelopmentdecisions,debatesanddecisionmakingprocesses(Servaesetal2006)
1.3 FreedomofexpressionconstitutesafundamentalrightthatmustberespectediftheMDGsaretobeattained.TheMillenniumDeclarationhasreaffirmedthecommitment“toensurethefreedomofthemediatoperformtheiressentialroleandtherightofthepublictohaveaccesstoinformation.”
1.4 Afree,independentandpluralisticmediaisafundamentalelementofdemocraticparticipation,accountability,goodgovernanceandthefightagainstcorruption,allkeycontributorstopovertyreduction(UNESCOetal2006).Byactingasaconduitofinformationbetweencorporations,governmentandthepopulation,freemediaactsasawatchdogagainstpoorgovernment,atthesametimehighlightingareasrequiringthegovernment’surgentattention.
1.5 Mediaalsoensuresenhancedengagementamongcitizensandwithgovernmentatdifferentlevels,fromlocaltonational,andfacilitatespublicdebateon
development.Whetherpublic,privateorcommunity,themedia,dependingonthedisciplinaryknowledgetheycanacquire,provideaccesstoandinterpretationofvitalinformationonkeydevelopmentissues–suchaspoverty,sustainabledevelopment,agriculture,educationandhealth.
1.6 Thatcommunicationcanplayakeyroleinreducingpovertyandfosteringdevelopmentiswellunderstoodbytheinternationaldevelopmentcommunity,andamyriadofinterventionsovertimehavesoughttostrengthenmediasystemsandcapacityindevelopingcountries.However,insomecases,thesheerproliferationofactorsworkinginanun-coordinatedmanneratdifferentlevelshasimposedahightransactioncostondevelopmentpartnersandwould-bebeneficiariesofdevelopment.
1.7 AmoreholisticapproachbytheUNsystem,predicatedoncoherenceandenhancedcollaboration,cansignificantlystrengthentheenablingenvironmentforCommunicationforDevelopmentwithindevelopingcountries,andfostermoreeffectivepartnershipswithandamongthewiderdevelopmentcommunity.PuttinginplacesuchanenablingenvironmentconstitutesacriticalagendaaroundwhichtheUNsystemcanrally.
1.8 ThepurposeofthisActionPlanistoarticulateacommonUNstrategyforcollaborationinthenexttwoyears,asafirststeptowardsstrengtheningtheroleofCommunicationforDevelopmentasakeycomponentofUNsystemprogramming.Itisbeingdevelopedinresponsetoaproposalfromparticipantsatthe9thinter-agencyRoundTableonCommunicationforDevelopment,heldinRome,ItalyinSeptember2004.Itsfocusistwo-fold:first,itproposesstrategiesforin-countrycollaborationtowardsstrengtheningcommunicationcapacitiesofdifferentgroups(suchasmediaprofessionals,communities,governmentrepresentativesandofficials)aswellasstructures(policies,infrastructure,etc);second,itproposeswaysofrootingCommunicationforDevelopmentintheUNglobally.
2. VISION & MISSION
2..1. Vision:�.�.�.UNCountryTeamsworkingtogether“asone”tostrengthencommunicationandinformationsystemsandtheircapacitiestomakeCommunicationforDevelopmentmeaningfulandrelevant.
�.�.�.CommunicationforDevelopmentinternalizedasacentralpillaroftheUN’sstrategyformeetingtheMDGs,andanintegralcomponentofstrategy,planningandprogramming.
7� 75
2.2.Mission:�.�.� Jointlyimplementcapacitybuilding,awarenessraisingandpolicyadvocacyprogrammesatscalein5–10pilotcountries.
�.�.� Strengthenmechanismsandsystematizecollaborationatheadquarterlevelanddevelopstandards,guidelines,indicatorstoensureenhancedimpact.
3. OBJECTIVES3.1 TostrengthenUNinter-agencycollaborationaroundCommunicationforDevelopmentatprogrammaticlevel,inlinewiththeprincipleofcountryownershipatalllevels(country,regional,headquarters).
3.2 Tostrengthencommunicationandmediasystemsandcapacitiestowardsgreatercitizenparticipationinthedevelopmentdiscourseandpublicsphere.
3.3. Toestablishacommonunderstandingof,andapproachto,CommunicationforDevelopmentintheUNsystem,bydevelopingstandards,guidelines,indicatorsandothernorms.
3.4 Tostrengthenexistingcountry-leveldiagnosticandprogrammingmechanisms(UNDAF/CCA,PRSs)toincludeCommunicationforDevelopmentaudits/needsassessmentsasanintegralcomponent.
4. PRINCIPLES•Astrategic,joined-upapproach•Harnessthespecializationofdifferentagencies,buildonwhateachisdoingwelltofostersynergies•Focusonafewwell-definedareasofcollaboration•Prioritizeactionsandinterventionsformaximumimpact•Countryfocusiskey,supportedbyinternationaladvocacy•Emphasizeimplementingatscale•Seektobuildlocalcapacityinasustainableway•EnsurepartnershipwithinandbeyondUNsystem,harnessnon-UNCommunicationforDevelopmentinitiatives•DeveloprobustmechanismsformonitoringimpactreflectingtheUN’scorevalues
5. THEMATIC PROGRAMME FOCUSBuildingonexistingefforts,theActionPanwillarticulatejointUNinter-agencycollaborationinthefollowingthematicprogrammeareas:
5.1 CreatinganEnablingEnvironmentforCommunicationforDevelopment:Undertakepolicyadvocacy;providetechnicalassistanceinpreparinglegislationonfreedomofinformation,editorialindependenceofnationalbroadcastingservicesandindependentcommunitybroadcastingservices;harnesstheroleofnationalbroadcastingservicestoenhancepolicyformulation;providesupporttobuildpluralisticanddemocraticmediasystemsthatenableaudienceengagementinpublicservice,privateandcommunitymedia.
5.2 StrengtheningCapacitiesandSkills:Buildinstitutionalcapacity(vocational,tertiary,in-house,etc)todeliverhigh-qualitytraining;targetdifferentusergroups(mediaandinformationprofessionals,governmentofficials,youth,urbanandruralcommunities,etc);developissue-specifictrainingtoenhancedisciplinaryknowledgeamongmediapractitionersforabetterunderstandingofdevelopment(e.g.theMDGs,economicdevelopment,agriculture,health,sustainabledevelopment,etc).
5.3 EnhancingPublicParticipationinPolicyMaking:Openupexistingsystemsandchannelstogreatercitizenparticipation;especiallyfocusonensuringstrongerparticipationbywomeninthedevelopmentdebate;harnessICTstoenhanceinformationsharingandcitizenengagement.
5.4MainstreamingCommunicationforDevelopmentinUNSystem:Raiseawarenessanddevelopacommonunderstanding;advocateforCommunicationforDevelopmenttobecomeacoreUNstaffcompetency;developmechanismstoenhancecollaboration;developandretailsystem-wideindicatorstomeasuretheimpactofcommunicationinhelpingmeettheMDGs.
TheActionPlanwillbeimplementedattwolevels:withinselecteddevelopingcountriesandatglobal,headquarter-level.
5.5 Country-levelActions:5.5.�UNCountryTeamswillberesponsiblefor:integratingcommunicationintheUNDAF/CCAandPRSprocesses,financingandimplementingprogrammesatscale,buildingnationalsystemsandcapacities,spearheadingin-countryadvocacy,andprovidingtechnicalassistance.
5.5.�Proposedinitiatives:•Pilottheintegrationofcommunicationaudits/needsassessmentsintoUNDAF/CCA.•Deployjointinter-agencyUNtechnicalassistancetohelpunderstandthelinkagesbetweenfreedomofexpressionandpovertyreductionandindoingsostrengthen
76 77
people’sparticipationtowardsachievingtheMDGs.•DevelopaholisticcapacitybuildingprogrammetoenabledifferenttypesofmediatoverifiablyhelpmeetMDGs,anddifferentcitizengroupstoengagewiththeMDGs41.•EstablishdedicatedCommunicationforDevelopmentcapacitybuildingfundswithinUNCTs.•Establishcoordinatedinstitutionalcapacitybuildinginitiativestodevelopdisciplinaryknowledgeamongmediaandcommunicationprofessionals.•Developcommunicationtrainingprogrammesforgovernmentofficials/seniorpolicymakers,andoperationalstaffacrossgovernmentdepartments(tohelpbuildgovernmentalcapacity,sensitizeonfreedomofinformation,etc)42.•Develop,identifyfundingandjointlyimplementpublicservicebroadcastingofparliamentarydebatesaspartofabroaderefforttopromotetherighttoknowandcitizenparticipationinpolicymaking.•Aspartofabroaderpolicyadvocacyeffort,organise(withgovernmentandotherin-countrypartners)anationalconference/high-profileeventtohighlightthekeyroleofcommunicationindeliveringMDGs.•StrengthenexistingUNadvisoryservicestoassistgovernmentsininternalisingfreedomofinformationandcommunitybroadcastingpoliciessoastoencouragethenecessarylegalframeworksatnationallevel.•ImprovecommunicationstaffingcomplementofUNCTs43,andintroduceCommunicationforDevelopmentasacorecompetencyamongfieldstaff.•Includesystem-widemethodologyandindicatorsforassessingtheimpactofCommunicationforDevelopmentonachievingtheMDGsinallprojectsandprogrammesatinception.
5.6Headquarter-levelActions:5.6.� Globally,UNagencieswillberesponsiblefor:undertakingadvocacytomainstreamCommunicationforDevelopment;establishingsystem-widenormsandstandards;developingindicatorsandmonitoringprogress;andsharinggoodpractices.
5.6.�ProposedInitiatives:•EstablishanInter-AgencyTechnicalWorkingGrouponCommunicationforDevelopment,toadviseonprogrammedesignandimplementation,developnormsandstandards,developindicatorsandmonitorprogressonanongoingbasis.
•DevelopacommonunderstandingofCommunicationforDevelopmentamongUNagencies;increaseawareness;sensitizehigh-levelUNdecision-makers.•EstablishtherequirementsformakingCommunicationforDevelopmentmandatoryintheinceptionandimplementation,monitoringandevaluationofalldevelopmentprogrammesandprojects.•DesignatetheRoundTableasthemainUNsystem-wideforumforbiennialreportingtotheGeneralAssemblyonprogressinimplementingtheActionPlan.•Developanddisseminatesystem-wideguidelinesforcommonterminology.•DevelopdetailedproposalsonhowcommunicationcanbecomeanintegralpartoftheCCA,UNDAF,PRSsandothernationaldevelopmentframeworks44.•Developoperationalguidelinesforincludingcommunicationaudits/needsassessmentsinCCA,andforincludingcommunicationprogramminginUNDAFprogrammesandPRSs45.•CollectaudiovisualmaterialonCommunicationforDevelopmentproducedbydifferentUNagenciesintoonerepositoryaccessiblebybroadcastingservicesanddifferentaudiences.•CommissionresearchtosystematicallyidentifyCommunicationforDevelopmentgoodpractice;disseminatewidely.•Developsystem-widecommunicationdevelopmentindicators,tomeasuretheimpactofcommunicationonimprovingtheenablingenvironmentformeetingtheMDGs;documentanddisseminatewidely;rollouttraininginuseoftheindicators.•IntroduceCommunicationforDevelopmentasacorecompetencyamongagencystaff,andadvocateforcoursestobedevelopedasamandatoryofferingtomanagers.
6. EXPECTED RESULTS6.1CommunicationforDevelopmentharnessedasanintegralpartofUNsystemplanningandprogrammingtowardsmeetingtheMDGs.
6.2CommunicationforDevelopmentintegratedintoin-countrydiagnosticandprogramminginstruments.
6.3Holisticin-countrycapacitybuildingprogrammesimplementedbyUNCTandnon-UNpartnerstofacilitatethedevelopmentofpluralisticcommunicationandinformationsystemscapableofengagingpeopleintheirowndevelopment.
6.4EnhancedunderstandingofandcommitmenttoCommunicationforDevelopmentbygovernments.
41.Thecapacitybuildingprogrammeshouldaddresscapacitiesofdifferentgroups,andaddressdifferentthemes(e.g.maternalmortality,governance,ICTsforknowledgecreation/sharing).Trainingshouldbetailoredtospecificcountryneeds,andsuchprogrammesshouldbedesignedinsuchawayastobesustainablebyemphasizingthebuildingoflocalcapacity,inuniversities,etc.42.Suchprogrammesshouldbuildonexistingefforts(e.g.UNDP’sgovernance-relatedtraining)43.ThiscouldinvolvedevelopingspecificationsforminimumrequirementforeachUNCT(e.g.aP-levelcommunicationofficerworkingacrossagencies,settingupofin-countryUNCTworkinggroup/taskforce)
44.Dovetailthiswiththeongoingsystem-widereviewoftheUNDAFprocess.45.Buildonworkalreadyunderway(suchasUNDPOsloGovernanceCentre,WorldBank,etc)
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7. MONITORING AND EVALUATION7.1TheUNTechnicalWorkingGrouponCommunicationforDevelopmentwillreviewprogressindevelopingandimplementingtheActionPlanperiodically.Aninterimreviewoflessonslearnedwillbeconductedduringthe11thRoundTable.
7.2TherewillbetwolevelsofMonitoringandEvaluation,builtintoallactivitiesatinception:•TheActionPlanitself•Abroaderevaluationofcommunication’scontributiontowardsputtinginplacetheenablingenvironmentformeetingtheMDGs
8. PERFORMANCE INDICATORS46
8.1 Commitmentindicators:•Evidenceofacommonunderstanding,approachandstrategy•Evidenceofresourceallocation•Commissioningofpapers•Developmentofoperationalplans•Initiativestostrengthenmechanisms•EstablishmentofUNCTCommunicationforDevelopmenttrainingfunds•Fundinginplaceorbeingsought•Publicationofoperationalguidelines
8.2ImpactIndicators47:•NumberofUNCTsimplementingjointCommunicationforDevelopmentprogramming•NumberofUNCTsusingcommunicationaudits/needsassessments•Numberandqualityoftrainingprogrammesimplemented•Numberofcountriesinwhichparliamentisbroadcastviastatechannels•NumberofcountriesputtinginplaceFreedomofInformationlaws/regulation•Stateofin-countrymediaenvironment(plurality/diversityofownership,participationofwomen,communitybroadcastingenvironment,etc)•Capacitybuilding–numberandscopeofmediaandcommunicationtraininginstitutionsofferingtrainingindisciplinaryknowledge(E.g.SustainableDevelopment,Environment,Health,ScienceCommunication,Agriculture,Entrepreneurship,etc)
9. ORGANIZATIONAL STRUCTURES•TheUNInter-agencyRoundTableonCommunicationforDevelopment•TheUNinter-agencyTechnicalWorkingGrouponCommunicationforDevelopment•CommunicationforDevelopmentstructureswithinUNCountryTeams
46.Theseareindicativeandsubjecttofurtherdevelopment.47.Baselinetobeestablishedbycommunicationaudits/needsassessments
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