DRAFT
COMPREHENSIVE DISASTER RISK MANAGEMENT PROGRAMME (CDRMP)
COMMUNICATION STRATEGY
UNDP NEPAL JUNE 2013
Prepared by: Dr. Orlando S. Mercado, International Consultant
TABLE OF CONTENTS I. Problem Analysis II. Program/Policy Analysis A. Current Legal and Institutional Systems B. National Strategy for Disaster Risk Management C. Comprehensive Disaster Risk Management Programme D. Communication Resources and Channels III. Stakeholder Analysis A. Beneficiaries B. Partners C. Promotional Groups D. Perceived Gaps in Communication IV. Strategic Design A. Communication Objectives B. Principles C. Key Messages V. Communication Strategy VI. Monitoring and Evaluation VII. Anticipated Outcomes/Impacts References
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I.
Problem Analysis
Natural hazards occur frequently around the world each year. These hazards have led to tremendous loss of lives, property and socio-economic assets. Developing countries are especially at-risk for economic losses that far exceed their gross national product (GDP) and their capacity to recuperate. For example, total damage caused by natural disasters in 2002 exceeded the economic performance of Mongolia, Laos, Tajikistan, Armenia, Kyrgyzstan and Papua New Guinea. The trend apparently creates a development gap in some countries (Asian Disaster Reduction Center, 2002). The adverse effects of natural hazards are worsened primarily by human activities such as land conversion, pollution and forest degradation, among others. While a number of countries are struggling to achieve environmental sustainability and mitigate disasters, other areas remain highly vulnerable to natural hazards, owing to factors other than geophysical conditions and unsustainable environmental practices. Nepal is one of the countries that are highly vulnerable to natural hazards and disasters. The UNDP Bureau for Crisis Prevention and Recovery (BCPR, cited in www.cdrmp.org.np) ranked Nepal 11th in terms of relative vulnerability to earthquakes, and 30th in terms of vulnerability to floods. Furthermore, the population is constantly at risk of being affected by a wide range of diseases. Figures from the OFDA/CRED International Database showed that from 1980-2010, there has been high occurrence of epidemic outbreaks in Nepal (Figure 1). According to the Nepal 2011 Disaster Report 2011, epidemic remains the deadliest disaster in the country, registering an average of around 410 deaths annually (MOHA, 2011). They have been increasingly linked with other disasters such as floods. While earthquakes have been less frequent in the same period, it has caused considerable displacement and loss of human lives, along with floods and epidemics (Figures 2 and 3). Moreover, it is also responsible for the accumulated economic damages registered in the same period (Figure 4). (http://www.preventionweb.net/english/countries/statistics/?cid=121). Typical climate in Nepal is characterized by extreme summer and winter temperatures. Cyclonic winds and hail storms heavily have damaged agricultural crops, while frequent glacier lakes outburst floods (GLOFs) and avalanches continue to erode the mountain ranges and destroy dams and lakes (MOHA, 2009). It is primarily the presence of these natural hazards that make Nepal highly susceptible to damages brought by disasters.
Figure 1. Natural disaster occurrence reported in Nepal from 1980-2010. *including tsunami. Source: "EM-DAT: The OFDA/CRED International Disaster Database, Universit catholique de Louvain, Brussels, Belgium� (in http://www.preventionweb.net/english/countries/statistics/?cid=121)
Figure 2. Percentage of people reported killed in Nepal, by disaster type (1980-2010). *including tsunami. Source: "EM-DAT: The OFDA/CRED International Disaster Database, Universit catholique de Louvain, Brussels, Belgium� (in http://www.preventionweb.net/english/countries/statistics/?cid=121)
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Figure 3. Percentage of people reported affected, by disaster type (1980-2010). *including tsunami. Source: "EM-DAT: The OFDA/CRED International Disaster Database, Universit catholique de Louvain, Brussels, Belgium� (in http://www.preventionweb.net/english/countries/statistics/?cid=121)
Figure 4. Estimated economic damages reported by disaster type (1980-2010). *including tsunami. Source: "EM-DAT: The OFDA/CRED International Disaster Database, Universit catholique de Louvain, Brussels, Belgium� (in http://www.preventionweb.net/english/countries/statistics/?cid=121)
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Geophysical conditions are not the sole contributor to the increasing risk of communities to disasters. The lack of disaster-resistant infrastructures continues to heighten the risk of upland communities to earthquakes. Rapid population growth has led to urban congestion and encroachment of high-risk areas. Moreover, ethnic conflicts and political turbulence have resulted in displacement of communities, loss of livelihood opportunities, loss of social cohesion, and ultimately, poverty.
II.
Program/Policy Analysis
A. Current Legal and Institutional Systems One of the most important aspects of disaster risk management and crisis management is an enabling policy/legislative environment that allows for the effective implementation of disaster risk management. This section provides an analysis of the existing policy and institutional systems for disaster risk and crisis management. The Natural Calamity Relief Act 2039, which took effect in 1982, has since mandated the Government of Nepal to establish and implement disaster preparation and response mechanisms. It allowed for the decentralization of disaster management efforts among zones and districts in Nepal. The law constituted the establishment of the Central Disaster Relief Committee (CDRC), which is led by the Minister of Home Affairs. The committee consisted of the secretaries of the different Ministries of the government, as well as representatives from government-based social welfare and research institutions. CDRC in the past usually convened post-disaster to plan for disaster response and support for the victims. However, with the increasing impacts of natural hazards on communities, CDRC has been meeting around twice a year to plan for disaster preparedness initiatives. Regional Service Centers were also established under the NCRA during extreme disaster events, such as the Udaypur earthquake in eastern Nepal in 1988, and the 1993 flood in the south central region. These centers directed relief and response efforts in many districts affected by largescale disasters. However, after each operation, the centers were eventually closed. On the other hand, more permanent disaster management structures were established in the districts. District Disaster Relief Committees (DDRC) became responsible for orchestrating district-level relief and response operations. These committees were led by respective Chief District Officers and consisted of district-level government officials. However, the existing disaster risk management structure in Nepal remains largely tentative and “paper-based” as the political and legal structures are suspended in a “vacuum.”
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The draft report on NSDRM in Nepal (MOHA, 2009) explained loopholes in legislation on disaster risk management. For instance, the Natural Calamity Relief Act 2039, implemented in 1982, failed to transform disaster mitigation efforts from reactive to proactive in nature. Furthermore, it did not provide for mechanisms to mainstream disaster risk management into development projects. Likewise, the Local Self-Governance Act, enacted in 1999 and which mandated the decentralization of disaster risk management efforts in zones and districts, has since been poorly implemented due to lack of financial and policy support. Because of delayed or suspended election of representatives, units have performed poorly. Agencies involved in the field have often been overwhelmed by the enormity of disasters.
B. NSDRM The National Strategy for Disaster Risk Management (NSDRM) was developed to help transform Nepal from being disaster-vulnerable to being disaster-resilient, based on the principles agreed upon in the Hyogo Framework for Action (2005-2015). It laid out long-term strategic programs on disaster risk management planning and implementation in different sectors and across all levels. Five priority areas were identified based on the principles of the HFA. These are the following (MOHA, 2009): 1) Ensure that disaster risk reduction is a national and local priority with a strong institutional basis for implementation 2) Identify, assess and monitor disaster risks and enhance early warning 3) Better knowledge management for building a culture of safety 4) Reducing risks in key sectors and establishment of DRR mechanisms 5) Enhance preparedness for effective response. The draft report on NSDRM (MOHA, 2009) recognized the lack of institutional capacity and participation from stakeholders in knowledge sharing initiatives for disaster risk management and crisis management. In response to this problem, some of the strategic activities set out in the report are: 1) to establish a strong and comprehensive national program for disaster awareness and training; and 2) formulate initiatives that maximize the use of mass communication media to share information on disaster risk management. Below is a table that magnifies these strategic activities (Table 1).
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Table 1. Proposed strategic activities in NSDRM that contribute to the development of a national program on disaster awareness, community education and institutionalization. 1 Strategic Activity Develop and implement a comprehensive national program for disaster awareness and training
Develop plans, programs and facilitate use of mass communication media for information dissemination on disaster risk management
Develop/strengthen and encourage awareness-raising programs on DRM at the local level
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Indicative Activity and Outcomes Formulate and implement special programs to develop a cadre of practitioners, professionals and support staff/personnel for disaster risk handling at DDC, VDC, municipality and ward levels Develop public awareness materials targeting a variety of groups including parliamentarians, bureaucrats, politicians, etc. Develop a system and organize media orientations about its role in promoting disaster risk management and community preparedness Encourage use of FM radio, print and electronic media, among other forms of communication Encourage development of awareness-raising plans and programs at the local level Use of various communication media Encourage use of indigenous knowledge Ensure smooth flow of information through local media for disaster-prone communities
Responsible Authority/Organization Ministries, departments and agencies responsible for this implementation NADRM
Ministry of Information and Communication Media forums NADRM
NADRM, DADRM, MADRM
Source: National Strategy for Disaster Risk Management in Nepal (MOHA, 2009).
The Comprehensive Disaster Risk Management Programme (CDRMP), approved by the Government of Nepal in 2011, was established by UNDP to augment the implementation of the country’s National Strategy for Disaster Risk Management (NSDRM). Thus, CDRMP has had a working relationship with the various agencies involved in the implementation of NSDRM. 6
However, the role of the Ministry of Information and Communication can further be expanded from merely information dissemination to capacity-building and disaster awareness training.
C. CDRMP The Comprehensive Disaster Risk Management Programme (CDRMP), approved by the Government of Nepal in 2011, was established by UNDP to augment the implementation of the country’s National Strategy for Disaster Risk Management (NSDRM). CDRMP aims to provide institutional and legislative support to key stakeholders of NSDRM, particularly the government, business sector, civil society groups and other partners, mainly to strengthen the capacity of and linkages among key stakeholders. The following are the objectives of CDRMP (http://www.cdrmp.org.np//about-cdrmp-21.html): 1) Reduce the physical vulnerability through support for application and enforcement of building codes and by-laws 2) Strengthen the overall system of disaster risk management in Nepal through the intervention in the area of climate risk management, community-based disaster risk management, and emergency preparedness 3) Enhance partnerships with the Government, NGOs, academia, private sector and civil society and expand the institutional and knowledge base of disaster risk management 4) Support to establish strategic linkages between DRM and development sectors. Program areas that contribute to the goals of CDRMP include climate risk management, community-based disaster risk management, emergency preparedness and response and early recovery. CDRMP also includes a mainstreaming component, incorporating disaster risk management into institutions and development plans of the Government of Nepal. The program areas tackle on themes of gender and social inclusion, as well as monitoring and evaluation. CDRMP is also engaged in knowledge management to raise awareness, promote interest and facilitate information sharing among different stakeholders. Initiatives that entail this objective include a National Disaster Risk Management Portal and Communities of Practice in different areas in Nepal. CDRMP contributes to the consolidated international effort to ensure environmental sustainability, ascribed by the United Nations as one of the Millennium Development Goals. Under this goal, targets have been put up to ensure that biodiversity and environmental conservation as well as sustainable development is fully integrated into national and global policies and attained before the year 2015. Furthermore, by working with local and international
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organizations, CDRMP builds upon MDG No. 8, which is fostering global partnership for development. While a number of its programs are already a work in progress, the knowledge management component of CDRMP is yet to be fully developed and launched. Essential to the success of the program is the proactive participation of the key stakeholders in the planning, implementation and evaluation of the main program areas. As a constituency, media plays an important role in promoting DRM/CM initiatives. They help shape decisions of policymakers, legislators, communities and other stakeholders in reducing disaster impacts. Media constituents have to respond effectively to the communication and information needs of key stakeholders and eventually transform communities from disaster-vulnerable to disasterresilient. It is thus imperative that a strategic communication strategy be developed, tapping the media to promote the main program areas of CDRMP and further engage communities in disaster risk management and crisis management initiatives. Table 2 outlines the strengths, weaknesses, opportunities and threats that CDRMP may consider as it implements the communication strategy.
Table 2. Strengths, Weaknesses, Opportunities and Threats Analysis (SWOT). Strengths Disaster risk management, a field which CDRMP builds upon, is a very relevant issue in Nepal Definite CDRMP program framework built on the NSDRM and HFA principles
Weaknesses Knowledge management component of CDRMP is yet in its planning stage as compared to other program areas
Opportunities Strong linkages with working partners, the Government of Nepal, other I/NGOs, civil society groups
Threats The existing political/legal structure in Nepal is tentative/unstable Some disaster risk management policies such as the NCRA and LSGA are poorly implemented The NSDRM is still a work in progress and yet to be fully approved by the GoN
Partnership with media and MOIC needs to be established for promotion of advocacies
Vulnerability of communication systems to natural hazards Lack of definite media standards and ethics Remoteness of areas (e.g. upland communities, mountainous areas) targeted by CDRMP as beneficiaries 8
D. Communication Resources and Channels The media landscape in Nepal is relatively diverse. The Media and Telecoms Landscape Guide (2011) indicated that in mid-2011, Nepal had around 15 operating television stations, more than 300 licensed radio stations, and several hundred newspapers and magazines. However, only some of the channels have been influential to the Nepali population. 1. Radio The 2011 Media and Telecoms Landscape Guide noted that while television is gaining ground in urban communities as a predominant source of news, radio is the preferred communication channel in the rural areas, where majority of the population in Nepal reside. Private broadcasting through radio and television had been prevalent since the end of government monopolies of these networks in 1997 and 2002, respectively. Radio stations have been owned by businesses (40%), non-government/non-profit organizations (40%), and cooperatives (15%). According to a report by the Ministry of Information and Communications in Nepal (MOIC, 2011), Nepal has a wide FM radio coverage, with over 449 FM transmitters distributed across the country. However, only 46 of these carry over 1 kW of power. Aside from that, there are broadcasting stations operating through medium- and short-wave radio, ideal for reaching communities in mountainous regions. Three main national radio broadcasting companies include Radio Nepal, Kantipur Radio and Image Channel. Some of the airtime from these companies are leased by BBC, which broadcasts its programs through the networked stations. Meanwhile, some of the largest news-sharing radio networks in Nepal, which can be used to expand information dissemination initiatives on disaster risk management, are the Ulyalo 90 Network, Nepal FM, Community Information Network , which is under the Association of Community Radio Broadcasters Nepal (ACORAB), and the ABC Network. A number of non-government institutions also produce and broadcast popular radio programs. Among them are the Antenna Foundation Nepal (AFN) and Search for Common Ground (SFCG). Some radio programs have become popular, mainly because they elicit discussions about social and community issues . A few of these are: the Chinophano program, Mero Jindagi, a radio documentary series, Hamro Nepal Ramro Nepal, a discussion program, and the Saathi Sanga Manka Kura, which is produced by Equal Access, a US-based media development agency. Listening groups have been established in rural communities for people to be able to discuss the issues pointed out in the said radio programs. Most radio stations broadcast in Nepali, but news bulletins are delivered in a variety of languages and dialects, including English. 9
Since radio is a predominant communication channel in Nepal, it can be used by CDRMP to disseminate brief but substantial messages about disaster risk management and crisis management. CDRMP can tie up with the popular radio stations as well as NGOs working on radio broadcasting for this initiative. 2. Television In 2011, at least 15 television channels were on air in the country. However, rather than being terrestrial in nature, most of them relied on satellite and cable networks. Out of the thirty-two (32) television stations operating nationwide, the government-owned Nepal Television, along with its subsidiaries, is the one of the few stations that implements terrestrial television broadcasting in Nepal. It reaches half of Nepal and 72% of its population. Meanwhile, predominant private terrestrial stations include the Kantipur TV and Lumbini TV. These private stations have now become increasingly popular compared to the government counterpart, Nepal TV. While most TV stations broadcast in the Nepali language, a number of them, such as the TTV and Nepal 1 (an India-based TV station) broadcast in the Maitheli, Tharu and Bhojpuri dialects, spoken in the Terai region of southern Nepal. According to the Media and Telecoms Landscape Guide, comedy dramas and programs that delve into social and political issues are likewise becoming more popular than ever. However, Indian soap operas are also catching up with these programs. They are popular especially among housewives and young women. Being prevalent in the urban areas in Nepal, the television can be tapped to allow information exchange about disaster risk management among city dwellers. 3. Newspapers and Dailies The Press Council Nepal 2010 annual report (in Media and Telecoms Landscape Guide 2011) indicated a flourishing print media industry, with over 100 daily and 500 weekly newspapers. The nation’s largest newspaper, Kantipur, has a wide circulation, selling a daily average of around 250,000 papers. Next to The Himalayan Times, it also is popular among the Englishspeaking elites, through its English counterpart, The Kathmandu Post. Other popular newspapers are the Annapurna Post, Nepal Samacharpatra, and Nagarik. These papers also have English counterparts. On the other hand, other newspapers are written in other local dialects of Nepal. These papers are popular mainly among business organizations as well as government institutions and policymakers. Most of the newspaper companies have their own websites available in Nepali and English languages. Newspapers will be a good venue for CDRMP to promote its program areas to policymakers and keep them updated of the progress of the program as well as possible areas for cooperation. 10
4. Social Media The National Telecommunication Authority (NTA) of Nepal reported that in March 2011, about 2.3 million people subscribed to the internet. The Media and Telecoms Landscape Guide 2011 presumed that these likely came from foreigners and aid organizations and communities working in the country. More and more people have tuned in to the Internet as a source of information, owing to a number of factors such as the rapid fall of internet connection fees, availability of internet through mobile phones, and the migration of newspapers into news websites. Additionally, social networking sites such as Facebook have been very popular among youth in cities and other urban areas. In 2011, there were around 850,000 Facebook users in Nepal. According to the FNJ Social Media Survey 2012 (in Nepal Monitor, 2012), social networks were also prevalent among journalists, who now had access to the internet either at work or at home. The survey suggests that most of the journalists use social media as a tool for research, news gathering, as well as communication. The journalists were also generally engaged in blogging and “micro-blogging�, using Blogger, Twitter or Youtube as preferred social media. Alongside print and broadcast media, social media may serve as a complement channel to reach out to the urban population. Likewise, it can be a venue for journalists to engage in online discussions and skills training on disaster risk management and crisis management. 5. Traditional Media In remote areas where access to print, radio and social media is almost impossible to establish, indigenous or traditional media can be a powerful tool to disseminate information about disaster risk management. Community audio tower systems and loudspeakers can be used to send short public service announcements about disasters and what CDRMP is doing in the field of disaster risk management. Print materials such as posters, flyers, banners and stickers are also an indispensable tool for promoting the advocacies of CDRMP. Town fairs and debate activities can feature community leaders that possess indigenous knowledge on disaster risk management. Local cinemas can likewise be a venue for local filmmakers to feature films that present subliminal messages on disaster risk management.
III.
Stakeholder Analysis
This section will identify the possible stakeholders that will be involved in the implementation of the communication strategy. These stakeholders will be segmented into three (3) possible roles: 1) beneficiaries; 2) partners; and 3) promotional groups.
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A. Beneficiaries Nepal is a mountainous country sandwiched between China (north) and India (south). It is geographically divided into three regions: the Tarai, or plain, region, where almost half of the Nepali population reside; the hilly region, where other bulk of the population lives; and the mountain region, inhabited by 8% of the population. The urban capital of Nepal, Kathmandu, is home to almost a million residents, one-third of which live in the slums. In 2010, 19% of the population live in urban areas, and the annual urbanization rate is pegged at 4.7% (http://www.dpnet.org.np/index.php?pageName=facts). Agricultural activities are predominant in the Tarai region and are the main source of income for most Nepali people. Meanwhile, industries, tourism and the international sector also contribute to the country’s growth. Almost half of the Nepali population lives below the poverty line. In terms of literacy, the literacy rate in Nepal is at 48.6%, of which more males are literate (62.7%) than females (34.9). Nepal is characterized by a multilingual, multireligious and multiethnic society. Nepali is the official language of the country. However other local languages such as Maithali and Bhojpuri are spoken in other areas. On the other hand, English is occasionally spoken in government institutions and businesses. In terms of ethnicity, Nepal is home to castes and ethnic groups such as Chhettri, Brahman-Hill and Magar. Majority of the people practice Hinduism and others are mostly Buddhists or Muslims. A consideration of the different communication needs and interests of each of the different beneficiaries will effectively help attain the objectives of the communication strategy. The beneficiaries of the CDRMP communication strategy can include the following: 1) general public; 2) urban communities; 3) rural communities; and 4) ethnic groups.
B. Partners A number of partners, donors and technical service providers are currently working with the CDRMP to attain its program objectives (Table 3). However, to further expand the informationsharing capacities of the program, a possible partnership with the Ministry of Information and Communications as well as various media organizations in Nepal can be established.
C. Promotional Groups These promotional groups will be responsible in pushing for the program areas and objectives of CDRMP and in spreading knowledge about disaster risk management and crisis management to different districts and zones in Nepal. This can be composed of the 1) local/district-level 12
councils; 2) local non-government organizations; 3) business organizations; 4) media; and 5) disaster risk management practitioners. Table 4 summarizes the segmentation of stakeholders for the CDRMP Communication Strategy.
Table 3. CDRMP partners, by specific role.1 Main Partners Ministry of Home Affairs Ministry of Local Development Ministry of Physical Planning and Works National Planning Commission UN Office for the Coordination of Humanitarian Affairs Oxfam Great Britain
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Donors European Commission – Humanitarian Aid and Civil Protection Department for International Development (DFID)
Technical Service Providers Asia Disaster Preparedness Center National Society of Earthquake Technology
Source: http://www.cdrmp.org.np//partners-22.html
Table 4. Stakeholder/audience segmentation for the CDRMP Communication Strategy. Stakeholder Roles Beneficiaries
Partners
Stakeholders General public Urban communities Rural communities Ethnic groups Main Partners: Ministry of Home Affairs Ministry of Local Development Ministry of Physical Planning and Works National Planning Commission UN Office for the Coordination of Humanitarian Affairs Oxfam Great Britain Donors: European Commission – Humanitarian Aid and Civil Protection Department for International Development (DFID) Technical Service Providers: 13
Stakeholder Roles
Promotional Groups
Stakeholders Asia Disaster Preparedness Center National Society of Earthquake Technology Local/district-level councils Non-government organizations Business organizations Media Disaster risk management practitioners
D. Perceived Gaps in Communication The NSDRM report (MOHA, 2009) noted that there is limited access to, and understanding of, information about disaster risks in the communities. Knowledge sharing is predominantly active in schools, universities and other academic institutions. However, as disasters have largely affected all kinds of societal institutions, the exchange of information about disasters ought to cover communities especially in high-risk areas. Gaps in communication and coordination among institutions in the field of disaster risk and crisis management have also added to the vulnerability of high-risk areas. These gaps were acknowledged by a number of media practitioners in Nepal, during the training of trainers on the “Role of Media in Disaster Risk and Crisis Management� held in Dhulikhel, Nepal from 2-5 June 2013. They noted that communication systems are equally vulnerable to hazards and disasters, likely leading to delayed or poorly-implemented information sharing systems. Additionally there are low levels of citizen awareness and commitment to disaster risk management efforts. More importantly, institutions apparently lack the capacity to effectively communicate disaster risks and crises with relevant stakeholders. If these gaps remain unaddressed, communities may not be able to fully understand their roles in disaster risk management and crisis management. Thus, they may not be fully mobilized to participate in disaster risk reduction and mitigation efforts. Essential to the success of the program is the proactive participation of the key stakeholders in the planning, implementation and evaluation of the main program areas. As a constituency, media plays an important role in promoting DRM/CM initiatives. They help shape decisions of policymakers, legislators, communities and other stakeholders in reducing disaster impacts. Media constituents have to respond effectively to the communication and information needs of key stakeholders and eventually transform communities from disaster-vulnerable to disasterresilient.
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It is thus imperative that a strategic communication strategy be developed, tapping the media to promote the main program areas of CDRMP and further engage communities in disaster risk management and crisis management initiatives.
IV.
Strategic Design
The CDRMP Communication Strategy should be able to address the two main communication challenges: 1) effectively engaging relevant beneficiaries in efforts to transform Nepal into a safe and disaster-resilient country (demand side); and 2) enhancing capacities of the CDRMP partners and promotional agencies to share knowledge, experiences and practices in disaster risk and crisis management (supply side).
A. Communication Objectives Following the thrusts of the NSDRM and the Hyogo Action Framework as well as the program objectives of CDRMP, the CDRMP Communication Strategy will specifically address the following objectives: 1. To raise awareness and understanding of disaster risk and crisis management among the beneficiaries; 2. To ensure the active participation and commitment of beneficiaries in disaster risk management and crisis management initiatives, particularly that of CDRMP; 3. To strengthen linkages and improve coordination between the main partners, donor agencies and technical service providers of CDRMP towards a holistic, synergistic approach to relevant initiatives on disaster risk management and crisis management; 4. To enhance the capacity of promotional agencies (i.e., media, local-level councils, and disaster risk management practitioners) to share relevant information and knowledge about disaster risk management and crisis management at the local level.
B. Principles The communication strategy is grounded on a number of strategic communication principles. The following are the principles on which this strategy is based: 1. While the general public is being considered as the main beneficiary of this communication strategy, it is important to further segment this huge chunk of audience according to their communication needs and media use. Each segment prefers a different message, approach and media use. Segmentation is also essential in identifying stakeholders that should be prioritized. 15
2. Likewise, communication initiatives should be designed in a way that would fit the local or regional context in which they are implemented. 3. The design of messages, methods and approaches can only be clearly defined and consistent with constant research and monitoring. The needs and capacities of stakeholders change from time to time, which is why research and data gathering should be consistent throughout the strategy implementation. 4. The complexity of development problems warrants a more participative and interactive communication system as one of the solutions. Beneficiaries should be able to participate in the planning, implementation and evaluation process of the program. This can help ensure their commitment and accountability to the objectives of this strategy. 5. Studies evaluating communication campaigns recommend the use of a variety of media, including traditional/folk media, interpersonal channels and the social media. Broadcast media such as radio and television may be the most preferred media in Nepal, but in areas with limited resources, traditional media such as community radio, live theaters, folk songs, etc., can be used to disseminate disaster risk management messages. Interpersonal channels such as village development council leaders and disaster risk management practitioners working in the frontlines can also be used to reinforce the use of other media. 6. Another important principle is the application of the “entertainment-education” (“entereducate”) approach. According to Piotrow (1994), this technique, which involves the presentation of educational messages in the form of entertainment, has been effective not only in raising awareness, but also in invoking understanding and commitment to action among audiences. 7. Experience in disaster risk communication has reiterated that it is always timely to talk about disasters. Thus, discussions in this field should continue even when there are no disasters. On the other hand, this strategy is also bound with certain organizational principles. Different institutions and agencies working towards a goal should be well-coordinated. This is to further define roles and responsibilities of each institution. To achieve this, building of partnerships and networking activities should be done to integrate the efforts of organizations working in the program.
C. Key Messages The key messages to be used in the implementation of this strategy will be grouped per stakeholder group: the 1) beneficiaries, 2) partners, and 3) promotional groups. These key messages will be broken down into more specific details if needed. Treatment for each message will vary depending on the specific communication needs of the stakeholders under each target
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group. It is thus imperative that these key messages be discussed and reshaped with the key stakeholders of CDRMP. The following are the key messages that will shape the CDRMP Communication Strategy: 1. Nepal is one of the most disaster-vulnerable countries in the world. a. Disaster profile, trends in Nepal b. Factors contributing to vulnerability of Nepal to disasters c. Effect of disasters in general/on urban communities/rural communities/ethnic groups/youth 2. Existing disaster risk management and crisis management efforts alone cannot alleviate the impacts of large-scale disasters in Nepal. a. Institutional/legal scenario in Nepal b. Challenges and opportunities facing disaster risk management and crisis management initiatives 3. CDRMP supports Nepal in its disaster risk management and crisis management efforts. a. CDRMP in a nutshell b. Objectives of CDRMP c. Program areas and themes of CDRMP d. Linkages e. How they can help Along with the abovementioned messages, the following specific messages will be tailored to fit the needs of the stakeholder groups. 4. Stakeholder-specific messages for Beneficiaries: communities must act in order to build a culture of safety and resilience in Nepal. a. Steps on how to avoid/prevent disasters b. Steps on how to react/respond during disasters c. Steps on how to respond post-disaster 5. Stakeholder-specific message for Partners: coordination and networking is important in building a culture of safety and resilience in Nepal. a. Database of contacts in organizations b. Implementing rules and guidelines for coordination of efforts c. Roles and responsibilities of partners 6. Stakeholder-specific messages for Promotional Groups: you can help build a culture of safety and resilience in Nepal. a. Role of communication in disaster risk/crisis management b. Guidelines for responsible disaster risk/crisis communication ; before, after and during a crisis or disaster c. Innovative practices for media/local leaders/practitioners in the field of disaster risk management or crisis management 17
V.
Communication Strategy
Table 5 summarizes the CDRMP Communication Strategy, including the objectives, messages, media and related activities to be implemented, as well as the timeframe and partner organizations to be involved. To address the demand side of the CDRMP communication strategy, or the beneficiaries’ needs, information, education and communication (IEC) activities and materials aimed at raising awareness and eliciting participation from the beneficiaries should be implemented. The design and development of relevant communication programs and materials should involve the beneficiaries. This will warrant the assistance of a development communication specialist or a risk communication specialist in engaging the communities in this initiative. In addition, the Disaster Risk Management Portal that is yet to be developed by CDRMP can be an indispensable tool for people seeking technical assistance/expertise in disaster risk/crisis management. Because most internet users come from the urban population and the youth, the portal should be made as interactive and as simple as possible. Furthermore, for easy access, the portal should consume the least internet bandwidth as possible. The Communities of Practice planned by CDRMP is a good way to establish networking and linkages among communities, institutions and other key stakeholders. These COPs should be able to conduct regular meetings to be able to share timely and relevant information on DRM/CM. They can also be established online as part of the DRM Portal. Newsgroups and online discussion boards can be constructed for this purpose. To promote the image of CDRMP, basic information about the program should consistently be plugged into the communication materials and activities. The strategy will also use the “Enter-Educate� approach. One of the proposed activities will be a gathering of professionals working in the entertainment industry to incorporate disaster risk management messages into movie/television scripts as well as radio drama scripts. This will also help the general audience to be aware of, understand, and commit to action in disaster risk management. To implement the strategy effectively, a committee consisting of the Ministry of Information and Communications, the CDRMP Programme Staff, and a representative from other ministries, NGOs, civil society groups, media, local development councils and technical service providers should be formed. The committee will meet quarterly to coordinate efforts and monitor the progress of the communication activities being carried out under each objective. The strategy will be implemented and decentralized at the national, regional, district and community level.
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Table 5. The CDRMP Communication Strategy. Objectives 1. To raise awareness and understanding of disaster risk and crisis management among the beneficiaries
Target Stakeholders General public
Urban communities
Rural communities
Messages
Channels
1. Nepal is one of the most disastervulnerable countries in the world. a. Disaster profile, trends in Nepal b. Factors contributing to vulnerability of Nepal to disasters c. Effect of disasters in general/on urban communities/rural communities/ethn ic groups/youth 2. Existing disaster risk management and crisis management efforts alone cannot alleviate the impacts of large-scale disasters in Nepal. a. Institutional/legal scenario in Nepal
Activities
Newspaper ads Radio spots Radio dramas Commercials/infomercials IEC materials such as brochures, posters, flyers Press releases
Newspaper ads Radio spots Radio dramas TV commercials/infomercials E-advertisements
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Community audio tower systems Radio programs Radio spots
Plugging of CDRMP activities and programs in radio and newspaper advertisements DRM/CM concepts presentation in infomercials Plugging of CDRMP activities and programs in radio and newspaper advertisements DRM/CM concepts presentation in infomercials Posting of eadvertisements in most visited webpages such as Yahoo!, Facebook, Twitter, etc. Setting up of centralized community audio tower systems that air messages on
Objectives
Target Stakeholders
Ethnic groups
Messages
Channels
b. Challenges and opportunities facing disaster risk management and crisis management initiatives
Activities
Community audio tower systems Radio programs Radio spots
2. To ensure the active participation and commitment of beneficiaries in disaster risk management and crisis management initiatives, particularly that of CDRMP
General public
Urban communities
3. CDRMP supports Nepal in its disaster risk management and crisis management efforts. a. CDRMP in a nutshell b. Objectives of CDRMP c. Program areas and themes of CDRMP d. Linkages
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IEC materials such as brochures, posters, flyers House-to-house visits Press releases
DRM portal and online fora Social networking pages such as Facebook Concert House-to-house visits
DRM/CM and promote CDRMP Production of radio programs and spots on DRM/CM Setting up of centralized community audio tower systems that air messages on DRM/CM and promote CDRMP Production of radio programs and spots on DRM/CM Distribution of IEC materials calling public action towards DRM/CM Conduct of house-tohouse visits by communication personnel Setting up of DRM portal Holding of concerts that also incorporate relevant concepts of DRM/CM
Objectives
Target Stakeholders
Rural communities
Messages
Channels
e. How they can help CDRMP 4. Stakeholderspecific messages for Beneficiaries: communities must act in order to build a culture of safety and resilience in Nepal. a. Steps on how to avoid/prevent disasters b. Steps on how to react/respond during disasters c. Steps on how to respond postdisaster
Train/bus/taxi advertisements Free seminars
Activities
House-to-house visits Town meetings Free seminars Folk media such as puppets, live theatre, folk songs and dances, etc. Field demonstrations Training activities
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Posting of ads on taxis, buses or trains in the city Setting up a Facebook Page dedicated to DRM/CM in Nepal Holding of free seminars on DRM/CM Conduct of house-tohouse visits Conduct of town meetings to discuss relevant DRM/CM issues Holding of folk drama, live theatre, folk concerts that advocate DRM/CM Holding of field demonstrations and training activities on how to prepare for, prevent and react/respond to disasters
Objectives
Target Stakeholders Ethnic groups
Messages
Channels
House-to-house visits Folk media such as puppets, live theatre, folk songs and dances, etc. Field demonstrations Training activities Tribal meetings Communities of Practice
Activities
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Conduct of house-tohouse visits Holding folk drama, live theatre, folk concerts that feature indigenous knowledge on DRM/CM Conduct of tribal meetings that would orient ethnic groups on what DRM/CM is and engage them in the CDRMP initiatives Holding of field demonstrations and training activities on how to prepare for, prevent and react/respond to disasters A Community of Practice should be established to promote indigenous knowledge on DRM/CM
Objectives 3. To strengthen linkages and improve coordination between the main partners, donor agencies and technical service providers of CDRMP towards a holistic, synergistic approach to relevant initiatives on disaster risk management and crisis management
Target Stakeholders CDRMP Partners
Messages
Channels
Stakeholder-specific message for Partners: coordination and networking is important in building a culture of safety and resilience in Nepal. a. Database of contacts in organizations b. Implementing rules and guidelines for coordination of efforts c. Roles and responsibilities of partners
Technical conferences Orientation training activities/seminars Invitational lunches Networking activities DRM portal Communities of Practice
Activities
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Orientation seminars for incoming partners should be conducted to brief new partners on the programs of CDRMP Conduct of networking sessions and invitational lunches with possible partners Providing a “Partners’ Corner” in the DRM portal to be established by CDRMP Conduct of technical conferences for skills upgrading and knowledge-sharing of partners Communities of Practice should also be established both online and offline to facilitate sharing of information, plans, skills, resources, etc. among partners
Objectives 4. To enhance the capacity of promotional agencies (i.e., media, locallevel councils, and disaster risk management practitioners) to share relevant information and knowledge about disaster risk management and crisis management at the local level.
Target Stakeholders District/locallevel council leaders
Messages
Channels
Stakeholder-specific messages for Promotional Groups: you can help build a culture of safety and resilience in Nepal. a. Role of communication in disaster risk/crisis management b. Guidelines for responsible disaster risk/crisis communication (before, after and during a crisis or disaster) c. Innovative practices for media/local leaders/practitione rs in the field of disaster risk management or crisis management
Communities of Practice Roundtable discussions Meetings Fora/seminars Training activities Team building activities Field demonstrations
Activities
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Communities of Practice for interpersonal and online sharing of information, skills, experiences and resources Conduct of roundtable discussions to develop local guidelines/standards for DRM/CM communication Training activities, seminars and fora to orient council leaders with DRM/CM communication and upgrade their DRM/CM competencies Field demonstrations on how to negotiate/dialogue with community residents and other institutions in times of disaster
Objectives
Target Stakeholders Media
Messages
Channels
Communities of Practice Media conferences Meetings Networking activities Team building activities Writing/storytelling workshops
Activities
Disaster risk management practitioners
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Communities of Practice Roundtable discussions Meetings Fora/seminars Training activities Team building activities
Writing and storytelling workshops for filmmakers, scriptwriters and producers in the entertainment industry to allow them to produce subliminal DRM/CM messages in entertainment media Conduct of media conferences and other networking activities for media to establish working relationships with other agencies Communities of practice for skills upgrading and sharing of information on DRM/CM Communities of practice for skills upgrading and sharing of information on DRM/CM
Objectives
Target Stakeholders
Messages
Channels
Field demonstrations
Activities
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Roundtable discussions to help DRM practitioners formulate and plan the best ways to communicate with the communities about DRM/CM Field demos for skills upgrading on how to negotiate/dialogue with community residents and other institutions in times of disaster
The communication strategy will be implemented in different districts in the span of five years (2013-2018). However this can be extended depending on the duration of the CDRMP project. Communities in high-risk areas such as mountains will first be prioritized before moving on to the Terai districts that are covered by CDRMP. The timeline is as follows: 1st year: 3 mountain districts and 3 Terai districts 2nd year: 3 mountain districts and 3 Terai districts 3rd year: 5 hill districts and 3 Terai districts 4th year: 6 hill districts and 3 Terai districts 5th year: 10 hill districts
VI.
Monitoring and Evaluation
To ensure that the objectives of the CDRMP Communication Strategy are attained, an impact assessment study of the strategy will be carried out annually. A monitoring team composed of representatives from the CDRMP partners as well as promotional groups will be assigned to evaluate performance. Table 6-7 outline the monitoring and evaluation mechanism that will look into the performance of CDRMP communication strategy in addressing the “demand� side. Table 6. Monitoring and evaluation to assess performance in terms of raising awareness and understanding of disaster risk and crisis management among the beneficiaries. Indicators
Data Source
Perceived awareness and understanding of beneficiaries on disaster risk management/crisis management Perceived attitudes of beneficiaries towards DRM/CM in Nepal
Questionnaire results Interview data Residents of urban communities, rural communities, ethnic groups Questionnaire results Interview data Residents of urban communities, rural communities, ethnic groups
Frequency of Collection Annually
Annually
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Data Collection Methods Field surveys Interviews Observations Focus group discussions Site visits
Field surveys Interviews Observations Focus group discussions Site visits
Indicators Perceived clarity and impact of messages, approaches, channels used in the program
Data Source Questionnaire results Interview data Residents of urban communities, rural communities, ethnic groups
Frequency of Collection Monthly
Data Collection Methods Field surveys Interviews Observations Focus group discussions Materials pre-testing and post-testing
Table 7. Monitoring and evaluation to assess performance in terms of ensuring the active participation and commitment of beneficiaries in disaster risk management and crisis management initiatives, particularly that of CDRMP. Indicators
Data Source
Perceived intention to participate in CDRMP initiatives and other DRM/CM activities Number of beneficiaries actively participating in CDRMP and other DRM/CM initiatives Frequency of participation of beneficiaries in CDRMP programs and other DRM/CM activities Perceived willingness of beneficiaries to participate in CDRMP activities and other DRM/CM activities
Questionnaire results Interview data Residents of urban communities, rural communities, ethnic groups Questionnaire results CDRMP annual reports
Frequency of Collection Annually
Data Collection Methods Field surveys Interviews Observations Focus group discussions Site visits
Annually
Surveys Interviews Secondary data gathering
Questionnaire results CDRMP annual reports
Annually
Surveys Interviews Secondary data gathering
Questionnaire results Interview data Residents of urban communities, rural communities, ethnic groups
Annually
Field surveys Interviews Observations Focus group discussions Site visits
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On the other hand, regular monthly meetings should be conducted by partner agencies together with the CDRMP programme staff in order to assess the current resources, linkages as well as conduct an analysis of the strengths, weaknesses, opportunities and threats to the program along the way. Recommendations must also be provided for the improvement of the overall communication strategy. This goes the same for the media organizations, local council leaders and disaster risk management practitioners, specifically to tackle certain challenges in communication of disaster risks and crises. Ultimately, a yearly conference must convene both partners and the promotional groups to determine areas for improvement. In terms of evaluating the impact of the DRM portal, online tools such as Google Analytics can help monitor site traffic, bandwidth, as well as evaluate the demographics of those using the online portal. This can also be a good tool for evaluating online-based Communities of Practice.
VII.
Anticipated Outcome/Impacts
One of the challenges faced by the Government of Nepal as well as disaster risk management institutions is the communication of disaster risks and crisis response. An effective communication system that integrates the efforts of different key stakeholders is essential to transform Nepal from a disaster-vulnerable to a disaster-resilient country. It is expected that with this communication strategy, institutions working on CDRMP activities will gain more focus and direction in implementing DRM/CM communication initiatives.
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References CDRMP Official Website. http://www.cdrmp.org.np (15 June 2013). CDRMP, undated. Comprehensive Disaster Risk Management Programme (CDRMP) United Nations Development Programme. Brochure. Lalitpur, Nepal: UNDP-CDRMP. DPNet Nepal. Facts and Figures of Nepal. Retrieved from http://www.dpnet.org.np/index.php?pageName=facts (15 June 2013). EM-DAT: The OFDA/CRED International Disaster Database, Universit catholique de Louvain, Brussels, Belgium (in http://www.preventionweb.net/english/countries/statistics/?cid=121) Federal Democratic Republic of Nepal: Media and Telecommunications Landscape Guide, May 2011. Retrieved from http://reliefweb.int/sites/reliefweb.int/files/resources/nepal_media_landscape_guide_011011.pdf (15 June 2013). Kathmandu Valley, Nepal: Disaster Risk Management Profile. Reviewed August 2005. Retrieved from http://emi.pdc.org/cities/CP-Kathmandu-08-05.pdf (15 June 2013). MOHA, 2009. National Strategy for Disaster Risk Management in Nepal (Final Draft). Ministry of Home Affairs, Government of Nepal. _______, 2011. Nepal Disaster Report 2011: Policies, Practices and Lessons. Ministry of Home Affairs, Government of Nepal. MOIC, 2012. Roadmap for the Transition from Analogue to Digital Terrestrial Television Broadcasting in Nepal: Report. ITU Broadcasting Project, Ministry of Information and Communications. Piotrow, P.T., 1994. “Entertainment-education�: an idea whose time has come. Abstract. Retrieved from http://www.ncbi.nlm.nih.gov/pubmed/12318953 (15 June 2013).
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