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Case study of increasing community groups and government agencies capacity to communicate

Carl Glen

Abstract

Generating awareness and working towards a positive practice change is becoming increasingly difficult amongst the noise generated by private sector advertising campaigns. This can be made even more difficult by having to compete with other government NRM projects. A coordinated approach has a number of benefits for both the community and the organisations.

The benefits include a reduction in resources, increasing the quality of the products and limiting the number being sent to stakeholders. Stakeholder representatives report they are required to participate in increasing numbers of projects and often the processes are repetitive or conflicting. Thus asking stakeholders to attend only one NRM workshop or meeting on related issues instead of several and producing integrated newsletters, which provide a summary of all the current NRM news or an in-depth look at a topic of interest, saves them time and they are more likely to get involved.

The case study outlined in this paper demonstrates one approach to integrating communication processes as part of the Healthy Regional Arrangements program. Regional NRM bodies were formed to develop regional NRM plans. This program was also identified as a means of integrating NRM projects. A representative communication network was established using a structured participatory approach. It was possible to integrate communication processes and to empower the structure to help set future direction for statewide communication processes. Establishing the network required a capacity building process and support from government agencies.

Media summary

Generating awareness and working towards a positive practice change is made easier by an integrated communication process. We should not be adding to the mass media noise, but separating ourselves out and leading the process towards providing quality, not quantity information.

Key words

Awareness generation, positive image, profession identity, natural resources management (NRM), regional NRM bodies, Queensland Natural Heritage Trust communication approach, National Action Plan for Salinity and Water Quality communication approach, Healthy Regional Arrangements communication approach, regional communicators.

Introduction

Community groups and government agencies working in natural resources management (NRM) have an increasing number of competitors in generating people’s awareness and working towards a positive practice change (Christensen, 2002). The increased competition for conveying information to people springs mainly from private sector advertising campaigns. This creates new communication challenges for these groups.

Government departments and private sector companies both wish to stand out from the cluttered communication environment, which is saturating people with competing marketing messages (Christensen, 2002). Private companies, however, develop detailed marketing communication plans and devote a large part of their budget to implementing these plans (Goodman, 2001).

Further more van Riel (1995); Marwick and Fill (1997) and Stuart (1999) indicate private sector communication processes are usually broken down into greater detail, with communication processes being developed for organisational and management communication, in addition to marketing. Brody (1991); Covelo, et. al. (1998) and Goczol and Scoubeau (2003) propose even greater detail and add an additional area, project communication.

An essential component of this paper will be examining the application of these private sector models for organisational, program (management) and project communication areas, in the context of regional NRM groups and government agencies.

Goczol and Scoubeau (2003) also introduce the concept of using interpersonal and marketing processes as elements for communicating about the three business areas (organisational, program and project) to two main audiences, internal and external stakeholders.

This paper will extrapolate these private sector theories and models to produce a process for applying marketing and interpersonal communication approaches to the management areas of regional NRM bodies and government departments working in natural resources management in Queensland.

Covelo, et. al. (1998) and Christensen (2002) postulate that government communication processes have taken on a dictatorial approach in the past. Covelo, et. al. (1998) find that this approach creates outrage in people.

Stuart (1999) and Christensen (2002) indicate that the use of marketing and interpersonal approaches is more effective in communicating the corporate culture to internal and external audiences. Goodman (2001) expands on Stuart’s (1999) approach and states that internal audiences must first accept the corporate culture and project messages before external communication processes will be successful. Goczol and Scoubeau (2003) add that internal audiences communicate these messages via an image/ identity interface to the external audiences. The external audiences form an image about the organisation from marketing and interpersonal communication. Stuart (1999) highlights that if communication processes are effective, feedback about the corporate image, from external audiences to internal staff, should be compatible with the identity portrayed.

Covelo, et. al. (1998) point out that government departments have a poor image due to ineffective communication processes. Some government department processes do not meet the communication needs of individual audiences. This results in people being outraged and thus approaching mass media and government ministers (Covelo & Allen, 1988). As a result projects are terminated and organisations restructured, causing instability in government departments and creating further damage to the government’s identity.

In order to be effective communicators, government departments and regional NRM bodies should consider the risk communication processes of Covelo, et. al. (1998); the corporate communication models of Dowling (1986); Abbrat (1989) and Stuart (1994-98, 99) with the additional areas and elements that Goczol and Scoubeau (2003) that this paper introduces.

This paper applies an additional dimension to the simple matrix for government department communication (Glen 2003), that of Goczol and Scoubeau’s (2003) interpersonal processes for communicating Stuart’s (1999) corporate culture messages and Sandman’s (1998) project risk messages via internal audiences to external audiences.

The purpose of this paper is to demonstrate that to be effective communicators, it is essential that regional NRM bodies and government departments need to communicate about the organisation and their projects and include a program for communicating messages to internal and external audience via marketing and interpersonal processes. This paper provides an outline for the business communication management planning and training process used in Queensland for the dissemination of clear, consistent message through a regional NRM processes.

The Queensland Healthy Regional Arrangements process is helping to manage natural assets and their use via regional NRM bodies, which produce and implement a community-based regional NRM plan and investment strategy. For this process to be effective, it is essential that the community is aware and trusts the representativeness of the regional NRM body and knows its roles and responsibilities.

There is a need for regional NRM bodies to communicate a positive, professional corporate identity to the community. There is need for all staff and members of the regional NRM body to be familiar with the regional NRM body’s corporate culture and to be able to communicate this consistently to external audiences. There is equally a need to have effective, consistent internal and external communication processes.

To manage the sustainable use of natural resources in regional Australia, the Government is utilising the National Action Plan for Salinity and Water Quality (NAPSWQ) the Natural Heritage Trust (the Trust) and the National Landcare Program (NLP), to provide resources and support to progress towards Healthy Regional Arrangements.

The key objective of the Healthy Regional Arrangements process is to ensure that government is able to deliver an effective community-based regional NRM planning and implementation system.

Effective regional NRM planning relies on the health of the overall system of planning within the regions. Key elements of healthy regional arrangements include a strong capability in all sectors, including government, strong connectivity between planning activities and structured negotiation over critical regional issues and adaptive knowledge development and use.

The Department of Natural Resources and Mines is working with regional NRM bodies in building all three aspects of these arrangements.

This paper will focus on the method that has been used to coordinate the communication aspects of these three components.

Approach

A Queensland Regional NRM Communication Group was formed on 24 April 2003, establishing the beginning of an internal audience awareness and capacity building raising process. The group consisted of people with an interest in regional NRM, From NRM volunteer groups to state, federal and local government officers.

The Queensland Regional NRM Communication Group developed a Regional NRM Communication Plan and a framework for interpersonal and marketing communication processes to assist in the delivery of the Healthy Regional Arrangements integrated process. The Queensland Regional NRM Communication Group developed the communication plan to link with individual regional NRM body communication plans and the national communication campaign.

One of the key actions within the Queensland Regional NRM Communication Plan was assisting regional NRM bodies develop an awareness process to lift their profile within their region.

This case study will outline the projects and methods that were developed to build the capacity of regional NRM bodies, so they could develop effective, consistent and achievable internal and external communication to generate greater recognition of themselves and their activities in their region.

Additionally, a second key action was to establish a three-tier communication network that would coordination communication processes for state government agencies and regional NRM bodies involved in Healthy Regional Arrangements. (Figure 1)

This case study will also look at an attempt at the integration of government NRM projects for communication. Prior to the Queensland Regional NRM Communication Plan and the establishment of the three-tier communication network, there were individual communication processes for a number of regional NRM programs. These included the NAPSWQ; NLP, Wetland Protection, Reef Plan and the Trust. This resulted in a duplication of resources, competition between programs for the same stakeholders and often an inconsistent message to these stakeholders.

Healthy Regional Arrangements case study

To avoid the replication of resources and to ensure regional NRM bodies and the government received adequate recognition for implementing projects, most of the above mentioned programs were linked and a consistent style and approach were developed to reflect the new integrated approach of Healthy Regional Arrangements.

The Queensland Regional NRM Communication network linked these programs through the Queensland Regional NRM communication plan and also developing a framework of ongoing communication processes for interpersonal and marketing communication for Healthy Regional Arrangements. This communication framework outlined the products and processes that would be used for statewide communication such as email newsletters, fact sheets, internal and external meeting networks, a web site and stakeholder database.

By developing one framework for all the regional based NRM programs it was possible to reduce duplication of communication products and ensured stakeholders received a consistent, non-conflicting message.

To ensure regional NRM body staff and state agency staff were aware of the communication plan, framework and network, an awareness-raising presentation was presented as part of a communication capacity-building and training package for regional NRM bodies and government agencies.

Queensland Regional NRM Communication network

Goodman (2001) and Glen (2003) suggest developing a structure for interpersonal communication. One of the most effective ways to compete with private sector’s advertising campaigns is to distribute information via a network of people dedicated to communication, see figure 1.

Inaugural workshop

To establish a communication network for the Healthy Regional Arrangements program a meeting was held at its onset. The meeting was held for representatives from existing stakeholder groups to introduce them to Healthy Regional Arrangements and the role they could play in communicating about the programs being supported by this process. At this stage there was only NAPSWQ groups, as no regional NRM bodies had been established.

This first workshop provided an opportunity to determine future communication needs and to introduce the communication group structure.

At this workshop after identifying stakeholders, people attending the workshop volunteered to be responsible for communicating with a section of these stakeholders. These volunteers became the engagement group (see figure 1). Once the engagement group was established the members were asked if they would like to participate further and become a member of the working group or Executive. To assist them in making their decision a presentation was provided to introducing the basic roles and responsibilities for each of the groups in the tiers of the communication group structure.

Qld regional NRM stakeholder network (Engagement network)

The engagement network are those people interested in the regional NRM agenda. These people may not have the time or ability to participate directly in the development of products for communicating the regional NRM agenda. They do however play a major role in distributing information and general communication about NRM.

Working Group

The working group, as the name suggests, works on actions derived from the Queensland Regional NRM Communication Plan and activities set by the Regional NRM Executive Communication Group. It is composed of state and federal government agency staff, regional groups and other NRM volunteer groups joined to develop a Queensland regional communication plan.

Executive Group

The executive group is composed of managers from government agencies and a Regional Groups Collective (peak body for all regional NRM groups) representative. The Executive has members with the ability to direct resources from their departments or from regional bodies to drive the communication agenda for regional NRM consistent with the Queensland Regional NRM Communication Plan.

One of the key roles for the Executive group was to find resources to implement a communication process for regional NRM thus they needed to be people who had influence over budgets and resources. This group’s first request was to have the regional NRM working group develop a communication plan, which could then be used to access funds from departments, NAPSWQ and the Trust.

Once the new members were established, they were asked to further define the roles and responsibilities for each of these groups in the tiers of the communication structure.

Over the next six months the working group consulted with all regional NRM bodies and state and federal government agencies to develop the Queensland Regional NRM Communication Plan. It took a further three months for the executive group to present this plan for endorsement and funding from the Joint Australian and Queensland Government Steering Committee.

Second annual meeting

Once the plan was endorsed, a second workshop was held to establish how it would be implemented. The original aim of this workshop was to establish sub-working groups consisting of representatives from each regional NRM body and the state agency to implement each action within the plan.

Figure 2: Previous structure

After this meeting, it was determined that the Executive Group would now provide guidance leadership and resources in the initial development stage of an action from the regional NRM communication plan. The Working Group divided into sub-working groups and was joined by members of the engagement network interested in helping to develop a particular communication tool.

The engagement network was still an important part of the process and continued to engage and distribute information.

After this meeting the working group structure contained the sub-working groups which were responsible for the progression of individual actions from the Regional NRM Communication Plan (see figure 2).

This was an effective approach for facilitating an inclusive process. However due to the large distances between sub-working groups it was difficult for participants to work together in the sub-working group. Additionally due to some political changes, many state agency members were no longer fully engaged in the regional NRM agenda and so progressing actions was not occurring as quickly, effectively or collectively as desired.

After this second meeting it was identified that most regional NRM bodies did not have staff with expertise to undertake communication activities. A project was established to provide capacity building and training for regional NRM bodies in business communication.

During the next three months, presentations were given to regional NRM bodies outlining the benefits of hiring communication staff for the body. Most regional NRM bodies agreed there was a benefit in hiring a part-time or consultant for communication.

Communication and capacity building training

After the initial presentation series to regional NRM bodies, a second project was developed offered each regional NRM body a week of business communication training and a capacity building process for their new communication staff. Ten of the 14 regional NRM bodies took up this offer.

The training outlined the business communication process and then concentrated on skill development in communication areas identified by the regional NRM body officer.

A standard presentation on business communication processes was provided to all staff and some board members. The presentation outlined the need for regional NRM bodies and its roles and responsibilities to be recognised an accepted by the community and by government agencies for Regional NRM plans and the whole of regional arrangements to be effective. As there is no point in having a plan if no one trusts it and the same can be said for the regional NRM body. It is therefore important that the regional body establish a positive repetition or “identity” to be professional.

Communication planning is essential for establishing a professional approach, firstly establishing that identity and finally building a corporate culture for the organization. Appearing to be professional can be achieved quite easily with some simple preplanning followed by effective implementation using a communication framework for the regional NRM body. Having a profession look goes a long way towards establishing a positive identity. Of course looking professional will not build a trust relationship with the community, there is then a need to be consistent to build trust.

Develop internal and external communication processes that are consistent is a key step in establishing trust. This again can be achieved with preplanning followed by effective implementation using a communication framework for the regional NRM body. This may seem an easy process to establish, however there are often some unexpected problems such as the information hogs who see information as a source of power.

It was essential for the messages/ corporate identity being delivered by staff (internal audience) to be consistent with the information provided by their marketing campaign. Having a staff member that is trusted by the community complaining at community meeting about their temporary contracts or complaining about lack of resources provided to them, can detrimentally affect the communities image of the organisation they work for and often undo the projects the staff member is there to represent.

Once consistent internal and external communication processes are established it is possible to use promotional communication processes to increase awareness of the regional NRM body and what it does.

With an effective communication process in place it easier to gain additional funding sources as funding organisation will recognise the body as a good investment opportunity. The regional NRM bodies communication channels will also alert the regional NRM body of new funding sources. It will also assist in gaining community input into planning and implementation processes as the body will be recognised as the organisation to contact for regional natural resource management.

Figure 3: Queensland Regional Communication Groups relationships.

At the end of this second capacity building project a new communication structure emerged figure 3.

Following a request from a number of regional NRM bodies, an additional group consisting of regional NRM body communication staff was included. This network would provide input into the communication working group process via the nominated regional body representatives and the core-working group.

Regional NRM Communicators’ group

The Regional NRM Communicators group is composed of regional NRM body communication staff and the working group. It provides a forum for sharing of knowledge skills and ideas between members.

The Regional NRM Communicators group is administered by the new working group and is responsible for its own actions. However it can apply to the Executive Group for additional resource assistance. Ideas and experience in regional communication are shared amongst the members of the group, allowing regional NRM body communication staff to learn from each other’s successes and failures. The group has a monthly email discussion topic, in addition to an ongoing email help group. Each month one regional NRM body provides a monthly communication case study highlighting what they have learned from a key activity. Quarterly teleconferences are conducted and an annual workshop is held as a networking a training exercise.

The working group provides administrative support for this group. This sharing of knowledge and resources helps to develop a consistent style and approach and allows for continuous improvement. A new communication tool developed by one regional NRM body can be shared through the network so other regional NRM bodies may modify it to suit their region’s needs.

The new working group, as the name suggests, works on actions derived from the Queensland Regional NRM Communication Plan and activities set by the Regional NRM Executive Communication Group and Regional NRM Communicators group. It is composed of government agency staff employed to provide communication support for the NAPSWQ, and the Department of Natural Resources and Mines’ Natural Resource Management Arrangements business group.

The Executive groups and engagement group’s roles remained the same in this new structure.

Third annual meeting

A third meeting was held of the regional NRM communication group, however this time it was the regional NRM body communicators that called and organised the meeting.

At this meeting regional NRM bodies displayed their communication products, presented case studies, did training sessions and networked with other stakeholder groups.

The capacity build process and the communication network structure were successful in building a process that was regionally integrated and could begin to compete with the external marketing processes of private industry.

Conclusion

At the beginning of the Healthy Regional Arrangements process there were several communication processes being run solely by government agencies. There was a duplication of communication processes and this was generating confusion rather than awareness in the community. There was also very little capacity in community groups to run communication campaigns.

This paper has discussed ways to manage the new communication challenges regional NRM bodies and government departments working in natural resources management currently face if they are to be effective in generating people’s awareness and to facilitate a positive practical change. Government communication processes can no longer take on a dictatorial approach as this outdated approach creates outrage in people (Covelo et. al. 1998).

Regional NRM bodies and government departments need communication processes that will allow them to once again stand out from the storm of marketing messages, which saturate people (Christensen, 2002).

Both government departments and regional NRM bodies can learn from private sector corporate communication processes, develop detailed communication plans and processes at the organisational and project level (Goodman, 2001).

A communication framework process can also assist with ongoing communication processes, reducing duplication, ensure stakeholders information needs are meet and providing clear direction for project managers and staff wishing to distribute information.

All these plans need to incorporate interpersonal and marketing processes to communicate effectively to the two main audiences, internal and external stakeholders (Goczol and Scoubeau, 2003).

A significant role for government is helping regional NRM bodies develop and improve their communication processes and helping them to share information and expertise while inspiring improvement.

Developing a new corporate culture within a government department or regional NRM body to meet the needs of the people, both internally and externally, will assist in marketing projects successfully. There is clearly a need to communicate effectively with internal audiences and develop communication frameworks to assist in the ongoing exchange of information between staff and management and staff and the community. It is essential that internal staff accept and adopt the corporate culture message and portray the corporate culture when dealing with external audiences. The use of marketing and interpersonal communication approaches is most effective at communicating the corporate culture to internal and external audiences.

It will take some time for external audiences to build an image about regional NRM bodies, but with effective marketing and interpersonal communication, eventually the image should be compatible with the identity intended through consistent messages delivered by both marketing and interpersonal communication via internal audiences.

By adopting risk communication processes for projects and developing corporate communication processes, regional NRM bodies will meet the needs of their audience. People will not become outraged and will not approach mass media and government ministers with complaints. This should result in the ongoing success of their projects and greater organisational stability.

With this positive identity, it is more likely that external audiences will be willing to adopt positive practice changes for natural resource management.

This paper has demonstrated that to be effective communicators, it is essential that government departments and regional NRM bodies develop communication plans for their organisation and projects which incorporate the ongoing processes set out in their communication framework including processes for communicating messages to internal and external audience via marketing and interpersonal elements.

The way forward for government departments managing natural resources is to develop communication plans and processes for the integration of their communication processes. These plans should consider internal and external audiences and develop appropriate massages for each audience, delivering these messages through structured, appropriate stakeholders management, promotions, mass media, meetings and face-to-face communication elements.

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