Challenges to Effective Information and Communication Systems in Humanitarian Relief

Organizations

Christina MaiersChristina Maiers

Margaret ReynoldsMargaret Reynolds

Mark HaselkornMark HaselkornDepartment of Technical CommunicationDepartment of Technical Communication

Interdisciplinary Program in Humanitarian ReliefInterdisciplinary Program in Humanitarian Relief

University of WashingtonUniversity of Washington

depts.washington.edu/iphrdepts.washington.edu/iphr

Challenges to Effective Information and Communication Systems in Humanitarian Relief Organizations

IntroductionIntroduction

Intra-organizational CommunicationIntra-organizational Communication

Inter-organizational CommunicationInter-organizational Communication

ConclusionConclusion

Introduction

Background on humanitarian reliefBackground on humanitarian relief

What we did to study ICS in humanitarian reliefWhat we did to study ICS in humanitarian relief

Background Information and communication systems Information and communication systems

(ICS) in support of humanitarian relief (ICS) in support of humanitarian relief during complex international emergencies. during complex international emergencies.

ICS supports all stages of evolving relief ICS supports all stages of evolving relief efforts, including preparedness and early efforts, including preparedness and early warning, rescue, relief, and recovery. warning, rescue, relief, and recovery.

These stages are themselves composed of These stages are themselves composed of complex, interconnected operations such as complex, interconnected operations such as logistics, supply chain management, human logistics, supply chain management, human resources, informal and formal agreements, resources, informal and formal agreements, evaluation and assessment, lessons learned, evaluation and assessment, lessons learned, and institutional learning and institutional learning

Background

Focus here on NGOs, but communication is Focus here on NGOs, but communication is complicated by diverse landscape of players, complicated by diverse landscape of players, including: United Nations, donor governments, including: United Nations, donor governments, military, governments of affected countries, military, governments of affected countries, philanthropic foundations, corporations, the giving philanthropic foundations, corporations, the giving public, and those who have suffered during the public, and those who have suffered during the crisis. crisis.

Traditionally, NGOs focus on response and Traditionally, NGOs focus on response and immediate human needs; less focused on immediate human needs; less focused on preparation, coordination, long-term strategy and preparation, coordination, long-term strategy and infrastructure.infrastructure.

Background

In the face of natural and man-made In the face of natural and man-made disasters, communication channels, disasters, communication channels, infrastructures, strategies, agreements, infrastructures, strategies, agreements, education, and training should be in place. education, and training should be in place. Too late after the event occurs.Too late after the event occurs.

Technology component usually the easiest Technology component usually the easiest part part

Background

Putting in the sensors is the easy part. The difficult part here would be coordination between emergency-response agencies in the region. Then, you have to deal with education, preparedness and training issues.

Harley Benz, USGS National Earthquake Information Service, on putting in a South East Asia Tsunami warning system

What We Did

Two types of research conducted in 2004: Two types of research conducted in 2004: A headquarters level assessment of upper-level A headquarters level assessment of upper-level

management perspectives on organizational management perspectives on organizational communication issues and strategiescommunication issues and strategies

Open-ended survey administered face-to-face or over the Open-ended survey administered face-to-face or over the phone to IT managers, directors, and operations managers of phone to IT managers, directors, and operations managers of prominent Northern humanitarian relief NGOsprominent Northern humanitarian relief NGOs

A field-level assessment conducted in Kenya A field-level assessment conducted in Kenya and Ethiopiaand Ethiopia

In-depth exploratory interviews with, and participatory In-depth exploratory interviews with, and participatory observation of, key NGO field personnel. Conducted in observation of, key NGO field personnel. Conducted in cooperation with the Fritz Institute; John Snow, Inc.; USAID cooperation with the Fritz Institute; John Snow, Inc.; USAID and World Vision International.and World Vision International.

What We Found

Both intra- and inter- organizational Both intra- and inter- organizational communication are complicated by tensions and communication are complicated by tensions and challenges that are inherent in the humanitarian challenges that are inherent in the humanitarian relief endeavor. relief endeavor.

These challenges require ongoing management These challenges require ongoing management and investigation. and investigation.

While some of these challenges are uniquely While some of these challenges are uniquely expressed in the humanitarian sector, they have expressed in the humanitarian sector, they have analogs in organizations working in other sectors.analogs in organizations working in other sectors.

Many of these challenges are in areas that require Many of these challenges are in areas that require technical communication expertise. Many key technical communication expertise. Many key roles for technical communicators in the roles for technical communicators in the humanitarian relief sector.humanitarian relief sector.

Intra-organizational Communication Need for User-Centered Design StrategiesNeed for User-Centered Design Strategies Complications from a Decentralized Complications from a Decentralized

Organizational StructureOrganizational Structure Weak Information Management Weak Information Management Need for Cross-Organizational Program Need for Cross-Organizational Program

Development Development Lack of Funding for ICT Strategic Planning and Lack of Funding for ICT Strategic Planning and

Implementation Implementation Resistance to TechnologyResistance to Technology Complications in Developing ICT Infrastructure Complications in Developing ICT Infrastructure

due to Short-Term Focusdue to Short-Term Focus Lack of Trained Personnel Lack of Trained Personnel

Need for User-Centered Design Strategies

It would be very useful to have the program It would be very useful to have the program people see what SCM entails and have them learn people see what SCM entails and have them learn more about the logistics process on the ground.more about the logistics process on the ground. (NGO field office)(NGO field office)

One area of needed improvement is getting [local] One area of needed improvement is getting [local] SCM staff to better understand the financial SCM staff to better understand the financial structures and the budget process. We have had a structures and the budget process. We have had a lot of budgeting problems, because there is a lack lot of budgeting problems, because there is a lack of understanding of the financial process. of understanding of the financial process. (NGO HQ)(NGO HQ)

Need for User-Centered Design Strategies

Many HQ-driven ICS projects developed and Many HQ-driven ICS projects developed and managed without adequate consultation with local managed without adequate consultation with local staff.staff.

ICS projects where field workers were not “co-ICS projects where field workers were not “co-owners” caused friction between local staff and owners” caused friction between local staff and HQ and in some cases even reinforced HQ and in some cases even reinforced asymmetrical power relations between developing asymmetrical power relations between developing world and HQ level staff teamsworld and HQ level staff teams. .

ICS needs to meet the unique communication and ICS needs to meet the unique communication and environmental needs of the international field environmental needs of the international field offices.offices.

ICS needs to be ICS needs to be flexibleflexible but not but not ad hoc.ad hoc.

Complications from a Decentralized Organizational Structure

There is a need for a central ICS There is a need for a central ICS organizational strategy, but mandating such organizational strategy, but mandating such a strategy from HQ (top-down) is not a strategy from HQ (top-down) is not effective or feasible. effective or feasible.

Field offices are highly autonomous Field offices are highly autonomous operational units; HQ generally non-operational units; HQ generally non-operational with little oversight.operational with little oversight.

Mandating policy from an HQ level is not Mandating policy from an HQ level is not compatible with the consensus-building compatible with the consensus-building leadership style of NGOs leadership style of NGOs

Weak Information Management

To a great extent, the sector reinvents itself with each new To a great extent, the sector reinvents itself with each new catastrophecatastrophe

Now trying to focus not only on doing well in the current Now trying to focus not only on doing well in the current emergency, but also doing a better job the next timeemergency, but also doing a better job the next time

Need to develop and apply ICS to the capture and Need to develop and apply ICS to the capture and application of past experiences.application of past experiences.

Many constraining factors: highly chaotic, resource and Many constraining factors: highly chaotic, resource and information poor environments; insufficient time, energy, information poor environments; insufficient time, energy, and financial resources; workforce turnover and lack of and financial resources; workforce turnover and lack of professional standing; multiple organizational perspectives professional standing; multiple organizational perspectives on the appropriateness and role of information on the appropriateness and role of information infrastructures; focus on technology rather than on infrastructures; focus on technology rather than on organizational culture; and differences as to the value and organizational culture; and differences as to the value and implementation of ongoing assessment and improvement implementation of ongoing assessment and improvement strategies.strategies.

Need for Cross-Organizational Program Development

Cross-organizational communication a vital Cross-organizational communication a vital component of program planning and component of program planning and organizational success. organizational success.

Proposals often written without adequate Proposals often written without adequate input from support departments, such as input from support departments, such as ICT and logistics.ICT and logistics.

Need for a coordinated approach and Need for a coordinated approach and information and communication policies information and communication policies that support increased coordination.that support increased coordination.

Lack of Funding for ICT Strategic Planning and Implementation

ICS viewed as overhead rather than as a ICS viewed as overhead rather than as a fundamental activityfundamental activity

Donors focus Donors focus on immediate solutions for on immediate solutions for immediate situations—water and sanitation, immediate situations—water and sanitation, medicine, food, and shelter in direct response to medicine, food, and shelter in direct response to visible human sufferingvisible human suffering

Donors generally view overhead costs as Donors generally view overhead costs as detrimental to a proposed projectdetrimental to a proposed project

Most funding is project based, so there are few Most funding is project based, so there are few program resources that can be used to address program resources that can be used to address longer-term, organization-wide infrastructure longer-term, organization-wide infrastructure needsneeds

Lack of Funding for ICT Strategic Planning and Implementation

Need for donor education. A child is far more Need for donor education. A child is far more compelling than ICS, but a well-designed and compelling than ICS, but a well-designed and implemented ICS can help reduce the suffering of implemented ICS can help reduce the suffering of many childrenmany children

Inadequately planned and implemented ICS Inadequately planned and implemented ICS negatively impacts critical activities like negatively impacts critical activities like contingency planning and preparedness, forcing contingency planning and preparedness, forcing organizations into a reactionary mode where organizations into a reactionary mode where information and communication needs must be information and communication needs must be addressed “on the fly.”addressed “on the fly.”

Resistance to Technology

ICS equated with technology, and ICS equated with technology, and technology is often seen as a distraction technology is often seen as a distraction from the primary mission of reducing from the primary mission of reducing human sufferinghuman suffering

Field workers do not see direct benefits, in Field workers do not see direct benefits, in fact they generally experience IT initiatives fact they generally experience IT initiatives as reducing their effectivenessas reducing their effectiveness

Complications in Developing ICT Infrastructure due to Short-Term Focus

Far easier to raise funds and focus energy Far easier to raise funds and focus energy on an immediate crisis than it is to find on an immediate crisis than it is to find support for improving the relief sector’s support for improving the relief sector’s ability to more effectively mitigate the ability to more effectively mitigate the nextnext disasterdisaster

Need for “professionalization”—high Need for “professionalization”—high turnover (up to 80% in the field), no degree, turnover (up to 80% in the field), no degree, no scholarly journal, no central conference.no scholarly journal, no central conference.

Lack of Trained Personnel

The biggest challenge for me is the lack of The biggest challenge for me is the lack of trained personnel and human resource trained personnel and human resource issues. We need people who are competent issues. We need people who are competent and ready when a disaster strikes. These and ready when a disaster strikes. These are not easy to find or to have on hand. are not easy to find or to have on hand. Academia helping train people is part of the Academia helping train people is part of the answer.answer.

NGO administratorNGO administrator

Inter-organizational Communication

Need to Increase Coordination and Need to Increase Coordination and Interoperability While Maintaining AutonomyInteroperability While Maintaining Autonomy

Need for Increased Security and Coordination Need for Increased Security and Coordination with the Militarywith the Military

Need to Integrate Incomplete Information among Need to Integrate Incomplete Information among Various OrganizationsVarious Organizations

Need to Overcome Reluctance of Organizations to Need to Overcome Reluctance of Organizations to Share InformationShare Information

Challenges of Working in Underdeveloped, Challenges of Working in Underdeveloped, Disaster-Affected EnvironmentsDisaster-Affected Environments

Need to Increase Coordination and Interoperability While Maintaining Autonomy

Humanitarian coordination is based on the Humanitarian coordination is based on the belief that a coherent approach to belief that a coherent approach to emergency response will maximize its emergency response will maximize its benefits and minimize its potentialbenefits and minimize its potential pitfalls - pitfalls - in short, that the whole will be greater that in short, that the whole will be greater that the sum of its parts.the sum of its parts.

United Nations Office for Coordination of United Nations Office for Coordination of Humanitarian Affairs (OCHA)Humanitarian Affairs (OCHA)

Need to Increase Coordination and Interoperability While Maintaining Autonomy

Humanitarian relief organizations are very diverse, Humanitarian relief organizations are very diverse, with different constituents, missions, and cultureswith different constituents, missions, and cultures

Desire ability to act independently (“a shared Desire ability to act independently (“a shared warehouse might well increase our efficiency, but warehouse might well increase our efficiency, but we could not participate if it meant sacrificing the we could not participate if it meant sacrificing the ability to respond independentlyability to respond independently”)”)

View ICS View ICS interoperability not as sharing common interoperability not as sharing common systems, but as “creating conditions that enable systems, but as “creating conditions that enable separate organizations to share information toward separate organizations to share information toward a common end.” (Solomon and Brown, 2004) a common end.” (Solomon and Brown, 2004)

Need for Increased Security and Coordination with the Military

Security a new high prioritySecurity a new high priority Military used to operating independently and not Military used to operating independently and not

likely to share information that puts their troops at likely to share information that puts their troops at riskrisk

NGO’s mission depends in part on the appearance NGO’s mission depends in part on the appearance and fact that they remain unbiasedand fact that they remain unbiased

Not seeking military information and coordination Not seeking military information and coordination can put relief personnel at considerable riskcan put relief personnel at considerable risk

Need to Integrate Incomplete Information among Various Organizations

At the onset of an emergency, information At the onset of an emergency, information such as assessments, statistics, and census such as assessments, statistics, and census reports is needed immediately in order to reports is needed immediately in order to gauge the necessary level of responsegauge the necessary level of response

Existing information is generally outdated, Existing information is generally outdated, hard to find, scattered among different hard to find, scattered among different sources, or unreliable for political or other sources, or unreliable for political or other reasonsreasons

Need to Overcome Reluctance of Organizations to Share Information

Competition versus cooperation.Competition versus cooperation. While NGOs are non-profit entities, they While NGOs are non-profit entities, they

still compete over limited available still compete over limited available resources and “market share.” resources and “market share.”

Competition can “weed out” non-Competition can “weed out” non-productive NGOs, but creates atmosphere productive NGOs, but creates atmosphere of secrecy and seeking of competitive of secrecy and seeking of competitive advantages. advantages.

Well designed ICS can support the Well designed ICS can support the advantages of cooperative effort.advantages of cooperative effort.

Challenges of Working in Underdeveloped, Disaster-Affected Environments

Poor infrastructure in disaster areas and Poor infrastructure in disaster areas and developing areas.developing areas.

Effective ICS can alleviate constraints Effective ICS can alleviate constraints imposed by underdeveloped or destroyed imposed by underdeveloped or destroyed physical infrastructure.physical infrastructure.

Rapid sharing of information (e.g. Rapid sharing of information (e.g. destroyed roads) and communication destroyed roads) and communication between isolated workers and HQ.between isolated workers and HQ.

Conclusion Technical communicators Technical communicators have a key role to play

in the future of humanitarian relief. Help evolve well-planned ICS that enhance Help evolve well-planned ICS that enhance

organizational capacity, especially in challenging organizational capacity, especially in challenging areas like coordination, strategic planning, areas like coordination, strategic planning, preparedness, accountability, lessons learned, preparedness, accountability, lessons learned, training, research, and education.training, research, and education.

Help NGOs focus not only on direct relief, but Help NGOs focus not only on direct relief, but also strategic management.also strategic management.

Help not only address the current disaster, but also Help not only address the current disaster, but also learn from it in order to do better the next time.learn from it in order to do better the next time.

Help “professionalize” the humanitarian relief Help “professionalize” the humanitarian relief sector.sector.

Conclusion

Humanitarian relief is a significant Humanitarian relief is a significant new area of opportunity for the new area of opportunity for the technical communication field—an technical communication field—an opportunity based on the needs of opportunity based on the needs of the humanitarian sector and our the humanitarian sector and our ability to meet those needs.ability to meet those needs.

Conclusion

Designers of information and communication systems have a key role to play in the future of humanitarian relief.