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AttheheartofchangeTheroleofcommunicationin sustainabledevelopment

Promotingdialogue,debateandchange

ii

Acknowledgements

At the heart of changewaswrittenbyMarkWilson,ExecutiveDirectorofPanosLondonandKittyWarnock,SeniorAdvisor,communicationfordevelopment,withresearchandadditionalwritingbyEmrysSchoemaker.

ThepaperwascommissionedbytheUKGovernment’sDepartmentforInternationalDevelopment(DFID).BackgroundresearchandacomprehensiveliteraturereviewwerecomplementedbyaseriesofinterviewsintheUKandothercountries.Alonger,moredetailedexplorationoftheargumentssetoutinthispaper,includingmanymoreexamples,canbefoundinasecondpublication,entitledThe case for communication in sustainable development.

PanosLondonisgratefulforthegeneroussupportofadistinguishedadvisorygroupofinternationalexpertsincommunication,politicalscience,economicsanddevelopment,whichassistedandadvisedintheresearchandwritingofthesepapers.Allviewsexpressedinthepaper,however,arethoseofPanosLondon.

At the heart of changeandThe case for communicationareavailablefromwww.panos.org.uk/heartofchange

©PanosLondon,2007

Formoreinformation,contact:

PanosLondon9WhiteLionStreetLondonN19PDUnitedKingdom

tel+44(0)2072781111fax+44(0)2072780345

[email protected]

978-1-870670-67-8

PanosLondonispartoftheworldwidePanosNetworkofindependentinstitutesworkingtoensureinformationisusedeffectivelytofosterdebate,pluralismanddemocracy.Formoreinformationseewww.panos.org

Contents Abbreviationsandacronyms

Executivesummary

Introduction

Communication’scontributiontohealthypoliticalprocesses

Communicationattheheartofgoodgovernance

Communicationisfundamentaltoavibrantcivilsociety

Communicationforefficientandmoreequitableeconomies

Theroleofthemedia

Conclusion

Agendaforaction

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Peopleneedtobeabletoreceiveinformationbutalsomaketheirownviewsheard.ThiswomaninChennai,Indiatalkstotuberculosisawarenesscampaigners. atul loke | panos pictures

Attheheartofchange:Theroleofcommunicationinsustainabledevelopment �

Abbreviationsandacronyms

ARV antiretroviral

ATM automatictellermachine

CAR capability,accountability,responsiveness

C4D communicationfordevelopment

DFID DepartmentforInternationalDevelopment

EITI ExtractiveIndustriesTransparencyInitiative

FAO FoodandAgricultureOrganization

GNI grossnationalincome

ICT informationandcommunicationtechnology

IDRC InternationalDevelopmentResearchCentre

IMF InternationalMonetaryFund

ITU InternationalTelecommunicationUnion

MeTA MedicinesTranparencyAlliance

MDGs MillenniumDevelopmentGoals

NGO non-governmentalorganisation

OECD OrganisationforEconomicCo-operationandDevelopment

PETS publicexpendituretrackingsystem

PRSP povertyreductionstrategypaper

UNDP UnitedNationsDevelopmentProgramme

DevelopmenteffortsarenotfulfillingthepromisesmadeintheMillenniumDevelopmentGoals(MDGs),toreducepovertyandimprovepoorpeople’slives.Whynot?Onefundamentalreasonisthatpolicymakersanddevelopmentexpertsdonotrecognisetheessentialrolethatinformationandcommunicationplayindevelopment.

Sustainabledevelopmentdemandsthatpeopleparticipateinthedebatesanddecisionsthataffecttheirlives.Theyneedtobeabletoreceiveinformation,butalsotomaketheirvoicesheard.Thepoorareoftenexcludedfromtheseprocessesbygeographyandlackofresourcesorskills;andmanygroups–includingwomen–arealsokeptsilentbysocialstructuresandculturaltraditions.Inclusivepoliticalprocesses,throughwhichcitizenscanshapepoliticalagendasandholdtheirgovernmentstoaccount,areanessentialfoundationofsuccessfuldevelopment.Politicalprocessesarecommunicationprocesses–notonlythroughformalelections,butalsotheongoingdialoguebetweenpeopleandtheirgovernmentsandtheshapingofpublicagendas.Forinstance,mobilephonesareincreasinglyusedtostrengthentheintegrityandcredibilityofelections;whilethemediaplayacrucialroleinpoliticaldebate.Healthypoliticalprocessesneedopencommunicationenvironments.

Executivesummary

� Executivesummary

Ahealthycivilsocietyischaracterisedbythevibrancyandqualityofcommunicationbetweenindividuals,groups,institutionsandorganisations.ThiswomantakesadvantageofthemobilephonenetworkinMonrovia,Liberia.

tim a hetherington | panos pictures

Communicationalsoliesattheheartofgoodgovernance,wheregovernmentsareresponsive,accountableandcapableoffulfillingtheirfunctionswiththeactiveengagementofcivilsociety.Goodgovernancerequiresthattransparentinformationonthestateandpublicservicesisavailabletocitizenssothattheycanmonitorgovernmentperformance.‘Sunlightisthebestdisinfectant’,USSupremeCourtJusticeLouisBrandeisfamouslyobserved,andtransparentinformationandcommunicationflowsreduceopportunitiesforcorruption.Improvedcommunicationcanalsofacilitatetheday-to-dayadministrativerelationshipsbetweencitizensandbureaucracies–forinstance,applyingforlicencesorobtaininglandrecords–andtheeffectivenessandefficiencyofpublicservices.

Thefabricofcivilsocietyiswovenfromtheongoingcommunicationandexchangebetweenpeople–throughinterpersonal,informalandculturalprocessesaswellasthroughformalinstitutionsandofficialchannels.Ahealthycivilsocietyischaracterisedbythevibrancyandqualityofthenetworksbetweenindividuals,groups,institutionsandorganisations;andthe‘socialcapital’(thetrustandrespect)theycreate.Informationandcommunicationarefundamentaltothisprocess.DecadesofresearchonissuesasdiverseasHIVandAIDScommunicationandsustainableagriculturehasshownthatwherepeopleareinvolvedandengagedindiscussionsofissuesthataffectthem,societalattitudesandindividualbehaviouraremuchmorelikelytochange.

Economicdevelopmentalsodependsoncommunicationateverylevel,fromhelpingapoorproducermarkethergoodstostrengtheningaminister’shandinnegotiatinginternationaltradeagreements.Whengovernmentscreateanenvironmentmarkedbyopenandtransparentinformationandcommunicationflows,theyhelptoestablishtheconditionsforeconomicgrowthandfairermarkets.Therevolutionininformationandcommunicationtechnologies(ICTs,suchastelephonesandtheInternet)alsooffersexcitingnewopportunitiesforsmall-aswellaslarge-scaleeconomicactivity.GovernmentsshouldtrytoensurethatICTsareavailableandaffordableforeveryone,becausewhileICTsarealreadyspreadingfast,particularlymobilephones,themarketwillnotprovidefortheneedsofpoorpeoplewithoutsomeinterventionandregulationfromgovernments.

Inalltheseareas,themediaplayacentralrole.Theyprovideaforumforpoliticaldebateandaccountability,andtheyalsohelpshapesocialattitudes–forinstancetowomen’sequality.Mediafreedomandpluralismofownershipareprerequisitesifthemediaaretofulfiltheirwatchdogfunctionofholdingthepowerfultoaccount.Butthesefundamentalsdonotguaranteethatthevoicesofthepoorandmarginalisedgroupsarereflectedinwhatisprintedandbroadcast.Forthemediatoprovidehigh-qualitypublicinterestcontent,inwhichawiderangeofvoicesisheard,liberalisation,pluralisationandregulationareallrequired.

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Reaching the MDGs in 2015… will also require a belated recognition that communication is central to all aspects of sustainable development.

Attheheartofchange:Theroleofcommunicationinsustainabledevelopment

ReachingtheMDGsin2015willrequirehugeinvestmentsofpoliticalwillandfinancialresourcesbygovernmentsinboththedevelopedandthedevelopingworld;butitwillalsorequireabelatedrecognitionthatcommunicationiscentraltoallaspectsofsustainabledevelopment.Whatneedstobedonetorealisethepotentialofcommunicationinmaximisingdevelopmentoutcomes?

Buildmoreopen,transparentinformationandcommunicationsystemsandpoliticalcultures

Governmentsandinstitutionsmustaccepttherealityofanetworkedworld,whichwillshapepoliticsandcivilsocietyinwaysthatareonlyjuststartingtoemerge,andadapttocitizens’expectationsoftransparencyandthefreeflowofinformation.

Treatinformation,communicationandthemediaaspublicgoodsandinvestaccordingly

Governmentsshouldrecognisethatmediaandcommunicationarepublicgoods,andinvestinstrengtheningthoseareasthatthemarketalonemaynotprovide,suchastelephoneaccessforpoorpeopleorhigh-qualitypublic-interestjournalism.

Takeaholisticviewofcommunicationprocessesandintegratecommunicationintodevelopmentplanningandimplementation

Governmentsanddevelopmentplannersmustrecognisethatcommunicationisattheheartofdevelopment:itsroleshouldbespecifiedinalldevelopmentanalysisandplanning,andadequateresourcesoffunding,expertiseandplanningmustbeinvestedtomakeithappen.

Investinmediadevelopment Adiverse,dynamicandfreemediaisvitaltodevelopment.Thiscan

beaccomplishedbyestablishingmediafreedomandasupportiveregulatoryenvironment;strengtheningmediainfrastructure,capacityandprofessionalism;andsupportingimprovementsinthequalityanddiversityofmediacontent.

� Executivesummary

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AmaninNairobi,Kenyareadsthenewspaperinhislunchbreak.Themediagenerally,asprovidersofinformationandcomment,haveacentralroletoplayindevelopment.

sven torfinn | panos pictures


1WorldBank(2006)World Development Indicators 2006http://devdata.worldbank.org/wdi2006/contents/Section1_1.htm

2The‘capabilityapproach’isaconceptualframeworkthatwasdevelopedbyAmartyaSenandMarthaNussbaumforunderstandingsocialstatesintermsofhumanwelfare.Itemphasisesthefunctionalcapabilities(‘substantialfreedoms’,suchastheabilitytolivetooldage,engageineconomictransactions,orparticipateinpoliticalactivities).SeeMCNussbaumandAKSen(1993)The quality of life,Oxford:ClarendonPress

3FunctioningsarewhatSenterms‘valuablebeingsanddoings’.Theycanbeelementary(escapingmorbidityandmortality,nourishment,mobility);complex(self-respect,participationincommunitylife,abilitytoappearinpublicwithoutshame);general(capabilitytobenourished);orspecific(capabilitytomakeparticularchoices).ThenotionoffunctioningsinfluencedtheempiricalmeasurementsthatunderpintheUnitedNationsDevelopmentProgramme’sHuman Development Index,whichgoesbeyondeconomicmeasurementstoincludehealthandeducationdata.FormoreonfunctioningsseeAKSen(1985)Commodities and capabilities,Amsterdam:North-Holland;andNussbaumandSen(1993)

Developmenteffortsarenotdeliveringtheresultstheworld’spoorneedandtheglobalcommunitypromisedintheMillenniumDeclarationsignedbyworldleadersinSeptember2000.Atpresent,twooutofeveryfivepeoplearelivingonlessthanUS$2aday.ThelatestWorldBankforecastspredictthatby2015morethan600millionpeoplewillstillbelivingonUS$1aday,and‘withoutmeasuresthatacceleratechange,manycountriesmayfallshortofthe[MillenniumDevelopmentGoal]targets.’1

Whyisprogresssoslow?Oneofthemainreasonsisthefailuretorecognisethatopen,inclusive,participatorycommunicationandinformationprocessesareprerequisitesforsuccessful,sustainabledevelopment.Communicationprocessesformthelifebloodofpolitics:theyarecentraltothecreationofahealthy,vibrantcivilsocietyandefficient,moreequitableeconomies;theyarealsoacriticalelementofsocialadaptation.

TheintroductionofaprintingpressusingmovabletypeinEuropeover500yearsagoledtorevolutionarychanges,asknowledgeandinformationbecameincreasinglyaccessibleandaffordable.Theexplosivegrowthofinformationandcommunicationtechnologies(ICTs)inthelasttwodecadesisbringingasecondGutenbergrevolution:transformingthewaysthatpeoplecommunicateandshareknowledgewithoneanother,andprofoundlychangingthedynamicsofsocial,politicalandeconomiclife.Thiscommunicationsrevolution–includingtheInternet,mobiletelephonesandnewmediachannels–offersimmenseopportunitiesforpeopletoaccessmoreinformationandknowledge,whichtheycanusetoimprovetheirlives.Butitalsorisksexpandingthechasmbetweenrichandpoor,betweenthosewhoenjoytheaccessandskillstoutilisethesenewinformationandcommunicationchannelsandthosewhodonot.

Atitsheart,development–ifitistobesustainable–mustbeaprocessthatallowspeopletobetheirownagentsofchange:toactindividuallyandcollectively,usingtheirowningenuityandaccessingideas,practicesandknowledgeinthesearchforwaystofulfiltheirpotential.ItrequireswhateconomistAmartyaSencalls‘realfreedoms’2:thecapacityforpeopletoparticipateinadiverserangeofdecisionsthataffectthem,andtoenjoyspecific‘functional’3aspectsthatconstituteahealthylife.Concentratingmoreresourcesonfosteringbettercommunicationandinformationprocessesamongpeople–andbetweenpeopleandgovernments–willincreasethepowerandabilityofindividualstotakeameaningfulpartindebatesanddecision-makingprocessesthatarerelevanttotheirlives.ThisiscrucialtoachievingSen’srealfreedoms.Inshort,informationandcommunicationprocessesarefundamentaltosustainabledevelopmentandlieattheheartofchange.

� Introduction

Introduction

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Butifsuchchangeistobenefitthepoor,providinggeneralisedsupportforinformationandcommunicationprocesseswillnotbeenough.Thefocusneedstobeonsupportingandstrengtheningcommunicationprocessesandchannelsusedbypoorandmarginalisedpeoplewho,becauseoftheirdisadvantagedsituation,alreadyfacemanybarrierstoreceivinginformation–includingilliteracy,distancefromsourcesofinformation,notspeakingthemajorityorofficiallanguages,andlimitedaccesstoradios,televisionsandothermedia(owingtoalackofelectricityorotherservices).Thecapacityofpoorpeopletomaketheirvoicesheardisalsolimited:theyoftenlackaccesstopowerfulpeopleandtocostlycommunicationtechnologiessuchasphonesandcomputers,aswellastheskillstousethem.Evenwithincommunities,socialcustomsandpowerstructuresoftenkeepsomegroups,especiallywomen,silentandexcludedfromdecision-making.

Indeed,anincreasedpowerandabilitytocommunicateiswhatpoorpeoplewishforthemselvesasmuchasthemoretangibledevelopmentbenefitstargetedbytheMillenniumDevelopmentGoals(MDGs).WhentheWorldBankasked40,000poorpeoplein1999whattheydesiredmost,having‘avoice’wasoneofthemostfrequentreplies,secondonlytoimprovedincomeandbasicnecessities.Notbeingabletohaveasayindecisionsthataffecttheirliveswasidentifiedasakeyelementofpovertyinitself.4Thispaperisthereforeacalltoaction:nationalandinternationalpolicymakersandleadersshouldrespondtothisneedandrisetothischallenge.

Communicationinvolvesprocessesofdialogue,exchangeofinformationandresources,andthecapacitiesthatenableunderstanding,negotiationanddecision-making.5Supportforcommunicationinthecontextofsustainabledevelopmentdoesnotjustmeanprovidingmoreinformationtopoorpeople–itmeansgivingthem‘voice’.Itmeansenablingthemtoparticipateactivelyindifferentcommunicationprocesses.Itinvolvesadialogueinwhichpower-holderslistento,consider,respectandusetheknowledgeandviewsofthepoor.Itmeansrecognisingthat,whilenotallformsofcommunicationincludeparticipatoryprocesses–indeed,manysimplyaimtopersuadeorpassoninformation–allformsofparticipationareessentiallycommunicationprocesses.6

Thisimportanceandubiquitydemandsthatpolicymakerstakeaholisticviewofasociety’sinformationandcommunicationprocesses,insteadofthead hocorfragmentaryapproachtheyoftentakeatthemoment.PanosLondoncontendsthatfourkeyareasneedtobetackledusinganintegratedapproach:establishingandrealisinglegalrightstofreedomofspeechandaccesstoinformation;supportingmedia;developingandexploitingtherevolutionarynewopportunitiesofferedbyICTs;andenablinggreaterparticipationofpoorandmarginalisedpeopleinsocial,economicandpoliticalprocesses.

4WorldBank(1999)Voices of the Poor,WashingtonDC:WorldBank

5Panos(2006)Breaking barriers: Effective communication for universal access to HIV prevention, treatment, care and support by 2010,Lusaka,p4.Availableat:www.panos.org.uk/PDF/reports/breakingbarriers.pdf

6QuarryandRamíreznotethat‘Communicationandparticipationareessentiallytwosidesofthesamecoin',andidentifythreeformsofcommunication:i)communicationtoinform(policies,etc);ii)communicationtoeducate(health,socialmarketing,etc);andiii)participatorycommunication(useofcommunicationtoolstoenableparticipation).WQuarryandRRamírez(2004)Communication for development: A medium for innovation in natural resource management,IDRC&FAO,p15

Palmira,a60-year-oldwomanfromMozambique,talksabouttheimportanceofradiotoher.

‘[Radio]helps,sinceitletsyouknowwhathappensinthecountry…It’seducatingusabouthowtolivewithinthefamily,thewaytocookwell…Theysaythatnotbeingspokenaboutmeansbeingexcluded.Iswitchon[theradio]becauselistening…canmakeeventsthatseemdifficulteasier…bygettingtoknowthingsyoucouldn’tknow[before].


7‘Publicgoods’isaneconomictermreferringtogoodswhich,onceproduced(orexisting),benefitallmembersofasociety–forinstance,educationorjudicialsystems

8Forexample:inruralareaswhereincomesarelow,provisionofICTservicesmaynotbeprofitableenoughfortheprivatesectortoprovidethem,althoughitenablesmanydevelopmentprocessestotakeplace.Similarly,good-qualityjournalismisexpensiveandessentialtoaccountability,butmaynotsellenoughnewspapersorattractenoughadvertisingtoaradiostationtobeprofitable

Manydevelopmentpolicymakersalreadyacknowledgeinprincipletheimportanceofcommunication.However,actionislaggingbehind.Policymakersoftenlacksufficientknowledgeofwhatspecificstepstheycantaketostrengthencommunicationprocesses.Sometimespoliticalwillisalsoabsent:afterall,enablingpoorpeopletoparticipatedirectlychallengesexistingpowerstructures.

Adoptingaholisticapproachwouldfacilitatetheformationofopensocietieswhereinformationandcommunicationprocessesareseenas‘publicgoods’thatbenefitallcitizensandmaximisetheimpactofdevelopment.7Onecharacteristicofpublicgoodsisthatthemorepeopleusethem,thegreaterthecommonbenefit.Communicationprocessesshouldberegardedaspublicgoodsbecausetheycontributetoasociety’sdevelopment,governance,peaceandprosperity.Likeotherpublicgoods,communicationprocessescostmoneytoproducebuttheproducerdoesnotalwaysprofitfromthem,8andmanykindsofknowledgeandinformationbecomemorevaluablethemoretheyareused(asdothenetworkingsystemsthatlinkthemtogether).

At the heart of changeestablishessuchanapproach,showinghowinformation,communication,themediaandICTsarepowerfulagentsofchange,howtheycangive‘voice’tothepoorandcontributetomoresustainabledevelopment.Therearemanycontendingviewsoftheroleofgovernments,civilsocietyandtheeconomyinsuccessfuldevelopment;butthispaperarguesthatinformationandcommunicationprocessesarecentraltoallofthem.Itexplorestherolesthatinformationandcommunicationprocessesplayinallofthekeyelementsthatfosterdevelopment:

equitableandinclusivepoliticalprocesses

nationalandinternationalgovernanceprocessesthatareeffective,responsiveandaccountable

supportingengagedcitizensanddynamiccivilsociety

generatinginclusiveeconomicgrowth,sustainablelivelihoodsandtransparent,efficientmarkets.

Thefollowingsectionsshowhowalltypesandmeansofcommunicationcontributetothesefourelements.Wearguethatafree,pluralisticmediaenvironment–wheremediaoutputsaremanyanddiverse,butalsoofhighquality–isvitallyimportanttosuccesfuldevelopment.Thepaper’sconclusionsuggestsanagendaforactionbypolicymakers,developmentexperts,internationalorganisations,non-governmentalorganisations(NGOs)andtheprivatesector(includingthemedia).

� Introduction

Information and communication processes are fundamental to sustainable development and lie at the heart of change.

9‘MobilephoneplaysroleinfreeKenyanelections’,postingbyBillKagaitoDemocraciesOnline,www.mail-archive.com/[email protected]/msg00587.html;www.balancingact-africa.com/news/back/balancing-act_164.html

Communicationiscentraltopoliticalprocessesandtheexerciseofpower.Withoutdeep-rootedprocessesofdialogueandnegotiationbetweenastateanditscitizens,astate’srepresentativeinstitutionshavelittlemeaning.Infact,theentirepoliticalprocessandtheongoingexchangeswithincivilsocietyandbetweencitizensandpoliticalinstitutionsthroughwhichpeopleandpoliticalpartiesorganisethemselvesarounddemands,principlesandagendas,arecommunicativeactsatheart.

Thisisobviouslytrueoftheformalprocessofvoting.Newcommunicationstechnologiesareincreasinglybeingusedtoimprovethequalityandtransparencyofelectionsandgenerategreaterpublicconfidenceinthem.Forinstance,duringKenya’s2002election,themobilephonenetworkcrashedaspeopleusedtextmessagingtomobiliseoneanotherandmonitorthepollingbooths.Electionresultsweredisseminatedassoonastheywerecounted,eveninthemostremoteareas.Theuseofmobilephonesinthisinstancecontributedtomoreeffectivecampaigning,greatertransparencyandprobablylessballotrigging.9

Thoseseekingpowerarekeenlyawareoftheimportanceofinformationandcommunication.Traditionally,thefirstobjectiveofrebelgroupstryingtoseizepoliticalpoweristhepresidentialpalace,closelyfollowedbythestatetelevisionandradiostation.Eveninlessviolentpoliticalstruggles,governmentsandoppositionpartiescompetetowinmediasupportandinfluencepublicperceptions.

10

contributiontohealthyCommunication’s

politicalprocesses Newtechnology,suchasthatusedin

Venezuelatoidentifyvotersbytheirfingerprints,shouldimprovethequalityandtransparencyofelectionsandincreasepublicconfidenceinthepoliticalprocess.

dermot tatlow | panos pictures


10Strategiccommunication–atermalsousedforcommunicationcampaignsdesignedtoachievespecificdevelopmentgoals,suchaschangingpeople’shealthbehaviour–isaprofessionalmethodologyusedtobringaboutvoluntarychangeintheattitudesandbehaviourofcertaingroups.Itlooksforincentivesthatwillpersuadepeopleandrequirescreativityinframingargumentsinawaythatisappealingtothosegroups

11HilaryBenn,speechtoDemos,23October2006;www.demos.co.uk/files/File/HB_speech_-_final.pdf,p2

11 Communication'scontributiontohealthypoliticalprocesses

Onceinoffice,politiciansfindithardto‘listen’totheelectorate.Politicalcrisesofteneruptbecausegovernmentministersareisolatedandfailtorespondtothechangingviewsofcitizens.Partlytodealwiththistension,attemptstomanageinformationandthemediaarebecominganincreasinglyimportantaspectofthefunctioningofpoliticalpartiesandpoliticiansinthedevelopedworld.

Managingcommunicationtobuildpublicunderstandingandtrust–‘strategiccommunication’–isanecessaryandlegitimatetaskofgovernments.10Butthedesiretoinfluenceandcontrolcangotoofar,intothe‘darkarts’of‘spin’–inotherwords,communicationthatismanagedinordertohideuncomfortabletruthsanddeceivethepublictosomeextent.‘Spin’corruptsthelanguageofpoliticalcommunication,generatingcynicismanddisengagementfromthepoliticalprocess.Itistheantithesisoftheopen,inclusive,clearandengagedcommunicationrequiredforsuccessfuldevelopmentinanycountry,andreflectsthefactthatnotallcommunicationisbenign.Opinioncanbemanipulated,truthhiddenordistortedandthemediausedtopromotetheinterestsofelites.Asthequantityofcommunicationincreases,thebadincreaseswiththegood.Thebenefitsofmorecommunicationbringwiththemthedangersofworsecommunication.

Thesolutiontothisisnottorestrictorclosedownchannelsofcommunication,althoughtheestablishmentofjudicious,transparentandpubliclyacceptedregulationandcontrolisimportant.Instead,thegeneralpublicneedtobecomemore‘medialiterate’sothattheyarebetterequippedtodistinguishgoodqualityfrombad;activeinchallengingandinseekinginformationthemselves;andabletoproducemediaoftheirown(particularlymarginalisedpopulationssuchasminoritylanguageandethnicgroups,andunder-representedsectionsofsocietysuchaswomenandyoungpeople).

HilaryBenn,formerlytheUK’sSecretaryofStateforInternationalDevelopment,hasstatedthat:‘Developmenthastobeaboutgettingthepoliticsrightbecausedevelopmentandprogresscannotbeachievedifthepoliticalsystemexcludesthemajority.’11But‘gettingthepoliticsright’meansgettingthecommunicationright,asgoodpoliticsonlyoccurswhenallsectorsofsocietyhavetheinformationandopportunitytheyneedtobecomeinvolvedinthedebatesthataffecttheirlives.Healthypoliticalprocessesneedopencommunicationenvironments.IftherateofprogresstowardstheMDGsistobeincreased,developmentneedspro-poor,people-centredpoliticalprocessesthatputvoiceandaccountability(intheshapeofcommunicationprocessesthatsupportparticipation,inclusiveness,responsivenessandequity)attheheartoftherelationshipbetweenthecitizenandthestate.

Karim(35)fromtheMancharLakearea,Pakistan.Heusedtobeafarmer,buthisfieldswereindundatedbywaterandcontaminatedwithtoxicchemicalsasaresultofamassivedrainageprojecttolinkthelaketotheIndusriver.

‘Ifthegovernmentworksproperly,peoplegetjustice,developmentisdoneandpeople’sproblemsaresolved…Buttheproblemisthatcandidates–afterwinningtheelection–carelessforpeopleandsayourjobisaccomplished…’

12Thisisalegitimatecritiquewhenthosesamecountriessimultaneouslyrestrictorstymiediscussionsonthemanagementofglobalresourcesandotherglobalgoods(suchasCO2emissionsandpublichealthissues),andreformsinthegovernanceofinternationalsystems(suchastradingrules)andmultilateralorganisations(theWorldBankandIMF).Criticsalsochargedonorswithusingtheabsenceofgoodgovernanceasanexcuseforthefailureofrecentdevelopmentstrategiessuchasstructuraladjustment.Thechargeofhypocrisyisalsosometimesvalid:richcountriesdonotalwaysinsistonthesameanti-corruptionmeasuresforthemselvesthattheydemandofdevelopingcountries

13UKDepartmentforInternationalDevelopment(2006)Eliminating world poverty: Making governance work for the poor: a White Paper on international development,London:DFID,p20

Respondingtotheperceivedpoorrecordofdevelopmentassistanceinreducingpovertyandaseriesofcorruptionscandalsinvolvingdevelopingcountryleaders,northern-hemispheredonorgovernmentsandmultilateralfinanceanddevelopmentorganisationsareincreasinglypromoting‘goodgovernance’.Thisfocuscanbehighlycontentious,withcriticsseeingitasawayforthegovernmentsofrichcountriestoblamethoseofpoorcountries,insteadofrecognisingtheirownroleinwhatsuchcriticsregardasperpetuatingunderdevelopment.12

Nevertheless,fewwoulddisputethefactthatgoodgovernancemattersatthenationallevelandthatitishardtocreate.Whereitisestablished,itpromotestheruleoflawandenablesapoliticalsystemthatbuildscitizens’senseofinclusion,fairness,voiceandparticipation.Itprovidessecurity,stabilityandanenvironmentinwhichpeoplecanmakethemostoftheirlives.However,anyconceptofgoodgovernancemustalsoincludetheexistenceofanactivepublicsphereinwhichsocial,politicalandeconomicissuescanbeopenlydebated,consensusreachedordisagreementsmanaged,andgenuinesocialparticipationandpoliticalresponsibilityestablished.Thisdynamic,ongoingprocessputsinformationexchangeandmultiplecommunicationflowsattheheartofthechallengeofestablishingandmaintaininggoodgovernance,forgovernmentsandcitizensalike.Approachestogoodgovernancethatfocussolelyonimprovingthe‘supplyside’ofgovernmentperformance,orwhichconcentrateoverwhelminglyonelectionsandrepresentation(conceivingofcitizenssimplyasvoterswhoexpresstheirconsentfromtimetotimebutleavegovernmenttoelectedrulersandelites)areinadequateandflawed.Ausefulframeworktoevaluatethequalityofastate’sgovernancewasprovidedin2006bytheUKGovernment’sDepartmentforInternationalDevelopment(DFID),whichdefinedgovernanceasthestate’sresponsivenesstoitscitizens’aspirationsandneeds,accountabilityforitsactions,anditscapabilitytoperformkeyfunctions.13Communicationiscentraltoeachoftheseprocesses.

Stateresponsivenessdescribesthebehaviourofgovernment–thewayinwhichittakesaccountofitscitizens’expectationsandneeds,andrespondstothem.Keyelementsofgovernmentresponsivenessarerealisedthroughcommunicationprocesses,suchaspolling,openandreactivebureaucracies,anddebatethroughthemedia.Toooften,thevoicesofthewealthyandpowerfularethosethatare‘heard’bygovernmentsandthewiderpublic,andtheybecomemoreinfluentialthanthevoicesofthepoor.Yetagovernmenthasobligationstoallitscitizens,andshouldensurethatchannelsandmechanismsexistforpoorandmarginalisedpeopletomaketheirvoicesheard.

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Communicationattheheartofgoodgovernance


14LNeuman(2006)‘Makingpublicinstitutionstransparent:Thecornerstonesofanopensociety’,paperpreparedfortheWorldCongressonCommunicationforDevelopment,Rome

15MMooreandGTeskey(2006)The CAR framework: Capability, accountability, responsiveness. A discussion note for DFID Governance and Conflict Advisors,London:DFID

16LouisDBrandeis(1914)Other People’s Money – and How the Bankers Use It,NewYork,NY:Stokes

17UtsteinAnti-CorruptionResourceCentre:www.u4.no/helpdesk/faq/faqs2c.cfm

18ResearchersfoundthatwheremediaandICTpenetrationwasgreater,corruptionlevelswerelower–withthemostsignificantvariablebeingnewspapercirculation.SeeSBandyopadhyay(2006)Knowledge-driven economic development,EconomicsSeriesWorkingPapersno267,DepartmentofEconomics,UniversityofOxford

19RIslam(2003)Do more transparent governments govern better?PolicyResearchWorkingPaper3077,WorldBank,inABellverandDKaufmann(2006)Transparenting Transparency, Initial Empirics and Policy Applications,TheWorldBankInstitute

20DBanisar(2006)Freedom of information around the world 2006: A global survey of access to government information laws,PrivacyInternational

21FreedomofInformationlegislationhasbeenpendinginGhanaandNigeriaforsixyears,andtheZambianGovernmenthasbeenrunning‘consultations’onpotentiallegislationsince2001.SeeBBCWorldServiceTrust(2006)African Media Development Initiative: Research summary reportatwww.bbc.co.uk/worldservice/trust/specials/1552_trust_amdi/index.shtml

22Therearealsomanyexamplesofwasteandfailureinlarge-scalegovernmentICTprojects(seePrivateEye,27February2007,issue1179);aswellasfearsthattoomuchgovernmentinformationmaythreatencitizens’freedom

Goodpolicytendstoemergefromgoodpolicymaking–andgoodpolicymakinginvolveslisteningandengagingwithpeoplewhoareinterestedinoraffectedbyanissue.Greaterconsultationandresponsivenessincreasespublicownershipandtrustingovernment,andoftenleadstomoreeffectivepolicies.Researchhasshownthatwiderandmoreeffectivecommunicationcaninspireincreasedpublicsupportandcontributetopoliticalgainsforgovernments,suchaslongertenure.14Astutepoliticianswillseethatreal,two-waycommunicationhastangiblepoliticalbenefits.

Stateaccountabilityisrealisedthroughthefunctionsoftransparencyandmonitoring.Transparencyisanessentialcomponentinmakingallkindsofsystemsandprocessesaccountabletotheirusers,stakeholdersandconsumers–notonlyfornationalgovernmentsbutalsoforinternationalbodiesandtheprivatesector.15‘Sunlightisthebestdisinfectant’,16USSupremeCourtJusticeLouisBrandeisfamouslyobserved,andtransparentinformationandcommunicationflowsreduceopportunitiesforcorruption–particularlyintheareasofgovernmentrecruitmentandpromotion,andbudgetarycontrol.17ThereisevidencetosuggestthatgreaterpenetrationofICTsandmassmediainacountryisalsolinkedtolowerlevelsofcorruption.18Countriesthataremoretransparent–forexample,intheprovisionofeconomicinformation–scorehigheronindicatorsforgovernmenteffectivenessandaccountability,aswellasforencouraginginvestment.19

Accessforallcitizenstoinformation–heldbygovernmentsbutalsobytheprivatesector–isanessentialcomponentofgoodgovernance,enablingcivilsocietytomonitordevelopmentsandholdthoseinpowertoaccount.Citizensneedaccesstoinformationinordertoknowanddemandwhattheyareentitledto,aswellastounderstandpoliciesandprocessessothattheycanquestionthemandenterintoinformeddialogue.By2006,nearly70countrieshadadoptedcomprehensivefreedomofinformationlegislationtofacilitateaccesstorecordsheldbygovernmentbodies.Another50areintheprocessofdoingso,20thoughlegislationisoftenunnecessarilydelayed.21

Improvingthequalityandquantityofstateprovisionofsecurity,healthandeducationservicesinthedevelopingworldisafundamentalrequirementiftheMDGsaretobeachieved.Informationandcommunicationprocessesandtechnologiesoffersubstantialpotentialbenefitstoboostthecapability and performance of state bodiesandincreasethequalityofpublic service delivery.22SomeofthewaysinwhichICTscanhelpgovernmentsimprovetheiradministrativeproductivityandefficiencyinclude:collectingandusingstatisticalinformation;onlinerecord-keepinganddocumentarchiving;andprovidinggreatertransparencyofprocessessuchasstaffrecruitmentandlegalreporting.ICTscanalsosimplifyday-to-dayrelationsbetweencitizensandstateadministrationinprocessessuchaslicenceapplicationsorlandownershiprecords.

However,ICTsarenota‘goldenkey’tochange–theyonlyaugmentthepoliticalwilloftheinstitutionsbehindthem.Withoutorganisationalandsystemsreform–andstrongleadershiptoguideit–changestoimprovepublicadministrativecapacitiesandservicedeliverymayberesistedlowerdowninbureaucraciesandimplementingagencies.TheincreaseduseofICTsingovernmentisofnouseifthegovernancesystemsdonotacknowledgepublicneedsoriftheinformationbeingusediswrong.Andtechnologiesdonotbringaboutchangeiftheydonotmatchtheskillsandcapacitiesofthepeoplewhoaremeanttousethem–forexample,awebsitemightnotbeusefultoanon-literatewoman.

1� Communicationattheheartofgoodgovernance

23ExamplesincludetheuseofmobilephonestoprovidepublicserviceinformationinIndia;e-complaintcentrestotrackserviceusersatisfactioninPakistan;andonlinewaitinglistsinCroatia.Formoredetails,see:GSharma,NRajandBShadrach(2005)Knowledge and research programme on improving efficiency of pro-poor public services,OneworldSouthAsia/DFID

24See:www.publicprivatedialogue.org

25RReinikkaandNSmith(2004)Public expenditure tracking surveys in education Peru, Uganda and Zambia,Ethicsandcorruptionineducationseries,IIEP;RReinikkaandJSvensson(2004)The power of information: Evidence from a newspaper campaign to reduce capture,PolicyResearchWorkingPaper3239,WorldBank

Thedesignofmoreeffectivepublicservicedeliveryorlarge-scaleinfrastructureprojectsrequireswidespreadandin-depthconsultationwiththepublicinordertotailortheprojectsappropriatelyandgainconsentandownershipofthestrategiesandprioritiesadopted.Thisisnotawastefulorpointlessexercise:researchshowsthatthedeliveryofpublicservicesismoreefficientwhenprospectiveusershavetheopportunitytoprovideinputintotheirdesign.23Evenwherelegitimatenationaleconomicorpoliticalobjectivesclashwithlocalinterestsorviews,includinglocalpeopleattheearlystagesofprojectplanninggivesthebestchanceofreachingcompromise,sharingcostsandbenefitsmoreequitablyandcreatingagreaterlevelof‘ownership’andacceptance.Therealityisthattheremaybeablurrylinebetweensophisticatedcommunication,whichseeksto‘manufacture’consent,andgenuineconsultation,whichshowsawillingnesstoengagepeopleandpossiblychangeplansbasedontheirinput.Butincreased,open,informationandcommunicationprocessesare–bytheirnature–morelikelytoexposecaseswhereconsultationsanddialoguearespeciousorineffectual.

Whenpeopleexpressobjectionstoadevelopmentproject,itisoftennottheproject’sgoalstheytakeissuewith,buttheirlackofinvolvementinboththeplanningstagesandtheintendedbenefitsoftheinitiative.Peoplewantasayintheirfuture.Wherecommunicationprocessesareusedproperly,thesenseofownershipincreasesandinvestmentsaremoreefficient.24Thepublicationofstatisticalresearchandindependentimpactassessments,andinitiativessuchascitizenreportcards,telephone‘hotlines’andindependentombudsmen,canalsogivethegeneralpublicandcivilsocietythetoolstheyneedtomonitorperformanceandholdserviceproviderstoaccount.In1996theUgandanGovernmentincreasedspendingonprimaryeducation,butsawlittleimpactonschoolenrolmentlevels.Publicexpendituretrackingsystems(PETS)collecteddatafrom250schoolsandfoundthatonly13percentofintendedgrantsactuallyreachedschools.Thegovernmentrespondedbypublishingthemonthlytransfersofpublicfundstothedistrictsinnewspapers,broadcastingitonradio,andrequiringprimaryschoolstopostinformationoninflowsoffundsinapublicplace.Thisempoweredcitizenstoholdallthestakeholderstoaccountanddrewattentiontowheremoneywasbeingmis-spent.Asaresultofthecampaign,around80percentofeducationfundsbeganreachingschools.25

1� Attheheartofchange:Theroleofcommunicationinsustainabledevelopment

26RPutnam(2000)Bowling alone: The collapse and revival of American community,NewYork:Simon&Schuster.Putnamdefinessocialcapitalas‘socialnetworksandthenormsofreciprocityandtrustworthinessthatarisefromthem’whichheconsiderstobeenabledbytheinterpersonalassociationsandsharednormsgainedthroughpersonalinteraction.Theconceptsunderpinningsocialcapitalcanbetracedbacktothe19thcenturyworkofJamesMadisonandAlexisdeTocqueville.Inthe20thcentury,JohnDeweyreferredto‘socialcapital’inSchool and Societyin1900,whilePierreBourdieudistinguishedbetweeneconomiccapital,culturalcapitalandsocialcapital

27AnanalysisbyHarvardUniversityoftheWorldValuesSurvey(whichlookedatsocialcapitalin47nationsfrom1995–97)foundapositivecorrelationbetweenwidespreadaccesstomassmediaandsocietieswithhighsocialcapital.PNorris‘Editorial:Socialcapitalandthenewsmedia’,The Harvard International Journal of Press/Politics,7:1

Mostaspectsofeverydaylifehaveacommunicativedimension.Thefabricofsocietyiswovenfromongoingcommunicationandexchange–throughinterpersonal,informalandculturalprocessesaswellasformalinstitutionsandofficialchannels.Civilsocietyconsistsofdifferentinterestgroupspursuingagendasthataresometimescomplementary,sometimescompeting.Aswehaveseen,civilsocietyworksasanessentialcounterweightto,andpartnerof,governmentsinestablishingandmaintainingwhatisreferredtoasthe‘demandside’ofgoodgovernance.Justasimportant,however,istherolecivilsocietyitselfplaysinshapinganddrivingdevelopment.

Ahealthycivilsocietyischaracterisedbythevibrancyandqualityofthenetworksbetweenindividuals,groups,institutionsandorganisations,andthesocial capitaltheycreate.Socialcapitalisameasureofthedegreeofengagementbyindividualcitizensinciviclifeandthereforethestrengthofcivilsociety.26Informationandcommunicationprocessesarefundamentalcomponentsintheconstructionofsocialcapital.27

1� Communicationisfundamentaltoavibrantcivilsociety

Activecivilsocietyorganisations,suchasthiswomen’sgroupinNiger,canhelpshapeanddrivedevelopment.

david rose | panos pictures

isfundamentaltoavibrantcivilsociety

Communication

28EdwardCGreen(2003)Rethinking AIDS prevention: Learning from success in developing countries,WestportCT:GreenwoodPress

29PanosLondon(2006)Speaking freely, being strong: HIV social movements, communication and inclusive social change – a case study in South Africa and Namibia.Availableatwww.panos.org.uk/speakingfreely

30PanosLondon(2003)Missing the Message? 20 years of learning from HIV/AIDS,p1andp46.Availableatwww.panos.org.uk

Socialnetworksarealsoenabledthroughcommunication–particularlytheinterpersonalcommunicationoftelephonesandtheInternet,andthroughphysicalassociation.Forexample,inUgandadiscussionandknowledge-sharinginpersonalcommunicationnetworksmadepeoplefeelthatHIVandAIDSaffectedthempersonally,promotingchangesinbehaviour.28Similarly,theHIVandAIDSsocialmovementinSouthAfricawasenabledthroughinterpersonalcommunicationanddrivenbyadesiretobuildassociationsandfindinformationfromotherssharingthesameexperiences.29Theactive,empoweredandengagedcitizenswhoeventuallyformedtheTreatmentActionCampaignexercisedconsiderableinfluenceastheyharnessedthecommunicationtoolsofadvocacy,massmovementandpoliticalpressuretoinfluencetheSouthAfricanGovernment’spoliciesonantiretroviral(ARV)drugs.

Whilebringingaboutchangesinpublicpolicycanbedifficult,ithappensfrequentlyinpractice.Changingsocietalattitudesandindividualbehaviourismuchmorechallenging,butfarmoresignificantforachievingsustainabledevelopment.The20-yearstruggletoovercometheHIVandAIDSpandemicoffersanobjectlessoninwhatworks–andwhatdoesnot–inattemptstochangesocialattitudesandbehaviour.AnanalysisbyPanosLondonin2003concludedthat,whileenormouseffortandhugeamountsofmoneyhadbeeninvestedinpreventioncampaignsusingthemedia,informationdisseminationandmessaging,themostsuccessfulcommunicationstrategieswentbeyondwhatiscalled‘socialmarketing’andtop-downmassmediacampaigns,andfosteredenvironmentswhere‘thevoiceofthosemostaffectedbythepandemiccanbeheard’.Itconcludedthat‘onlywhenpeoplebecometrulyengagedindiscussionsandtalkingaboutHIV,doesrealindividualandsocialchangecomeabout’.30

Themediacanplayavitalpartingeneratingandsustainingsuchchange,buttheircontentmusthaverelevanceforandgivevoicetolocalcommunities.Forexample,researchhasstronglysuggestedthattheinternationallyrenownedSoulCityinSouthAfrica(whichproducesatelevisionsoapoperaandaccompanyingprogrammesandmaterialsonradio,youthnewspapersandoutreachactivitiesreaching70percentofthepopulation)hasreducedHIVandAIDS-relatedstigmainthecountry.

1�

Gerald,whovolunteerswithSouthAfrica’sAtlantisIntegratedHIV/AIDSNetwork,whichincludestheTreatmentActionCampaign,inaninterviewabouthisexperienceofbelongingtoasocialmovementgroup.

‘Iencouragepeopletospeakout…youcangetverysickifyoucarrythisburdenalone…Wetalkabouteverythinginthegroup.FromgeneralHIV/AIDSinformationtoforgivenesstodeath…wecoveralotoftopicsinoursupportgroup.Weworkwiththemedia.WerecentlyhadafewradiotalksonHIV/AIDSatourlocalradiostation.Andweareplanningtoputsomemorephotosinthelocalnewspapers…’


31Seefootnote6,p5

32Ruralextensionisthesharpendofcommunicationeffortstobringnewagriculture,healthandbusinesspracticestoruralpeople.Extensionworkersareavitallinkbetweencommunitiesandruraldevelopmentinstitutionsandenablethecommunicationofinformationbetweenboth.StudiesinKenyasuggestthatonaveragea100percentincreaseinextensionworkersperfarmtranslatestoa13percentincreaseinyield:seeEEvenson(1998)The effects of agricultural extension on farm yields in Kenya,DiscussionPaperno798,EconomicGrowthCenter,YaleUniversity

33Forexample,inavillageinsouthernIndia,atelecentrewasestablishedinthepremisesofatemple.Peoplewhohadnotbeenallowedintothetempleforcenturies–includingmenstruatingwomenaswellasDalits–wereallowedintousethetelecentre.Formoredetails,seehttp://partners.nytimes.com/library/tech/00/05/biztech/articles/28india.html

34‘Networksociety’isthetermcoinedbyManuelCastellstorefertothechangesthatthetechnologiesofelectroniccommunication(firstelectronicexchange,thencomputernetworks,thentheInternet)havebroughttothefundamentalsofsociety(conceptualisedastheeconomy,thestateanditsinstitutions,andthewayspeoplecreatemeaningintheirlivesthroughcollectiveaction).SeeMCastells(2000)End of Millennium, the information age: Economy, society and culture,volIII,Oxford:Blackwells

Similarly,withinthefieldofnaturalresourcemanagement–forestry,agricultureandfisheries–thereisashifttowardsrecognisingthat‘peopleareattheheartoftheecosystem’.31Overthelast30years,communicationfordevelopmentprojectsallovertheworldinthissectorhaveshownthatfarmersmustbeinvolvedinthedevelopmentandadoptionofnewcropsandtechnologies,andthemanagementofcreditfacilities,marketinformationandaccessstrategiesiftheyaretobeappropriate,effectiveandefficient.Whenparticipatoryformsofcommunicationareusedinprojectsthataregenuinelyreceptivetowhatlocalpeoplehavetosay,resource-managementeffortshaveagreaterchanceofbeingsustainable.32

Genderremainsoneofthemostchallengingdevelopmentissuesbecauseinmanycountrieswomenareexcludedfromdecision-makingandtheirvoicesmarginalised.Addressingthesechallengesdemandsarangeofcommunicationefforts:topressuregovernmentstointroducelegalandconstitutionalchanges;communicationtoandwithininstitutionstoremovebarrierstowomen’sparticipation;andtochangesocialandculturalattitudes,bothofwomenthemselvesandofmenwhooftenhavethepowertoeffectthenecessarychange,butnottheunderstanding.MediaandICTscancreateopportunitiesforwomentoempowerthemselves,tomakethecaseforequalityandacttogethertoovercomeage-oldprejudiceandinequity.33

Attheinternationallevel,communicationprocessesareincreasinglyenablinganewglobalcivilsociety.ICTshavestrengthenedexistingformsofassociationtogiverisetoanemergingglobal‘networksociety’34whichhasmassiveimplicationsforcivilsociety,citizenshipandthepoliticalprocessofdevelopmentinrichandpoorcountries.ICTsmakeiteasierforissue-basedglobalsocialorganisations–suchaspeasant,indigenouspeoples’andwomen’smovements–tobeformedandtofunction.Communication,therefore,bothenablestheproductionofsocialcapitalandprovidesthefunctionalcapabilitiestopursuecivicengagement,whichissoimportanttosustainabledevelopment.

1� Communicationisfundamentaltoavibrantcivilsociety

1�

Betteraccesstolowcost,reliableICTscanhelpsmallbusinesses,liketheseinPokhara,Nepal,participateintheeconomyonamoreequalbasis.

amanda leung | panos pictures


35‘Buy,cell,hold:ThespreadofmobilesinAfrica’,TheEconomist,25January2007

36ITUInternetReport(2006)digital.life,ITU

37‘India&GlobalisationSpecialReport’,FinancialTimes,26January2007,p6

38CKPrahalad(2005)The fortune at the bottom of the pyramid: Eradicating poverty through profits,WhartonSchoolPublishing

39TheEconomist,26October2006

Open,participatorycommunicationandinformationprocessesalsoenablehealthyandsustainableeconomicdevelopment.Whereinformationflowsfreely,marketsandbusinessesgrowandthestateshouldbeabletoperformitspublicinterestrolemoreeffectively.Thisistrueforbothdevelopinganddevelopedeconomies.Openaccesstoinformation,andparticipatorydebate,areimportantateverylevel–whetherinfacilitatingtheday-to-dayactivitiesofsmall-scaleproducers,establishingbusiness-friendlyenvironmentsatnationallevel,debatingnationaleconomicregulationandpolicy,ornegotiatinginternationaltradeagreements.

Marketinformationisalwaysimperfect,butpoorpeopleandsmallproducersaredisadvantagedbecausetheyusuallylackinformationthatisreadilyavailabletorichpeopleandlarge-scaleproducers.Betteraccesstoinformationcanhelpsmallproducersparticipateinmarketsonmoreequalterms:forexample,theInternetandtextmessagingarebeingusedinmanycountriestoenablesmallfarmerstoknowwhatpricetheirproductsarefetchinginlocalandnationalmarkets.Accesstothisinformationputstheminastrongerpositionfornegotiatingpriceswithintermediaries.

Governmentscansupporteconomicactivity,therefore,byencouragingthespreadofreliableandlow-costICTs,whicharealreadygrowingrapidly.Fourtimesasmanypeoplehadaccesstomobilephonesthantofixed-linephonesinsub-SaharanAfricain2004;by201085percentareprojectedtohavenetworkcoverage.35Mobilephonesubscriptionshavegrownfivefoldto1.4billionindevelopingcountriessince200036andinIndiasevenmillionnewsubscribersarebeingaddedtomobilenetworkseverymonth.37Butinmanycountriesgovernmentsarestillprotectingtheirnationaltelecommunicationscompanies,reducingopportunitiesandkeepingcostsofserviceshigherthantheyneedtobe.

TherearemanyotherexamplesofhowthespreadofICTsisprovidingnew,innovativesolutionstothefundamentalneedsofpoorpeopleandhelpingtoincludetheminthewidermarket–whatCKPrahaladcallsthe‘bottomofthepyramid’.38Forinstance,in2005globalmigrantsremittedUS$232billion,ofwhichupto20percentwaslostontheway–mostlyinbankchargesorfraud.InSouthAfricaalone,12billionrand(US$1.5billion)issenteachyeartorelativesinotherpartsofthecountry–moneythatisusuallysentinformallyandoftenbyortosomeofthe16millionpeoplewithoutabankaccount.But30percentofthisgroupownmobilephones,andSouthAfricanphonecompaniessuchasWizzitarenowofferingbankingservicesviatextmessagethatpromiseasecurebutlower-costwayofmovingmoney.In2006Wizzithadhalfamillioncustomers,eightoutoftenofwhomhadnobankaccountandhadneverusedanATM.39

1�



40WorldEconomicForum(2005),Global Competitiveness Report 2005–2006,Chapter2.1

41Seewww.doingbusiness.org/ExploreTopics/StartingBusiness

42HDeSoto(2001)The Mystery of Capital,London:BlackSwan

43Thenewly-establishedCommissiononLegalEmpowermentofthePooriscurrentlyworkingwithUNDPtoseehowtheobstaclescanbeovercome.Seehttp://legalempowerment.undp.orgformoredetails

44ThisisnowbeginningtohappenwiththelaunchinApril2007oftheMedicinesTransparencyAlliance(MeTA)whichaimstomakedatapublicontheprice,availabilityandqualityofmedicinesforHIV,malariaandtuberculosisinordertoimproveaccesstomedicalcare.SeeFinancialTimes,19April2007,p4

Governmentscanalsoencourageinvestmentandfacilitateentrepreneurshipbycreatingacultureoftransparencyandreducedcorruption.Theycanboosteconomicactivityonalargeaswellassmallscalebymakingbureaucraticandregulatoryprocedures–suchasbusinessregistration,licensingprocesses,andimport/exportprocedures–simpler,faster,cheaperandmoretransparent.Incountrieswithlowlevelsoftransparency,registeringanewbusinesscostsfourtimesmorethanincountrieswheretheleveloftransparencyishigh.40InSweden,forexample,registeringabusinessofficiallyinvolvesthreeprocedures,takesanaverageof16daysandcostsonly0.7percentofpercapitagrossnationalincome(GNI).InMozambique,itrequires13procedures,takesanaverageof113daysandcosts85.7percentofaveragepercapitaGNI.41

Accesstocapitalisoftenamajorproblemforsmallbusinessesandthusasignificantconstraintonincreasingeconomicactivity.Poorpeoplegenerallylackassetswhichcanbeacceptedassecurityforloans.EconomistHernandoDeSotopointedoutthatthisisnotnecessarilybecausetheydonothaveassetsbutbecausethesearenotofficiallyrecognised–forexample,theirhousesmightbeininformalsettlements.42Therewouldbegreatpotentialeconomicbenefitinestablishingmechanismsforreleasingthecapitallockedupintheseassets;andcreatingandmaintainingtransparentandaccessibleinformationsystemswouldbecentraltosuchreforms.43

Reducingcorruptionalsocontributestoamoreenablingenvironmentforeconomicactivity.Whereacultureofopennessandtransparencyexists,withaccesstoinformationandknowledge,andeffectivepublicscrutinyprocesses,corruptionisreducedandeconomiesgrow.TheExtractiveIndustriesTransparencyInitiative(EITI)launchedattheWorldSummitonSustainableDevelopmentin2002wasdesignedtoincreaselevelsoftransparencyaboutpaymentsbycompaniestogovernments,andaboutthesharingofrevenues.EITIisanimportantandvaluablemodelformakingeconomicinformationavailabletoinformcitizensbetterandpreventcorruption.Itisamodelthatshouldbeextendedtoothereconomicsectors.44However,itisimportantthatthisinformationbeprovidedregularlyandinaconsistentway,otherwiseitrisksbeingmanipulatedforpoliticalpurposes.

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Salma,awomaninherlate40swholeftherhusbandwhenhedidnotprovideforthefamilyandsetupabusinessasatailorinSangharinSindhprovince,Pakistan,wastalkingtoajournalistfromthePakistanmedia.

‘Povertycanonlybealleviatedifthegovernmentextendsinterest-freeloanstopoorpeoplethroughsomeNGOandtakestheseloansbackineasyinstalments,onlythenpeoplecanestablishtheirbusiness.ThereshouldbeagarmentfactoryforwomeninSangharcity,wherethousandsofwomenandgirlsarereadytowork…’


45Forexample,Uganda’sfirstPRSPhighlightedagricultureasoneproductivesectorthatneededtogrowinordertoprovideopportunitiesformanypoorpeopletoimprovetheirincomes.Butitfailedtotakeintoconsiderationthefactthatlargepartsofthecountry’sproduction,andalargeproportionofitspoorpeople,werepastoralists.ThePRSPfocusedoncommercialhorticultureforexport,andfailedtoincludesomesimplemeasuresthatcouldhavehelpedpastoralistsincreaseoutputandprofitmorefromtheexportofmeatandlivestock.Pastoralists–whoareoftenamongthemostmarginalisedgroupsinanycountry–hadnotbeenconsultedandwerenot‘visible’totheurban-basedpolicymakers

Inthevitalareaofnationaleconomicpolicymaking,wherethechoicesmadehaveprofoundconsequencesforthedistributionofwealthandpower,theviewsandinterestsofpoorpeopleandmarginalisedgroupsareoftenunheardorignored.Opendebateandscrutinyofeconomicpolicy,throughfreemedia,ismorelikelytoresultinpolicythatfacilitatespro-pooreconomicgrowthandsupportsthelivelihoodsofthepoor.Butoneofthemostsustainedinternationalattemptstobringpoorpeopleintopolicymakinghas,sofar,beenlimitedinitssuccess.ThePovertyReductionStrategyPaper(PRSP)approach,introducedbytheWorldBank,aimedtoincludeawiderangeofdomesticstakeholdersandinterestedgroupsintheformulationoflow-incomecountries’short-termdevelopmentstrategies,oftenasapre-conditionfordebtreliefandinternationalfinancialsupport.InthefirstroundofPRSPstheconsultationprocessesweregenerallyweak:debateaboutcountries’overalleconomicpolicieswasavoided,andtherewasinadequateparticipationofpoorpeople–theintendedbeneficiariesofthestrategies.45PublicparticipationhasincreasedinmanycountriesinsubsequentroundsofPRSPs,butwhetherthiswillbesustainedremainstobeseenascountriesintroducetheirownnationaldevelopmentplans,oftenstressingtheimportanceoflong-termeconomicdevelopment.

Whereinternationalpolicymakingisconcerned,therearealsoinequitiesincommunication,informationandparticipationthatneedtobeaddressed.Theopenness,transparencyandaccountabilityofmanyinternationaleconomicbodiesandforums–suchastheInternationalMonetaryFund(IMF)andWorldBank–needtobeimproved;frequentlytheinformationandanalysisavailabletonegotiatorsfromdevelopingcountriesonmanyhighlycomplexandtechnicalissuesisfarfromadequate.

Thishasbecomeevenmoreapparent,giventhescientificcomplexityofthemajorenvironmentalchallengesthatthreatenthelong-termdevelopmentofalltheworld’spopulation.Someofthese–suchasclimatechange,over-fishingandlossofbiodiversity–areglobalchallenges,wherethethreattothe‘commons’affectseveryone,andcountriesmustworktogethertorespondeffectively.Otherenvironmentalchallenges–suchaslossofsoilfertility,shortageoffreshwater,pollutionandwastedisposal–aremorelocalintheirincidenceandimpact.Dealingwiththempresentssomeofthemosturgentcommunicationchallengesfacingtheworldtoday.Itrequiresthesharingoffactualandscientificinformation;debateonimpactsandpolicyresponses;negotiatingactionbetweengovernmentsandcivilsocietynationally,andamonggovernmentsatagloballevel;anddiscussingandagreeingtrade-offs,compensations,mechanismsandothermeasures–allofwhichdependontransparentmonitoringprocessesandaccountabilitymechanisms.

�1 Communicationforefficientandmoreequitableeconomies

Where a culture of openness and transparency exists, with access to information and knowledge, and effective public scrutiny processes, corruption is reduced and economies grow.

Indevelopingcountries,patternsofmediareachvaryenormously,withnewspaperreadershipstrongerinurbanareas,radiothesinglemostimportantmediuminAfrica,andtelevisionbecomingincreasinglypervasiveinAsiaandSouthAmerica.Forpeopleeverywhere–richandpooralike–themediaaretheprimaryprovidersofnewsandinformationfromoutsidethecommunity,andmediacoveragereflectsandaffectseveryaspectofcultural,social,politicalandeconomiclife.Themedia,therefore,playafundamentalroleininformationandcommunicationprocesses.Themediasupportandenableallaspectsofpoliticalprocessesandthenegotiationofpower,relationshipsbetweenpeopleandgovernment,andtheformationofgoodgovernance.Themediaarealsoanimportantpartofcivilsociety,reflectingdifferentvoices,competinginterestsandtheclashofopinionswithinit.Theyhelparticulateneedsanddemands,shapeopinionandattitudes,andprovideavehicleforpoliticalandculturalexpression.

Freemedia46areanessentialcomponentofaccountability.Theyhavethepotentialtoreportonandinvestigatethedecisionsandbehaviourofthepowerful,exposingcorruptionandprovidingaspaceforissuestobedebatedandagendasdeveloped.InPoverty and Famines,47AmartyaSenfamouslyarguedthatnofaminehasevertakenplaceinacountrythathasmulti-partypoliticsandfreemedia.Whiletherelationshipbetweenpoliticiansandthemediais–attimes–antagonistic,48mostgovernmentsarecommitted,atleastinprinciple,toestablishingaregulatoryandenablingenvironmentthatallowsthemediathefreedomand‘space’tospeakandactfreely.Itiswhensuchpoliticalwillandprotectedspaceareabsentthatthemediacannot,orfailto,holdgovernmentstoaccount.

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46‘Free’mediaisdefinedasfreeofgovernmentandstateinterference.Mediafreedomandindependenceisalsoaffectedbytheboundariesofitsowninstitutionalconstraintsandconcentratedownership

47ASenandJDreze(1981)Poverty and Famines,Oxford:OxfordUniversityPress

48The19thcenturyUSjournalistEmeryKelencynicallynotedthat:‘Theinterviewisanintimateconversationbetweenjournalistandpoliticianwhereinthejournalistseekstotakeadvantageofthegarrulityofthepoliticianandthepoliticianthecredulityofthejournalist.’CitedinJonathonGreen(1986)The Cynic’s Lexicon,London:SphereBooks,p112

Theroleofthemedia Inearly2007CharlesGyudeBryant,

headofthetransitionalgovernmentinLiberiafrom2003–2006,waschargedwithembezzlingmorethanUS$1millionofstatefundswhileinoffice.TheLiberianmediaactivelycommentedonhisgovernment’sperformancewhilehewasinpower.Heretheyinterviewhimonthedayofhisinauguration.

tim a hetherington | panos pictures


49‘Pluralistic’mediaisdefinedasmediathatarediverseandindependent,therebyprovidingavarietyofinformationtoallgroupsinsociety

Foratrulyindependentandpluralisticmediatoexist,therealsoneedstobepluralismofmediacontent.Onlywhenmediaisdiverseandpluralisticinbothformandcontentcanthecompetitionofvoices,opinions,factsandinterestsbefullyengaged.Whenthistakesplace,governmentsandthepowerfulinallsectorsofsocietyarefarmorelikelytobeheldtoaccount.Thequalityofmediacontentisasimportantasthequantity.Achievingqualityandengaged,informedandrespectedmediaisaresponsibilityofthemediathemselves;andwhilecitizenshavetherighttochoosethekindofmediatheywant,themediahavearealself-interestinhelpingtoestablishapublicofeducatedconsumerswhoare‘medialiterate’,whoknowwhattheywantandneed,andwholegitimatethemedia’sroleinholdingthepowerfultoaccount.

Bytakingonthischallenge,themediaareperformingapublicservicerole.Sucharoleisnotlimitedtopubliclyowned,state-ownedorcommunitymedia.Commercialandreligiousmediacanalsofulfilit,combinedinvariousdegreeswiththeirotherfunctions.Theessentialsofpublicservicemediaareaccessibility(includingbypoorandmarginalisedpeople)andquality contentthatistrue,informative,andreflectsdifferentvoicesandperspectives.Inotherwords,contentthatisbasedongoodjournalism.Itisthequalityofcontentthatmakesmedia–whetherpubliclyorprivatelyowned–meaningfulactorsindevelopment.

Themediaalsoneedtobepluralistic49intermsofownership,scopeandscale(encompassingmassmedia,communityandcitizenmedia).Pluralismofownershipanddiversityofmediacreatethepublicsphereinwhichdifferentvoicesandopinionscancontend.Allmediaorganisationsandentitiesoperateaccordingtotheirownagendasandpriorities,businessopportunitiesandconstraints.Manyareownedbyindividualsororganisations–businesspeople,politicalactorsorparties,orreligiousorganisations–whopromotetheirparticularinterests.Themediaarenotneutral,evenwhentheyarecommittedinprincipleto‘publicservice’.Theymustattractandkeeptheiraudienceandconsumers,aswellassatisfytheexpectationsanddemandsofownersandstaff.Anapparentpluralityofmediacanbedeceptive.Theexperienceofmanydevelopingcountrieswhentheyliberalisedtheirmediainthe1980sand1990swasthattheygainedmoremediaoutlets,butthesewereconcentratedincities,andthequalityanddiversityofwhatwaspublishedorbroadcastdidnotimprove.Theincreasingconcentrationofmediaownershipinmanymarketsinboththedevelopedandthedevelopingworldmeansthat–despiteaplethoraoftitlesandoutlets–theactual‘voices’,rangeofinterestsandviewsreflectedmaybeextremelynarrow.

�� Theroleofthemedia

Fatimata,a62-year-oldwomanfromOuahigouyainBurkinoFaso

‘Beforeitwasasilentlifebetweenmenandwomen…womenkepttheirideastothemselves,evenifthesewouldhavebeenahelptothecommunity…Nowadays,theradioisamajorsourceofinformation.Thiskeepswomenuptodatewithallthenewsfromthearea,thetown,neighbouringcountriesandoverseas.Wenowhavewomenwhopresideovermeetingsinthevillage,inthelocalarea…Theyhaveallbeendemocraticallyelectedbyvillagegroupsandotherpoliticalstructures.’

50GlobalForumforMediaDevelopment(2007)Media Matters,London,p6

Qualityofcontentinevitablyraisestheissueofcensorship.Thereareverydifferentviews,inallcountries,aboutthedegreetowhichmediacontentshouldbecontrolled;andeverysocietywillcontinuallybestrugglingwiththetensionbetweenindividualfreedomofexpressionandthecollectiveloyalties,beliefsandmoresthatbindacommunity.Shouldthepublicbeprotectedfrom‘hatemedia’andfromsociallyunacceptablecontent?Ifso,howandbywhom?Thechoicessocietiesmakemaybeverydifferent,andwillchangeovertime.Nosystemofregulationandcontroliswithoutflaws,butPanosLondonbelievesthatoversightbythemediathemselvesandbycivilsocietyratherthangovernmentismostlikelytostayrootedinthecollectiveviewandbecompatiblewithgoodgovernance.

RadioMilleCollines,whichhelpedtoincitethegenocidalviolenceinRwandain1994,issometimespresentedasanexampleofthedangersoffree,unfetteredmedia.Whilethisisanextremeexample,mediamanipulationofpublicopinionisunfortunatelynotuncommon.Thebestantidotetosuchmanipulation,however,isadiversityofmedia,notrestriction.Pluralistic,independentmediathatareinclusiveandresponsivetodiversityhavehistoricallyplayedavitalroleinpreventing,mockingorchallengingvoicesthatbreedextremism.Asarecentpublicationlookingattheeffectofmediaondevelopmentpointsout:‘Healthypublicspherescanhostawiderangeofviewswhichcandiluteintolerance.Policymakersshouldincreasesupportformediaassistanceprogrammestowidenaccessformoderatevoicesandbalanceddiscourse.’50Inshort,liberalisation,pluralisationandregulationarerequiredforbalancedmediaenvironmentsandcontentprovision.

Inthepast,thelimitednumberofmediaoutletsmeantthatthepublichadasharedexperienceofthemedia,whatevertheirquality.Nowthisshared‘publicsphere’isstartingtofragment,inbothdevelopedanddevelopingcountries.Withmedialiberalisationandcheapertechnology,audienceshavemanymoreformalmediaoutletstochoosefrom,andnowanyindividualorgroupcanproduceitsownmediaoutput,asawebsite,blogorthroughcitizenjournalism.Theincreaseinfreedomand‘voice’iswelcomeandliberating,butmostofthecontentontheworldwidewebhasnotbeenfilteredbyprofessionaljournalisticstandardsandoftenmakesnoclaimstobeingobjectiveorauthoritative.Thefragmentationalreadyallowsnewcommunitiestoformaroundsharedinterestsandconcerns,butontheInternet,manypeoplewillbespeakingwithnobodylistening.Thechallengeforbothestablishedandnewmediaoutletswillbetoestablishsitesandarenaswherequalityinformationcanbegatheredandstimulatingdebatescanflourish.Onlythenwilltherebeconfidencethatmoreinformed,inclusivedebateistakingplaceinthenewworldICTsarecreating.

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Only when media is diverse and pluralistic in both form and content can the competition of voices, opinions, facts and interests be fully engaged.


51PanosLondonhascompiledalistofrecommendationsandcommitmentsforstrengtheningcommunicationmadebykeyinternationaldevelopmentconferencesandagreementssincethe1980s.See:Mapping declarations and statements on communication for development,atwww.panos.org.uk/heartofchange

Open,participatoryinformationandcommunicationprocesseslieattheheartofchangingsocietiesandindividualbehaviour.Theycontributesubstantiallytobetter,moretransparentandaccountablegovernance,tothecreationofavibrantanddynamiccivilsociety,andtorapidandmoreequitableeconomicgrowth.Buttheyneedtobeputattheserviceofthepoor,whowanttobeinformed,tounderstandandcontributetothedebatesanddecisionsthataffecttheirlives–atcommunity,nationalandinternationallevels.Poorpeople–indeed,allpeople–longtospeakandbeheard.ThisisachallengeasimportantasanyoftheMDGs,foritunderpinsthemall.Itistimetotakethischallengeseriously.

Astarthasalreadybeenmade.Governments,internationalorganisationsandNGOsalreadyknowmanyofthethingsthatneedtobechangedinordertoputinformationandcommunicationatthecentreofdevelopmentinitiatives;andthereisaplethoraofdeclarations,charters,agreements,pledgesandotherstatementsofprinciplesettingoutwhatshouldbedoneinthisfield.51Whathasbeenmissingisawide-ranging,holisticapproachtotheinformationandcommunicationchallengesintheirentiretyand–evenmoreimportantly–thesustainedpoliticalwilltoaddressthem.Itispreciselybecausepoliticiansandpower-holdersrecognisetheimportanceofinformation,communicationandthemediathattheyfeartheconsequencesofincreasingaccessandavailability.

Theirreluctancehastobeovercome.Openingupinformationandcommunicationflowsdoeshaverisks.Butthebenefitsfaroutweighthoserisks.Effectivecommunicationisnotabout‘mediamanagement’,top-downpronouncements,sophisticatedpublicrelations,targetedadvertisingand‘spin’.Thoseapproachesleadtoalossofpublicconfidenceandgrowingdistrustintheintegrityoftheleadersandinstitutionsthatusethem.Effectivecommunicationemergesfromaprocessofengagementanddialogue,fromlisteningandresponding.Itoffersamorepowerfulmeansbywhichpolitical,governance,socialandeconomicobjectivescanbereachedatboththenationalandinternationallevels.

Helpingbillionsofpeoplecurrentlylivinginastateofabsolutepovertytoimprovetheirlivesisthegreatestchallengefacingtheworldoverthenext20years.Addressingtheeffectsofglobalclimatechangeatthesametime–whichislikelytoaffectpoorpeopledisproportionately–increasesthescaleofthischallenge.ReachingtheMDGsby2015willrequirehugeinvestmentsofpoliticalwillandfinancialresourcesbygovernmentsinboththedevelopedandthedevelopingworld;butitwillalsorequireabelatedrecognitionthatcommunicationiscentraltoallaspectsofsustainabledevelopment.

�� Conclusion

Conclusion

Addressingthechallengeofcommunicationisurgent.ThelatestICTrevolution–justliketheintroductionofmovabletypetotheprintingpress500yearsago–isprovidingnewtoolsandexpandingopportunitiesforpoorandmarginalisedpeopletoturninformationintoknowledge,equippingandempoweringthemtoparticipateinthedebatesanddecision-makingprocessesthataffectthem.Accesstocommunicationtechnologiesandflowsofinformationareincreasingrapidly,andthiswillhavesignificanteffectsonsocietyandpoliticsinbothdevelopedanddevelopingcountries.Governmentsandgovernanceinstitutionscannotignorethis.Theymustadapttothenetworkedworld.Strategicsupportforcommunicationprocessesshouldthereforebebuiltonthefollowingprinciples:

1Opennessandtransparencynurturegoodgovernanceandparticipatorypoliticalanddevelopmentprocesses.

2 Communicationandmediaarepublicgoods.

3 Communicationisanessentialelementofalldevelopmentinterventions.

Belowwesuggestanagendaforactionthatneedstobeundertakenbygovernments,internationalorganisations,NGOsandthemedia,ifthepowerandpotentialofinformationandcommunicationaretobemorefullyrealised.

Asaprerequisite,governmentsanddevelopmentactorsneedtorecognisethecentralroleofinformationandcommunicationindevelopment–especiallytheimportanceofstrengtheningthecapacitiesofpoorandmarginalisedpeopletoparticipateinpoliticalanddevelopmentprocesses.Communicationshouldbeidentifiedasanessentialelementofalldevelopmentcommitments,analysesandplans–atglobal,nationalandsectorallevels.FormalcommitmentstocommunicationshouldbeincludedininternationalundertakingssuchastheParisDeclarationonAidEffectivenessandtheUNMillenniumDeclaration,aswellasinnationaldevelopmentstrategies.Thesecommitmentsmustbemorethanemptyrhetoric–tobecomerealitytheyneedinputsofplanning,skillsandresources,justlikeanyotherdevelopmentgoal.Theyrequireleadershipandexpertiseatthehighestlevel.Unlesssuchcommitmentsaremadeandactedupon,developmentinterventionswillcontinuetofailandtheworld’spoorwillcontinuetobesidelined.

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Formal commitments to communication should be included in international undertakings...as well as in national development strategies.


1 Buildmoreopen,transparentinformationandcommunicationsystemsandpoliticalcultures

Governmentsshouldpromotemoreopen,participatoryinformationandcommunicationenvironmentsandthedevelopmentofapublicspherewitharighttocommunicate,byestablishingfreedomofexpressionandfreedomofinformationlegislationandsupportingitsuse.

Governmentsneedtowinthesupportandengagementoftheircitizensiftheyaretogovernpeacefullyandeffectively.Todothis,theyneedtoengagewithcitizensusingthemultiplechannelsofinformationandcommunicationthatareincreasinglyavailable,andsupportpeople’sexpectationsoftransparencyandtheirdesiretoshareinformationfreely.

Governmentsshouldensuretheirowninternalcultureandadministrativesystemsarebasedontransparency,dialogueandlistening.Thisrequiresinstitutionalchange,managerialandtechnicaltraining,andpoliticalcommitment.

Tobenefitfromnewopennessonthepartofgovernments,citizensneedtohavethecapacitiesandskillstomakeuseoftheopportunitiesofferedtothem.Thisrequiresinvestingineducation,skillsandbasicinfrastructure,aswellasdesigningcommunicationprocessesthatmatchtheculturesandsocialconditionsoftheintendedusers.

Donorscansupportcivilsocietyorganisationsandotheractors(suchastheprivatesector)tousefreedomofinformationlaws;tomonitorgovernmentperformanceandholdgovernmentsaccountable;tolobbyandparticipateinmoreopenpolicy-making(suchasPRSPs);andtobeincreasinglytransparentthemselves.Alltheseprocessesneedexpertisetodesignandleadthem,andtrainingandorganisationalchangetoimplementthem.

Donorscanpersuade,helpandsupportgovernmentstoseethelong-termbenefitsof,anddevelopthepoliticalwillfor,openandparticipatorycommunicationsystemsandprocesses,andsupporttheirdevelopment.

�� Agendaforaction

Agendaforaction

Imagecreditstoptobottom zed nelson | panos pictures

pep bonet | panos pictures

stuart freedman | panos pictures

2 Treatinformation,communicationandthemediaas‘publicgoods’andinvestaccordingly

Governments,donorsandtheprivatesectorshouldapproachcommunicationandinformationprocesses–includingthemedia–as‘publicgoods’,withinvestmentandresponsibilitiesdividedaccordingly.

GovernmentsshouldensurethatreliableandaffordableICTsareavailableforeveryone.TheyshouldfacilitatetheoperationofthemarketbyopeningnationalICTsectorstocompetitionininfrastructureandservices:competingprivateprovidersaremoreeffectivethanstateprovidersinbringinginnovation,qualityandlowcosts.

Governmentsshouldalsofillthegapsinmarketprovisionofcommunicationsandmediathroughregulationorsupport,inareaswherethemarketdoesnotmeettheneedsofpoorandmarginalisedpeople.Thismightmean,forinstance,subsidiesfortheprovisionoftelephoneservicestothepoororpeopleinremoteareas;orregulationoffrequencyallocationtoensurethatnon-profitusers(suchascommunityradiostations)arenotsqueezedoutbyprofitableactors(suchasmobilephonecompanies).

Mediainafreecompetitivemarketsufferfinancialpressuresthatoftenmilitateagainsttheircapacitytocarryouthigh-qualitypublicinterestjournalism.Governmentsanddevelopmentorganisationsshouldseekinnovativewaystoprovidefinancialsupportforpublicinterestmediacontentwithouteditorialinterferenceandwithoutundulyunderminingtheoperationofthemarket.Thisremainsachallengeforbothdevelopedanddevelopingcountries).

Governmentsshouldacttoaddressissuesthatarebeyondthecompetenceofindividualprivatesectoractors.Suchissuesmightinclude,forinstance,provisionofelectricitytoruralareas;developmentofsoftwareforlocallanguages;orleadershiptobringtogetherneighbouringgovernmentsandprivatesectoractorstosolveproblemsofinternationalICTinfrastructure.

Governmentsandotherinstitutionsneedtolearnaboutandreflectonthecostsandbenefitsofswitchingtoopensourcesoftwarestandards.Potentialbenefitsincludedesigningandintroducingsystemsthatwillbeabletoabsorbnewtechnologicaldevelopmentsinthefutureandsowillnotneedtobereplacedtoofrequently.

Developmentaiddonorsshouldsupportgovernmentsintheiractionstoredressmarketfailures.

Aiddonorsshouldalsosupportgovernmentsintheprocessesofdesigningandintroducingnewinformationandcommunicationsystems;andinbuildingtheenvironmentofskills,training,andbasicinfrastructure(suchaselectricity)withoutwhichnewICTscannotbeeffectivelyused.

InternationaldonorsshouldalsosupportthedifficultprocessesofnegotiatinginternationalICTagreements.Thevariouspartnersinvolvedinbuildingandmanaginginternationalinfrastructure–includinggovernments,privatesectorandcivilsocietyorganisations–oftenhavedifferentshort-terminterests,andthemodalitiesofworkingtogetherforlong-termandwiderbenefitareonlystartingtoemerge.

�� Attheheartofchange:Theroleofcommunicationinsustainabledevelopment

52Seealsotherecommendations–TheRomeConsensus–fromthe2006WorldCongressonCommunicationforDevelopmentinRomeatwww.devcomm.org

3 Takeaholisticviewofcommunicationprocessesandintegratecommunicationsintodevelopmentplanningandimplementation

Governmentsshouldtakeaholisticviewofinformationandcommunicationprocesses.Theyshouldestablishanoverarchingpolicyframeworkthatenablescommunicationtohelpmeettheirdevelopmentgoals(incorporatingthemedia;ICTs;knowledge,skillsandcapacities;andinstitutionalreforms).Aholisticapproachmeansstartingfromtheperspectiveofpoorandmarginalisedpeopleandunderstandingtheflowsofinformationandcommunicationthataffecttheirlives.Thiscommunicationanalysiswillinvestigatethesocialaspectsofinclusion/exclusionfromcommunication.Whoisexcluded,whyaretheyexcludedandwhatcanbedoneaboutit?

Supportforcommunicationshouldbeakeyelementinanydevelopmentsupportandplanning.Theroleofcommunicationshouldbemoreclearlyidentifiedindevelopmentanalysisandplanningbygovernments,internationalorganisationsanddevelopmentagencies,fromhigh-levelinternationalagreementsdowntolocal-levelresourcemanagementprojects.

Governmentsanddevelopmentorganisationsshouldbuildtheirownknowledgeofandexpertiseinallaspectsofcommunication.Thisneedstobeaddressedasamatterofurgency.52

�� Agendaforaction

ThesepeopleinBangalore,IndiahavetelevisionsatellitedishesbutgovernmentsshouldensurethatreliableandaffordableICTsareavailableforeveryone,eveninremoteareas.

mark henley | panos pictures

4 Investinmediadevelopment

Theestablishmentandmaintenanceofadiverse,dynamicandfreemediaisvitaltodevelopment.Theimportanceofgettingthemedia‘right’isespeciallygreatinyoungdemocracies,asmediaplaysanimportantroleinformingthenatureofsociety.Theimportanceofmediafordevelopmenthasbeenrecognisedinseveralrecentinitiativesbygovernmentsandmultilateraldevelopmentagencies,andbymediaorganisationsthemselves.Therehasalsobeenmuchdiscussionamongmediasupportorganisations,inconsultationwithdevelopingcountrymedia,onhowmediacanmosteffectivelybesupported–mostrecentlyintwoinitiativesaimedatstrengtheningAfrica’smedia.53Theseanalyseswereconsistentinhighlightingthefollowingareasifmediadevelopmentistotakeplace:

i)Establishmediafreedomandanenablingandsupportiveregulatoryenvironment

Governmentsshouldestablishasecurebaseofindividualfreedomofexpressionandaccesstoinformation;andlegislationwhichsupportsandcodifiesitsoperation.Thisincludeslegislationonlibelanddefamation,whichshouldbeclearandconsistentlyapplied.

Regulationisneededtolimitconcentrationofownershipandpromotecompetition.Legislationandlicensingconditionsshouldnotimplycontrolbygovernment:theyshouldbeindependentandcontrolledbycivilsocietyorthemediaitself,andbeimplementedtransparently.

Regulationshouldbeadoptedtofacilitatetheentryofsmallactorssuchascommunityradiostationsintothemediasector.Inmanycountries,licencesforcommunitymediainparticulararecurrentlybannedorheavilyregulated.

Internationaldonorsshouldsupportthelegislation-developmentprocesses,includingpublicconsultation,andthetrainingandinstitutionalchangesneeded–ingovernments,mediaandcivilsociety–toensurenewlawsareproperlyimplemented.

ThegrowingtrendbythedevelopmentministriesofOECDgovernmentstochannelincreasingamountsofaidindirect‘budgetsupport’todevelopingworldgovernmentsmustbebalancedbyincreasingfinancialsupporttocivilsocietyandmediadevelopmentorganisationsworkingtosupportmediafreedomandcapacityandexpandparticipatorydebate.

ii)Supportthedevelopmentofmediainfrastructureandlong-termsustainability

Governmentsshouldfindwaysofprovidingdirectandindirectsupporttofosterhigh-qualitypublicinterestmediacontent.

Governmentsshouldensuretheprovisionofadequatebasicinfrastructureandservices,whicharevitallyimportantforthemediatoworkeffectively–suchaselectricitysupplies,Internetconnectivityandtelephones.

Thecommunityradiosector,inparticular,needsfinancialsupport,sincetheresourcesofthepoorcommunitiestheyservearefrequentlyinsufficienttosupportradiostations.Suchsupportmaybeprovidedbygovernments,internationaldonorsandcivilsocietyorganisations.

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53SeetheUnitedNationsEconomicCommissionforAfrica(Draft–2006)The Case for Strengthening Media in Africa: Framework and Proposalsat:www.uneca.org/africanmediaandtheBBCWorldServiceTrust(2006)African Media Development Initiative(seefootnote21)


iii)Buildmediacapacityandprofessionalism

Governments,internationaldonorsandmediasupportorganisationsshouldallsupportthefollowing:

Traininginjournalism(andmediamanagement).Goodmedianeedskilledandprofessionaljournalists.

Establishinganddevelopingjournalismandmediainstitutionssuchasassociationsandunions.Thesecanhelptobuildtheprofessionalism,standardsandstrengthofthemediaprofessions.

Initiativestogivejournaliststhespecialistknowledgetheyrequiretounderstandandreportoneconomic,environmental,healthandotherpolicyissues–bothatnationalandinternationallevels.

iv)Supportimprovementinthequalityanddiversityofmediacontent

Governmentsshouldintroducepolicyandregulatoryframeworksandsupportsystemsforencouragingandsupportinglocalmediacontent(whichcostsmuchmoretoproducethanreproducingglobalmediacontentsuchasimportedsoapoperas).Internationaldevelopmentandmediasupportorganisationscandirectlysupportsuchinitiativesandlocalcontentproduction.

Media,mediainstitutionswithincountries,andinternationalsupportorganisationsshouldallplayaroleindevelopingthepublic’s‘medialiteracy’.Thiswouldenableaudiencestodistinguishgoodqualitymediafrombad,objectivityfrompartisanship,opinionfromanalysis,andinvestigativereportingfromslander.

Governments,internationalorganisationsandthemediathemselvesshouldsupportpublicdebateonthenorms,standardsandexpectationsofthemedia–tobuildawarenessandsharedstandardsonfreedom,content,andsocialresponsibility,ifany.

Civilsocietyorganisationsandgovernmentcancontributetoimprovingthequalityofdebateinthemediaiftheyseethemediaaspartners,valuetheircontributionasindependentsocialactorsandactivelyseektoengagewiththem.

�1 Agendaforaction

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Notes


AboutPanosLondon

Inclusive

Webelievethatembracingtheviewsofpoorandmarginalisedpeopleisessentialforsustainableandeffectivedevelopment.

Takingpartindialogueanddebatecontributestoahealthyandvibrantsociety.

Empowering

Webelievethatpoorandmarginalisedpeopleshoulddriveandshapethechangesneededtoimprovetheirlives.

Weenablepeopletoshareinformationandideas,speakoutandbeheard.

Balanced

Webelievepeopleneedaccessibleinformationreflectingawiderangeofviews.

Thisallowsthemtomakeinformedchoicesaboutcrucialissuesthathaveanimpactontheirlives.

Diverse

Werespectdifferentviews,valuelocalknowledgeandencouragearangeofapproachesinourworkworldwide.

Webelievethatfreedomofinformationandmediadiversityareessentialfordevelopment.

Illuminating

Weshedlightonignored,misrepresentedormisunderstooddevelopmentissues.

Webelievethattheviewsofpoorandmarginalisedpeoplegivegreaterinsightintotheirlivesandofferuniqueperspectivesonthechallengestheyface.

www.panos.org.uk Imagecreditstoptobottom sven torfinn | panos pictures

marc french | panos pictures borje tobiasson | panos pictures karen robinson | panos pictures giacomo pirozzi | panos pictures

PanosLondon9WhiteLionStreetLondonN19PDUnitedKingdom

Inthislandmarkpublication,PanosLondonsetsoutwhatitbelievesshouldbetheroleofcommunicationinlong-term,sustainabledevelopment.Itchallengesgovernmentsandallinvolvedinpolicy-makingandplanningtolistentotheviewsofordinarypeople,toinvolvecivilsocietyindecision-makingandtorecognisetheimportantpartthemediacanplayindebatingdevelopmentissuesandchallenginggovernmentaccountability.

Writteninaclearandconcisestyle,At the heart of changesuggestsfourkeyareasforactionbygovernments,NGOs,themediaandinternationalorganisations,inordertorealisethepowerandpotentialofinformationandcommunication.

tel+44(0)2072781111fax+44(0)[email protected]

CoverimageBelongingtoacooperativegroupgivesthesewomeninCameroonthechancetocommunicatetheirviewsmorewidely.Sustainabledevelopmentdemandsthatpeopleparticipateinthedebatesanddecisionsthataffecttheirlives.

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