ROOTED IN TRUST Cover Photo by Saceda Charlie Cover Photo

DISCONNECTED: Information Dynamics in BARMM during the COVID-19 Pandemic

AN INFORMATION ECOSYSTEM ASSESSMENT BY INTERNEWS PHILIPPINES - FEBRUARY, 2021 EXECUTIVE SUMMARY

his Information Ecosystem demand from the community along Assessment (IEA) aims to study with their effects on trust, influence, and the information environment in behaviors. The fourth section outlines the the Bangsamoro Autonomous humanitarian response to COVID-19 TRegion in Muslim Mindanao (BARMM) and the challenges faced by different of the Philippines during the COVID-19 organizations in their efforts to inform the pandemic in 2020. Its main objective is public at large. to explore the dynamics of information in the region. The first section of the This IEA was conducted through a report discusses the media landscape combination of key informant and in BARMM and its implication on the community interviews, surveys, and supply of information in the region extensive desk research. Fieldwork was during the pandemic. The second section done through partner organizations while covers the information demands complying to local lockdown guidelines and experiences of communities, and health protocols. The qualitative particularly those from vulnerable groups and quantitative research were focused such as internally displaced persons (IDP) on communities in the two largest and remote populations. It also tackles the provinces in BARMM, Lanao del Sur and access to as well as the use and influence Maguindanao. The three remote island of information, along with identifying provinces (Basilan, Sulu, and Tawi-Tawi) its trusted sources for the locals. The were out of scope for fieldwork, though third section explains the dynamics perspective from experts on those areas between the information supply and were captured whenever possible.

INFORMATION ECOSYSTEM ASSESSMENT 2 BARMM PHILIPPINES EXECUTIVE SUMMARY

Access to important information has been KEY FINDINGS INFORMATION DEMAND difficult for all information 1. Communities are well-aware of INFORMATION SUPPLY providers, from media COVID-19 health protocols such as 1. The media landscape in BARMM is a outlets, to public bodies, to social distancing, wearing of masks, composed of a few national TV outlets humanitarian organizations. having good hygiene, and avoiding and many small community radio outlets. crowds. These protocols are well known BARMM census data shows only 40% of with at least 60% of individuals able to cite at least two recommended health households have a TV and 25% have a radio. poor technical infrastructure in the region While social media has given community protocols. While these protocols have and the absence of two-way feedback media and local governments new ways to become general knowledge and systems across information providers. operate in the pandemic, the reach of social widely-practiced behaviors, rumor media remains limited as most communities analysis and focus groups indicate that 3. While there is a variety of community (77% of the population live in rural areas) do communities’ attitudes towards these not have internet access. media players in BARMM, the vast majority protocols are not ideal. For example, of them are not equipped to supply locally some feel the need to follow protocols 2. Access to important information has relevant COVID-19 information to the public. for compliance rather than genuine been difficult for all information providers, Most community radio programs follow a concern for public health. Some question from media outlets, to public bodies, to tabloid-news-entertainment hybrid model the rationale behind the protocols humanitarian organizations. Information on that is not suited for reporting on public (particularly strict lockdown measures) COVID-19 cases and preparations, lockdown health crises. Journalists also do not feel as they disrupt livelihoods. restrictions, and government aid was often enabled to report on COVID-19, with local incomplete and ever-changing, leading to officials holding limited press briefings and 2. In many communities, COVID-19 confusion and commotion. This struggle directing them to data reports instead of remains to be an invisible threat that for information was exacerbated by the taking questions. they do not understand. The

INFORMATION ECOSYSTEM ASSESSMENT 3 BARMM PHILIPPINES EXECUTIVE SUMMARY

public is not clear on the basic leaders. These channels have been DYNAMICS restricted by the pandemic, making aspects of COVID-19 such as modes of 1. COVID-19 rumors and them feel further left out or forgotten. transmission, the range of symptoms misinformation are widespread across (especially asymptomatic cases), the Key informant interviews and fieldwork all groups, particularly on topics around nature of testing, hospitalization, and also suggest that communities retain and the COVID-19 related government’s treatments. In addition to lacking act on information better from stories policies and their implementation, information on COVID-19 itself, and conversations with friends or family stigma and discrimination towards information needs outside public as well as from group discussions led by health are not being addressed leaders in their community. potential and confirmed COVID-19 adequately. The biggest gaps between information supply and demand are on aid, livelihood, and education, all of which were affected by the pandemic. Friends and family, and TV are the two 3. Friends and family, and TV are the channels of information two channels of information most most accessed by accessed by communities. Friends and family are used the most (score of 4.5 / communities. 5.0), followed by TV (score of 4.2 / 5.0), then social media (3.6 / 5.0) and radio (2.4 / 5.0). Vulnerable groups such as IDP and remote populations heavily rely on face-to-face communication from local governments and community

INFORMATION ECOSYSTEM ASSESSMENT 4 BARMM PHILIPPINES EXECUTIVE SUMMARY

positive people, and a spectrum 2. Leaders in the communities are relations, and if they are without burden of rumors and conspiracies about trusted more widely than other of scandal or perceived agenda. COVID-19 being a hoax. Many of these stakeholders: 80% of individuals rumors persist because communities trust or highly trust religious leaders, 3. While health experts and health remain under-educated about compared to 74% in health workers, workers are trusted by 80% of COVID-19 and its risks. Although 78% 72% in national authorities like the Filipinos, it is not the same in BARMM. report feeling concerned or nervous Department of Health, 69% in national This is not only consistently verbalized in about these rumors circulating in their media, and 61% in international our interviews (“I trust my ulama over the communities, many shared that the organizations. This suggests that trust WHO”) but also observed in community only action available to them is to rely and influence are not automatically behaviors, such as fearing hospitalization on asking friends and family. Thus, over granted to authorities, nor purely lest they will be denied proper Muslim the long-term media and information driven by the information or services burial rites. There is therefore a need to literacy programs are also needed provided. Contributing factors include recognize and leverage this unique to empower individuals to navigate the how the links to communities are local realities in BARMM in the information around them. sustained, whether they are two-way COVID-19 response.

INFORMATION ECOSYSTEM ASSESSMENT 5 BARMM PHILIPPINES EXECUTIVE SUMMARY

HUMANITARIAN of the priority pillars of humanitarian 2. The COVID-19 response follows a COVID-19 RESPONSE response and is intended to compliment top-down approach, starting from the 1. Humanitarian organizations have a the initiatives of the national government. national government (IATF, DOH and other long presence in BARMM and thus have For example, WHO supports the RCCE agencies) to the local government units at provincial and municipal level. Guidelines strong bilateral ties with public bodies that initiatives from the Department of Health in the form of memorandums, executive enable their COVID-19 response to take off. (DOH) while UNICEF is in partnership with orders, and other updates are disseminated Humanitarian organizations in BARMM the BARMM Bureau of Public Information, through press briefings. The DOH also are well connected through the Mindanao who in turn leads the region’s IATF Strategic launched an information campaign (known Humanitarian Team (MHT). RCCE is one Communications Group. as “BIDA Solusyon sa COVID-19”) focusing on teaching health protocols. Yet, since the expectation is to adapt the resolutions from the national level, many communication initiatives are not localized and lack genuine community engagement.

3. Although information providers including humanitarian organizations acknowledge the emerging COVID-19 infodemic, there is still no coordinated means and effort to fight misinformation. Community feed- back mechanisms were affected by CO- VID-19 restrictions, limiting organizations to check if information is trickling down to communities.

INFORMATION ECOSYSTEM ASSESSMENT 6 BARMM PHILIPPINES EXECUTIVE SUMMARY

ties via local governmental units and local example, Islamic principles can be used KEY Public Information Officers on succeeding to explain the importance of quarantine or

RECOMMENDATIONS COVID-19 initiatives, particularly on go- sharing stories COVID-19 recovery from vernment aid and vaccination efforts. This community members to address stigma. IMMEDIATE is because a purely media-based effort is RECOMMENDATIONS not enough to penetrate the communities. n Content – Explore layman ways of verbally FOR COVID-19 RESPONSE explaining technical aspects of COVID-19 There is a need for regional and local n Context – Supplement information from such as transmission, testing, symptoms, and governments and humanitarian organi- the national and regional government vaccination to communities. This includes zations to expand COVID-19 communi- and Department of Health with credible translating COVID-19 terms to local dialects. cation strategies to address information community-centered messages. For needs and issues in BARMM particular n Community Engagement using Trusted context. While the current linear, top-down, Sources – Complement COVID-19 and purely public health approach imple- The current linear, top- messages from public officials and health mented thus far has succeeded in informing experts with support from traditional and/ the public on minimum health protocols, down, and purely public the public remains under-educated and health approach has or religious leaders at the community-level. exposed to the risks of misinformation. We succeeded in informing the suggest the following: n Community Feedback Mechanisms – public on minimum health Introduce a common service platform for n Topics – In addition to public health updates protocols, but the public feedback and understanding rumors in and guidelines, cover information needs on remains under-educated communities. These mechanisms should livelihood, aid, and education as they are not be compatible with various humanitarian being addressed in communities. and exposed to the risks initiatives but designed to be inclusive to of misinformation local actors and other sectors, such as n Channels – Directly engage communi- CSOs.

INFORMATION ECOSYSTEM ASSESSMENT 7 BARMM PHILIPPINES EXECUTIVE SUMMARY

COORDINATION that those from marginalized/GIDA areas AND COLLABORATION (BASULTA) are represented. RCCE initiatives should always be in partnership community- To improve the COVID-19 response, based organizations, in addition to local particularly the flow of information, there government units, to promote a community- is a need to strengthen coordination and driven approach. collaboration between these particular stakeholders: CAPACITY BUILDING Over the long-term, the following efforts n Community media and government of- will sustain a healthier information fices such as IATF and MOH – Journalists ecosystem in BARMM: were often limited to press briefings and n Community-Based Rumor Management public releases. Many government offices – Capacitate and empower Muslim religious are understaffed in terms of Information Of- leaders, CSOs, and traditional leaders to ficers hence not able to link with the many incorporate rumor management practices in community media outlets. One approach their existing community touchpoints, such could be to strengthen groups of journalists as during masjids prayers and community in BARMM (for example, the Marawi Broad- listening groups. casters Association) to advocate for press access and contextualize National and Re- n Media and Information Literacy gional responses to be more locally relevant. (MIL) programs – They should specifically include modules on ethics n Local organizations and established and accountability for local journalists, humanitarian organizations – Local digital information literacy for the youth organization should be included in sectors, and civic participation for local coordination meetings while ensuring community influencers. l

INFORMATION ECOSYSTEM ASSESSMENT 8 BARMM PHILIPPINES INDEX

LIST OF ACRONYMS 10 4.1 Information Needs and Gaps 28 6.3 Risk Communication and 4.2 Access - channels and sources 31 community engagement 49 I. RESEARCH SCOPE AND METHODOLOGY 11 4.3 Main determinants and barriers to 6.4 Rumor Tracking and Community II. COUNTRY PROFILE 15 accessing information 32 Feedback Mechanisms 50 4.4 Focus on vulnerable Groups 35 6.5 Identified gaps in information needs III. INFORMATION SUPPLY - INFORMATION and programming 51 PROVIDERS LANDSCAPE REVIEW V. INFORMATION DYNAMICS (how information is produced and distributed) (how individual and communities interact with 17 VI. KEY FINDINGS AND RECOMMENDATIONS the information ecosystem and what do they 3.1 Media Providers 17 do with the information they access) 36 – TOWARDS A HEALTHIER INFORMATION ECOSYSTEM 52 3.2 Digital Media Landscape 20 5.1 Trust 36 7.1 Key findings on the information 3.3 Media and Journalist Associations 5.2 Transmission 39 and Regulators 22 landscape and communities’ 5.3 Influence 40 3.4 Local Relevance of Information 23 information practices 52 5.4 Impact on Knowledge, Attitudes, and 7. 2 Key findings on Humanitarian 3.5 Media capacity and journalist Practices 42 quality 24 Response and information 54 3.6 COVID 19 Information VI. HUMANITARIAN RESPONSE 7.3 Summary of Recommendations 55 Coordination mechanisms 25 AND INFORMATION 44

IV. INFORMATION DEMAND 6.1 National COVID-19 Response Plan 44 ACKNOWLEDGEMENTS AND CREDITS 58 (information communities needs most 6.2 Humanitarian actors active on and how they access it) 28 COVID response 47 ANNEXES 59

INFORMATION ECOSYSTEM ASSESSMENT 9 BARMM PHILIPPINES LIST OF ACRONYMS

n BARMM n HRP n NTF Bangsamoro Autonomous Philippine Humanitarian National Task Force Region in Muslim Response Plan for n NUJP Mindanao COVID-19 National Union of n n BASULTA IATF Journalists of the Inter-Agency Task Force Basilan, Sulu et Tawi-Tawi Philippines n IEC n n BTA Information, OFW Bangsamoro Transition Education, Overseas Filipino Worker Authority Communication n PPE n CORA n IDP Personal Protective Community Consultation Internally Displaced Equipment on the Response Actions Person n RCCE for COVID-19 n IP Risk Communications and Indigenous People n COVID-19 Community Engagement Coronavirus n LGU n RICAA Disease 2019 Local Government Unit Rapid Information, n n CSO LSI Communication Civil Society Organizations Locally Stranded and Accountability Individual Assessment n DOH n MHT Department of Health Mindanao Humanitarian n UN United Nations n HCT Team Humanitarian Country n MRL n WHO Team Muslim Religious Leaders World Health Organization

INFORMATION ECOSYSTEM ASSESSMENT 10 BARMM PHILIPPINES I. RESEARCH SCOPE AND METHODOLOGY LEGEND Adressed Partially adressed 1.1. RESEARCH SCOPE AND MAIN ‘BUILDING BLOCKS’ OF THE IEA Not adressed in this IEA GEOGRAPHIC AND DEMOGRAPHIC COVERAGE

Targeted Full country Entire population Focus on specific IEA geographic area population groups RESEARCH THEMATIC SCOPE

This Information Information supply Information demand Ecosystem Assessment documents how Information providers information around dynamics and interactions Information needs and gaps the COVID-19 National media pandemic is produced, consumed, and shared Trust (trusted channels, in the Bangsamoro Digital media and platforms key drivers of trust) Preferred channels Autonomous Region and sources in Muslim Mindanao Community media (BARMM) in the Sharing and gatekeeping Philippines in 2020- 2021. It builds primarily on Non media Barriers to information extensive interviews and information providers Influence and impact of information access focus group discussions with members of the Linkages between different actors of the community, information Environment Information needs by information ecosystem practitioners and (economic, Media capacity and humanitarians and other organizations working political and quality assessment stakeolders closely with communities regulatory) in the two largest provinces of BARMM, Lanao del Sur and Maguindanao. In addition RESEARCH METHODOLOGY to fieldwork in those two Interviews with Listening Quantitative Research led by the Continuous Results provinces, a survey was Desk research key Informants groups / focus survey community (research feedback by dissemnination conducted by GeoPoll in (information and community groups in the (sample > assistants from the panels of experts and feedback other regions of Mindanao. supply) members community 100) community) and community from communities

INFORMATION ECOSYSTEM ASSESSMENT 11 BARMM PHILIPPINES I. RESEARCH SCOPE AND METHODOLOGY

1.2. PHILOSOPHY AND 1- Putting the community at the core needs and behaviors of groups, especially of the research -- Internews seeks to the most vulnerable ones. METHODOLOGICAL be at the core of the communities it PRINCIPLES serves. For our IEAs, we endeavor to 3- Marrying qualitative and quantita- he people we seek to reach of- have the community itself do a large tive data -- We seek to combine different ten live in diverse, noisy, risky and part of the research: we hire researchers types of data to best understand both the confusing news and information and enumerators from the community supply and demand of information and environments that present them and we rely on community members to how the two interact to produce a dyna- Twith challenges - as well as choices - as to disseminate results and gather feedback. mic ecosystem. We go beyond traditional what information they access, what they When context truly limits our ability to do mapping and audience surveys. Our IEAs trust and what they share and act upon. so (as during the COVID pandemic) we rely heavily on a qualitative approach: Internews undertakes Information Eco- strive to design multiple ways to gather understanding information practices re- system Assessments (IEA) to better un- feedback from community members quires getting up close and personal derstand unique and localized information and representatives as a second best to people to figure out the best ways to needs, gaps, sources and patterns of ac- alternative. reach them with good information. cess and use. Information Ecosystem As- sessments offer us an analytical framework 2- Following a human-centered to capture all dimensions of the relationship research design -- We seek to develop 4- Integrating research and action – between information consumers and infor- a holistic understanding of people’s We do not see Information Ecosystem mation supply. Gaining precise high-quality information practices. We understand Assessments as an “end product”. They insights into these interactions allows us demand and supply in a broad sense, are most often the first stage of our project to design truly unique projects that meet not narrowly focused on media outlets design, providing invaluable context and people where they are to deliver informa- or traditional media actors. Our scope of a way to build a trusting relationship with tion through the channels, platforms, for- analysis is defined by how people actually the community we hope to work with. They mats or people that they prefer and trust. access and consume information and are always connected to recommended not by pre-defined categories. We strive actions, whether our own, those undertaken Our IEA research is based on four key to understand both which practices are by the communities or by our partners and principles: broadly shared and what are the specific other key stakeholders in the ecosystem. l

INFORMATION ECOSYSTEM ASSESSMENT 12 BARMM PHILIPPINES I. RESEARCH SCOPE AND METHODOLOGY

1.3 DATA COLLECTION AND SAMPLE

Informants Collection tool Sample Specifics

Community members from Interviews and 52 Focus Groups Lanao del Sur and Maguindano Source: Internews 2020 Individuals Focus Groups 10 IndividualsInternally Displaced Person (IDP) and and Communities CommunitiesRandom sampling phone-based surveys Survey 278 in the Mindanao region Convenience sampling door-to-door survey Survey 167 in rural areas of Maguindanao and Lanao del Sur 1.4 LIMITATIONS Informal Interviews 3 CSOs Representatives TO THE RESEARCH & leaders Interviews 2 Community-based Religious Leaders he pandemic has significantly Officials from: limited the team’s ability to connect n Bangsamoro Transition Authority (BTA) to the community in BARMM Interviews 4 n BARMM Bureau of Public Information directly. In addition to internet Government n Provincial government of Lanao del Sur n Tconnectivity issues, parts of Lanao del Sur Authorities Local Upi Municipality and Maguindanao are still under some Interviews 6 Barangay Workers in Lanao del Sur and Maguindanao form of lockdown during the fieldwork period. We have addressed this through Representatives from: active collaboration with our partners on n Philippine Daily Inquirer (National Newspaper) the ground and an intentional sampling n National Union of Journalists of the Philippines Media Interviews 6 n Mindanao Cross (Regional Newspaper) design in our fieldwork. The partners n Mindanews (Regional Online News Provider) shared detailed summaries, attended n Sbang Ka Marawi (Local Radio) n Brigada News (Local Radio) debrief sessions, and shared recordings on their interactions with the community when permission granted. In terms of information International OCHA (CoPCE Cluster Lead and BARMM focal) Agencies and Humanitarian Interviews 4 WHO (Risk Communications) stakeholdzers, the team was not able get Actors IOM (Head of Zamboanga Sub-Office) firsthand perspective from TV outlets, from Experts (academics, national media associations, from national n/a 0 think tanks…) authorities (such as the IATF), and 13 INFORMATION ECOSYSTEM ASSESSMENT BARMM PHILIPPINES I. RESEARCH SCOPE AND METHODOLOGY

from government health authorities captured whenever possible. ternews’ project partners rather than the (the Department of Health). Other main n Time frame limitations: The research country research lead itself. This may re- limitations of this research included: was produced within 2 months and has sult in some information lost and poten- n Geographic limitations: All of the therefore condensed Internews IEA tial bias on the findings. quantitative and qualitative fieldwork methodological phases into a simplified n Network mapping limitation: The was conducted in Lanao del Sur and IEA phase-based methodology. network mapping conducted in this Maguindanao. Fieldwork was not n Field work limitations: Although the evaluation is a pilot test with a limited in scope for the island provinces of fieldwork covered a good representa- number of responses and shall therefore BARMM (Basilan, Sulu, and Tawi-Tawi). tive sample of the target population, the be considered just a first step for further Nevertheless, perspective from experts vast majority of the interviews and focus development in future ongoing IEA with experience in those areas were group discussion were conducted by In- efforts. l

INFORMATION ECOSYSTEM ASSESSMENT 14 BARMM PHILIPPINES II. COUNTRY PROFILE

2.1 COUNTRY PROFILE

INDICATORS Philippines Total population (millions) 106.7

Civil liberties (including freedom of expression) 34/60 Population in multidimensional poverty (% headcount) 7.41% Press Key demo- Human development index (rank) 0.712 (106) related Press freedom index 2019 (out of 180 countries) 134 graphic, index social and Rural population (%) 53.1% Press freedom index 2020 (out of 180 countries) 136 political * Source civil rights: freedom house global freedom status factors Illiteracy rate** 3.6% ** Source index ranking: Reporters without borders Refugees by country of origin 0.5 Obstacles to access (0=Worst; 25=Best) 16 Elections 2022 Limits on content (0=Worst; 35=Best) 26 * Source: United Nations Human Development Reports Freedom ** Literacy is understood as the ability to read and write a short simple statement of everyday life on the net Violation of user rights (0=Worst; 30=Best) 22 Freedom on the net score 2019 66 Confirmed cases 431.630 COVID-19 Freedom on the net score 2020 64 Deaths 8392 * Source: World Health Organisation https://covid19.who.int/ - as of Decembre 1st 2020 * Source: Freedom house freedom on the net

Internet penetration rate 60.1 % LEGEND ICTs Mobile phone penetration 110.1% Not free Partly free * Source: United Nations Human Development Reports

he Philippines is an archipelagic residing in rural areas and children who Sulu, and Tawi-Tawi, including two cities country situated in Southeast Asia, belong to families with low poverty thresholds. (Lamitan in Basilan and Marawi in Lanao Del with a total population of 100 million. Sur), 116 municipalities and 2,490 barangays. T In 2018, the poverty incidence is The BARMM in the Philippines is made The population was 3.8 million as of the estimated to be at 16.7% which translates up of five provinces within the Philippines: 2015 Census. The seat of government is in to about 17.7 million Filipinos. The highest Lanao del Sur, Maguindanao and the island Cotabato City, Region XII, which is outside were among farmers, fisherfolks, individuals provinces of Basilan (excluding Isabela City), the jurisdiction of BARMM.

INFORMATION ECOSYSTEM ASSESSMENT 15 BARMM PHILIPPINES II. COUNTRY PROFILE

The provinces of Maguindanao and The government continues ro Autonomous Region of Muslim Min- Lanao del Sur are situated on the island to face threats from several danao (BARMM). Furthermore, 25,367 fa- of Mindanao, the largest of the Philippines’ armed groups originating milies (approximately 126,835 individuals) many islands. The other three provinces, from the insurgent group directly affected by the Marawi Siege are Basilan, Sulu, and TawiTawi, form part of still displaced up to the present. the Sulu archipelago which stretches from in BARMM and other areas the tip of the Zamboanga Peninsula on in Mindanao These displaced families and individuals, the north to the island of Borneo in the sheltered in evacuation centers and/or south. These three provinces are made transitory shelters, are most at-risk for up of small islands which represent the groups originating from the insurgent acquiring infectious diseases such as fringes of a belt of volcanoes. Together, the group in BARMM and other areas in Min- the COVID-19 virus due to difficulties in five provinces of the BARMM region cover danao. In 2017, an armed confrontation accessing 1) water, sanitation, and hygiene an area of 26,974 km2. Lanao del Sur is the between government forces and pro-ISIS (WASH) facilities, 2) health services, and largest of the five provinces, with a total militants in Marawi City displaced 98% 3) accurate information. Furthermore, the land area of 13,494.4 sq. km2, stretching of the city’s total population or 370,000 loss of livelihood among these families along the coast and into the hinterland. individuals. However, prior to this de- further exacerbates their socio-economic Maguindanao, the second largest vastating event, there have already been conditions. province, has a total land area of 5,970.5 existing conflicts and security threats in km2. While the interior of the province is Mindanao resulting in the displacement English and Filipino are the official heavily forested, the coastal areas are low of conflict-afflicted and marginalized fa- languages of the Philippines. BARMM lying and prone to tsunamis and flooding. milies and individuals. In fact, September recognizes 13 languages spoken by the 2020 data showed that 277,846 individuals tri-people (i.e. Muslims, Christians, and In relation to this, the government conti- are still displaced in Mindanao, 33% of Lumad or Indigenous peoples) of the nues to face threats from several armed whom (92,765) are from the Bangsamo- Bangsamoro. l

INFORMATION ECOSYSTEM ASSESSMENT 16 BARMM PHILIPPINES III. INFORMATION SUPPLY: information providers landscape review (how information is produced and distributed)

very high very low very high very low very high very low very high very low Community media & citizen journalism Media standards level Media plurality Media freedom

Source: Internews 2020

National media giants ABS-CBN Majority of Philip- 3.1 MEDIA PROVIDERS TV and GMA 7 dominate the TV market RADIOpines radio stations are Highlights of the freedom both in terms of entertainment, journalism, owned by a single corporation or broad- of expression environment, and advertising revenue. Both corporations cast network. The biggest is the priva- main stakeholders and are publicly listed on the Philippine Stock tely-owned Radio Mindanao Network, key outlets in the country, Exchange and operate other media-related followed by the government-owned Phi- their influencers and subsidiaries like movie production. In Min- lippine Broadcasting Service and the pri- financiers. danao, these two networks account for 80% vately-owned GMA Network. There are 18 of TV viewership. Their primetime national AM and 25 FM radio stations broadcasting n the 2020, Reuters Institute Digital news programs each reach about 15% of in BARMM . Because of the significant News Report found that the majo- TV audiences in the region. Both networks investment required to operate AM radio rity of Filipinos access information broadcast and stream a News Show, speci- stations, more radio stations are shifting through social media (68%) and fic to Mindanao daily in local languages (e.g. to FM frequencies. There is also a prolife- ITV (66%). Census data on BARMM Bisaya/Cebuano and Chavacano) using in- ration of community stations, owned and showed that 40% of households have formation gathered from various satellite of- sometimes funded by private individuals a TV and 25% have a radio . fices in Mindanao. and politicians. In general, they focus

INFORMATION ECOSYSTEM ASSESSMENT 17 BARMM PHILIPPINES III. INFORMATION SUPPLY Media freedom and free expression have become casualties of the ‘war’ against the COVID-19 pandemic that has led to more on sensational, tabloid-style formats. This ownership model leaves their severe restrictions on news employed journalists highly vulnerable coverage and economic to corrupt practices and likely results in a difficulties for newspapers. breeding ground of misinformation. areas like BARMM, struggle to generate Some of the main news- advertising and subscription revenues. PRINT papers available in Min- Thus, they look to funding from politicians danao include privately owned Mindanao who expect them to cover “achievements” Gold Star Daily, Min- of the local government. danao Daily News and Mindanao Times. All three The pandemic has drastically affected the are also available online. operations of print media in Mindanao, as Ranao Star, the only news- the consequential economic downturn paper in Marawi City, has made operating the platforms is only published unsustainable. For example, SunStar monthly so by the Cagayan de Oro, had to stop its print time it reaches the operations and close its newsroom on communities, the in- 30 June 2020 after 25 years of publishing. formation is usually out- Just a few weeks later, Mindanao Daily dated. Several of the journalists we interviewed explained that local news- Mirror, a 70-year-old publication based papers, especially those in less developed in Davao City also made its last issue on 3 July 2020.

INFORMATION ECOSYSTEM ASSESSMENT 18 BARMM PHILIPPINES III. INFORMATION SUPPLY

Reports show 36% of ABS-CBN viewers in LEGAL the country stopped watching TV altogether, even as the country was 3 months into the ENVIRONMENT pandemic . This not only posed a threat All broadcasting companies in the Philip- to the country’s press freedom but also pines are required to have certificates of a hit on at-risk communities’ access to public convenience and necessity from life-saving information, in general and in the National Telecommunications Com- relation to COVID-19. mission, and a legislative franchise from congress to operate. Print publications The Philippine Constitution has need only to register as business enter- acknowledged free expression and press prises. The powers of the National Tele- freedom, although this has not always en- communications Commission (NTC) are sured effective protection of these rights. limited to allocating frequencies to TV The Philippine Center for Investigative Jour- and radio stations, but do not extend to nalism (PCIJ) reported “media freedom and supervise over content and operations. free expression have become casualties of the ‘war’ against the COVID-19 pandemic Both NTC and the Philippine Congress that has led to severe restrictions on news were recently criticized for not granting coverage and economic difficulties for news- a franchise renewal to ABS-CBN, the papers.” In BARMM, our key informants feel country’s largest media company. On May most radio outlets are “not as critical” of local 5, 2020, ABS-CBN’s TV and radio channels governments’ response to COVID-19. Most were shut-down after lawmakers voted not outlets simply re-echo information and offer to allow the network to renew its franchise. little critical commentary. l

INFORMATION ECOSYSTEM ASSESSMENT 19 BARMM PHILIPPINES III. INFORMATION SUPPLY

3.2 DIGITAL MEDIA The same trends on increased digital about 40% of the time . In addition, where LANDSCAPE pivoting is true in BARMM. However, only 4G is available, Mindanao internet speeds 23% of BARMM populations live in urban are often at 50-60% of the speed in Metro Infrastructure and reach, areas with reliable, regular internet access. Manila . Internet access is not available at consumption habits, and all in remote, rural areas. main social networks. Even in key cities like Marawi, limitations on infrastructure means undependable In a report from The ASEAN Post, Local government, radio and TV programs Philippines have the highest increase in broadband and mobile signal. BARMM are also increasingly going digital by social media use during the pandemic. users only have access to 4G connectivity streaming and posting contents on their With strict lockdown measures due to organization’s respective social media COVID-19 and the shutdown of ABS-CBN pages. For example, the Bangsamoro network, the majority of the population The majority of the Government Facebook page has over who are able to access to the internet population who are able 60,000 followers with live audiences have heavily depended on social media to of 3000 – 7000 at any one time. Local access important information like pandemic to access to the internet radio stations (such as Radyo Pilipinas health advisories, news reports, government have heavily depended Marawi, Sbang ka Marawi, Cool FM) assistance, programs, etc. Among those with on social media to access have allocated time slots to discuss basic internet access, the majority (60-70%) said information and policies on COVID-19, that they get COVID-19 information mainly important information like including inviting speakers from the from online sources rather than offline pandemic health advisories, IATF, government officials, and the channels. Among online platforms, the top Provincial Ulama Council. These radio social media and messaging applications news reports, government shows are interactive sessions since they used for news are Facebook (73%), YouTube assistance programs. are livestreamed on Facebook, where (49%), and Facebook Messenger (33%). the audience can ask questions

INFORMATION ECOSYSTEM ASSESSMENT 20 BARMM PHILIPPINES III. INFORMATION SUPPLY

or provide feedback through the MindaNews is a Mindanao-wide online provide accurate representation of what is comment section. While social media news provider under the Mindanao happening on the ground. Nevertheless, has been a game-changer for providing Institute of Journalism. Its cooperative MindaNews has been able to maintain breaking news and public announcements is composed of independent journalists quality reporting over the years and even to the general population, it was also producing publications online, training and during the pandemic. It has managed to instrumental in spreading misinformation research services. Due to the limitations publish a variety of reports around the about COVID-19 as reported by the key brought about by the pandemic, media local government’s COVID-19 response, informants and as collected in rumor outlets have relied on citizen journalists status of health care facilities and relevant tracking. for information which may not always updates on infections. l

INFORMATION ECOSYSTEM ASSESSMENT 21 BARMM PHILIPPINES III. INFORMATION SUPPLY

3.3 MEDIA Information Agency. The hub also seeks to programming, advertising, and trade. Howe- become a training ground for the next-ge- ver, not all media outlets are part of the asso- AND JOURNALIST neration of media practitioners and profes- ciation; there are only 121 KBP members out ASSOCIATIONS sionals in the region and in the country. of the thousands of stations in the country. AND REGULATORS GMA 7, the second biggest TV network for Associations and governance The KBP example, withdrew in 2003. Even then, fines bodies in the media sector NATIONAL (Kapisanan and sanctions are minimal (below USD and their influence and repre- ng mga Broadkaster ng Pilipinas or the As- 1000) and there is difficulty enforcing these sentativeness of the sector. sociation of Philippine Broadcasters) is the codes given the vast number of radio and biggest self-regulatory media association in TV stations in the country. Thus, the journa- lists we interviewed feel that local media as- The Natio- the country. The KBP administers a “system sociations or “press clubs” can play a bigger nal Union of of self-discipline among member radio and REGIONAL role in training and enforcing responsible TV stations as a way of promoting higher Journalists of the Philippines (NUJP) is a media practices. They cite examples of local professional and ethical standards national organization with a chapter in Min- press clubs in Cebu, Iligan, and Zamboanga in Philippine broadcasting”. They danao including in Davao, Cagayan de Oro, where there is more active peer-to-peer re- Bukidnon, Lanao del Norte and Zamboan- have detailed radio and television views and capacity building efforts.l ga. The NUJP has provided safety training codes that enforce standards in to its members all over the region with the Safety Officer/Lead is strategically based in Davao City to provide support on me- dia welfare and capacity building. The Pre- sidential Communications Operation Office launched a Mindanao Media Hub which began operating in December 2020. The structure will house government-owned and operated TV, radio, and print offices that will serve as the information center and press briefing hub for the Philippine

INFORMATION ECOSYSTEM ASSESSMENT 22 BARMM PHILIPPINES III. INFORMATION SUPPLY

3.4 LOCAL RELEVANCE Most community news outlets have OF INFORMATION limited capacity in basic fact-checking and mostly rely on tabloid-style reporting, Local topics of interest and status of community media delivering fast - but not always accurate and verified news. COVID-19 related n BARMM, information providers are information is provided solely by national mostly limited to privately-owned health department before being cascaded stations which can have specific political biases. Local media to the region, city and Ioutlets interviewees barangay respectively. confirmed that unlike Information providers This disrupts the flow reporting about local are mostly limited of timely information topics of interest related to privately-owned when it is needed the to the armed conflict, stations which can have most. Some journalists they are less experienced we interviewed shared with the pandemic and specific political biases this one-way flow infodemic in the local of information is not context and worldwide. enough. They have had to go directly In this setting, far flung communities not reached by radio or mobile signal, rely on to health officials and hospitals to get two-way radios managed by the military the real stories. This extra legwork puts as they have done so to find out “breaking them further at risk and even then not news” on any attacks and calamities in their obtaining in several cases useful, timely immediate areas. or adequate information. l

INFORMATION ECOSYSTEM ASSESSMENT 23 BARMM PHILIPPINES III. INFORMATION SUPPLY

3.5 MEDIA CAPACITY Most radio broadcasters in be able to verify and gather sources. In addition, government lockdowns limit the

AND INFORMATION the area are less equipped movement of journalists to get firsthand QUALITY to spot and address information. Local journalists have tried to Journalism training and misinformation as they adapt and continue reporting from their education facilities and have limited professional homes despite technical struggles like average professional poor network connections and the lack standards and challenges training on media ethics, of professional audio-visual equipment. investigative journalism, n Marawi, our key informants reported triangulation of evidence… Local journalists’ limited ability and that most radio broadcasters in the capacity to address misinformation is area are less equipped to spot and on full display in the pandemic. Our address misinformation as they have provided by media associations but may informants cite examples of irresponsible Ilimited professional training on media not be sustainable for the long term. sharing on social media by journalists ethics, investigative journalism, triangula- tion of evidence, etc. In reality, there are During the key informant interviews, under the guise of fishing for information often no hard qualifications to become a media workers expressed their concern or the guise of sharing their own opinions. journalist and they mention how many try about the health and safety risks posed by With limited efforts from the local to appear as trained journalists (for exa- covering issues on COVID-19. With media authorities to address misinformation on mple, by modulating their voices to sound networks unable to provide health and COVID-19, journalists on their own do not like established radio anchors). Peer-to safety provisions for its workers, journalists have access to sources that can quash peer initiatives are available and or being do not have full mobility required to rumors in a credible and timely manner. l

INFORMATION ECOSYSTEM ASSESSMENT 24 BARMM PHILIPPINES III. INFORMATION SUPPLY

3.6 COVID 19 all COVID-related information. The local This was and continues to be a point of (province/city level) DOH and WHO contention with media groups including

INFORMATION offices’ guidance is disseminated down those in Mindanao as it is perceived to COORDINATION to different towns and municipalities. be an official means to deprive the media MECHANISMS During the pandemic, there were of access to information. Moreover, most Specific COVID-19 quality conflicting statements by different authorities do not take questions from standards and linkages agency leads, which resulted in confusing journalists during press briefings (both between stakeholders information interpretation in different online and in-person). provinces especially around lockdown he government through the guidelines. For in-person press briefings, Most of the journalists we interviewed national Inter-Agency Task journalists are required to provide media feel authorities are not doing enough Force (IATF) remains to be the accreditation passes in compliance with to keep the public informed. COVID-19 central information source for the strict home quarantine directives. Updates focus on case counts and T INFORMATION ECOSYSTEM ASSESSMENT 25 BARMM PHILIPPINES III. INFORMATION SUPPLY

Table 2. Media outlets COVID-19 principal interaction nodes AVG MEDIA other statistics with limited context UN agencies INTERNATIONAL 2.50 very very and explanation behind the data. At the high low Multilateral organisations INTERNATIONAL INTENSITY local level, communication initiatives are (other than UN) 2.00 OF INTERACTION Countries not prioritized due to limited funding. (other States donors) INTERNATIONAL 1.00 The pandemic has also affected the Other international INTERNATIONAL 2.00 Bangsamoro government transition Ministry of information/ NATIONAL 3.00 process and thus many localities do not Communication have public information officers. Ministry of Health NATIONAL 4.67 Ministry of Disaster NATIONAL 4.00 Management (or similar) In relation to the main stakeholders’ Other Ministries or executive bodies NATIONAL 2.00 interaction in the COVID-19 infodemic, the research has produced a first step towards Regional/local level authorities NATIONAL 5.00 a network mapping assessment in the Media regulatory authorities NATIONAL 2.00 media sector, asking informants about the Other public bodies NATIONAL 1.00 main nodes of interaction. According to the Community media MEDIA 3.33 responses provided in the interviews, and representatives as reflected in the table below, media outlets Media associations MEDIA 3.00 main nodes of interaction are centered Public media MEDIA 5.00 around engaging with public bodies and Commercial media MEDIA 5.00 other media sector stakeholders. They Community leaders CIVIL SOCIETY 3.33 do not include a representative sample of international organizations (including Religious leaders CIVIL SOCIETY 3.67 Online platforms (private sector) humanitarian organizations) and/or – search engines CIVIL SOCIETY 3.00 community representatives. Key constituencies (women, youth) CIVIL SOCIETY 3.67 Other private CIVIL SOCIETY 1.33

Moreover, the links with public bodies is Source: Internews 2020 noticeably stronger with regional and local authorities than with national level

INFORMATION ECOSYSTEM ASSESSMENT 26 BARMM PHILIPPINES III. INFORMATION SUPPLY

authorities (as expected), despite still in the radar of media outlets (both Most authorities do not take the Ministry of health and the Ministry of Disaster Management or the equivalent). questions from journalists Out of other media stakeholders connected, during press briefings both public and commercial local media seem to have the best links amongst the connections with high intensity stakehol- consulted outlets with a high intensity ders show community representatives and of interaction (average of 5 over 5) and international organizations are left out of the wide spread of such contacts between media networks assessed. Only one me- respondents (all of them have them in their dia respondent (local media) showed good nets as key stakeholders). On the other connections with community information hand, community media is only referred nodes and another with international orga- by one respondent as a high intensity nizations. These responses show the need contact in their nets. This further indicates of further efforts on communication pro- that the reach and activities of community cesses with communities that still seem dis- media (for example, 2-way radio) is limited connected from average media outlets and compared to larger media outlets. also bridging efforts with humanitarian inter- Stakeholders less connected in terms of ave- national organizations that are coordinating rage interaction intensity and stand-alone the humanitarian response. l

INFORMATION ECOSYSTEM ASSESSMENT 27 BARMM PHILIPPINES IV. INFORMATION DEMAND (information communities needs most and how they access it)

According to the focus groups and interviews carried out, many respondents were frustrated, stressed, or tired of the “new normal” hence they were anxious of the pandemic to end. Thus, many of their questions were framed in the context of looking towards the future. On health and public safety, most members of the community wanted to learn when the pandemic would end and whether COVID-19 is actually real. On aid, many asked questions about the government’s Social Amelioration Program (SAP): why they did in our door-to-door survey in Lanao del not receive help and when the government 4.1 INFORMATION Sur and Mindanao, 47% reported to be would release more funding. Relief NEEDS AND GAPS “informed but still have some questions.” operations were especially a pronounced General and COVID-19 concern in our focus groups in rural areas specific information needs The topics needed by the community are and in IDP communities. (“We are going to consistent across urban and rural groups, die of hunger not from this pandemic.”). On ccording to the fieldwork and ages and gender as well. The biggest concern education, parents and the youth wanted in both surveys (Mindanao is of course the many different aspects of to know when modular learning would end region and BARMM specific), COVID-19 such as treatments (77%), local and in-person classes would be allowed. communities indicated that updates (63%), prevention (59%), and res- Finally, majority of individuals wanted to Asome but not all of their information trictions on non-essential activities (47%). know when they would be allowed to return needs are being met. In the Mindanao- Outside COVID-19 specific concerns, the to their livelihood. (“If the government won’t wide phone survey, 33% feel that the communities’ information needs center on let me sell my products, they should give us information “covers basic needs” and livelihood, humanitarian aid, and/or govern- allowance every day to survive!” / “Many of 17% feel that they “get the most common ment support (68%) followed by questions my constituents are asking me if they can go information on general topics.” Similarly, on education and schooling (61%). abroad to work already.”)

INFORMATION ECOSYSTEM ASSESSMENT 28 BARMM PHILIPPINES IV. INFORMATION DEMAND

Not all of these concerns are being distancing, many let their guards down addressed, as shown in Table 3. BARMM during gatherings such as sermons in seems to be in a different place in terms mosques. of COVID-19 knowledge compared to Most of the information trickling down to the rest of Mindanao. Whereas the rest communities seem to be regarding restric- of Mindanao needs more information tions or lockdowns (4.1/5), while informa- on COVID-19 treatment tion that is in much higher (77%), BARMM still needs demand like education information to help them (3.5 / 5) and aid (3.1/5) are understand COVID-19 lacking. (“We are far from the (83%). This is consistent 33% municipality so if we don’t FEEL THE INFORMATION with our qualitative “COVERS BASIC NEEDS” AND protest, I don’t think we will findings that many in get relief operations.”) On the community want to education, many parents know where the virus and students rely on their came from and if it is a 17% own school officials for up- real disease, especially FEEL THEY “GET THE MOST dates. These concerns are when the patients are COMMON INFORMATION ON known to information provi- asymptomatic. The impact GENERAL TOPICS.” ders. Local radio journalist of the lack of information interviewees often receive on these topics is that there is a concerns via text messages, while the Di- disconnect between communities’ rector for the Bureau of Public Information motives and behaviors. For example, get messages on Facebook asking about individuals wear masks because they aid. Barangay officials are constantly want to go out and not necessarily hounded about when the community because they are concerned of infection. can return to their livelihood and see While communities know about physical their relatives. l

INFORMATION ECOSYSTEM ASSESSMENT 29 BARMM PHILIPPINES IV. INFORMATION DEMAND

Table 3. Information Demands vs Perceived Information Supply Mindanao

Information demand BARMM (% of respondents)

Treatment 77 % for COVID-19 66 %

68 % Perceived supply Employment 33 % (Rating 1-5)

68 % Aid 57 % 4.2 3.9 4.1 3.6 3.6 3.5 3.5 3.5 3.6 3.6 3.8 63 % 3.3 3.1 3.4 3.1 3.2 3.2 Local news 2.9 41 % 2.5 61 % Education na na 52 %

Protection 59 % from COVID-19 63 % 0

Understand 54 % COVID-19 83% Treatment Employ- Aid Local Education Protec- Unders- Land Leisure Restric- for ment news tion from tand tions COVID-19 COVID-19 COVID-19 54 % Land na Source: Internews 2020 47 % Leisure 5 %

na Restrictions 50 %

Boxed : significant difference between Mindanao and BARMM

INFORMATION ECOSYSTEM ASSESSMENT 30 BARMM PHILIPPINES IV. INFORMATION DEMAND

4.2 ACCESS - (score of 4.2 / 5.0), then social media (3.6 / internet prefer simple posts on Facebook, 5.0) and radio (2.4 / 5.0). This is consistent since connections are typically slow for CHANNELS AND with another study conducted as part of videos. In rural areas, TV, radio (including SOURCES the Initiative for Media Freedom, where two-way radio like SAKSI), printed n the Mindanao region survey, news organizations and friends or family materials, and in-person announcements most individuals use TV and social are the primary sources for information in are more common. The preferred delivery media (both score of 4.0 / 5.0) most BARMM . Notably , this study finds that is in-person verbally through community often to access COVID information, BARMM also had the biggest share of assemblies (pulong pulong or masjid) or Ifollowed closely by face-to-face channels respondents who secure information from during sermons at the mosque. (“Most like friends, family, or community events public personalities and religious leaders don’t read flyers or tarpaulin.”) Another (score of 3.7 / 5.0). In BARMM, census compared to other parts of the country. individual from the community shared data shows only 40% of households that because they are hesitant to go out, have a TV and 25% have a radio, while In urban areas, most individuals follow they are not able see many of the poswters the majority lack access to the internet mainstream media outlets’ Facebook in the municipal or barangay health clinic. (Philippine Statistics Authority, 2020). In pages (such as ABS-CBN) and the Hence, they prefer authorities to reach out BARMM, friends and family are used the Facebook pages of their LGU to stay to them directly or through their religious most (score of 4.5 / 5.0), followed by TV updated. Those who have access to the gatherings. l

FRIENDS AND FAMILY ARE USED THE MOST. FOLLOWED BY TV THEN SOCIAL MEDIA AND RADIO SCORE OF: SCORE OF: SCORE OF: SCORE OF: 4.5/5.0 4.2/5.0 3.6/5.0 2.4/5.0

INFORMATION ECOSYSTEM ASSESSMENT 31 BARMM PHILIPPINES IV. INFORMATION DEMAND

4.3 MAIN In our focus groups and interviews, language did not come as a barrier to DETERMINANTS information: 82% said that they normally AND BARRIERS or always get the information in their TO ACCESSING preferred language. INFORMATION Specific to covering COVID-19, informa- Languages and (media) tion providers have to work harder to literacy, context and culture explain medical and scientific terminolo- gies in simpler terms that their audiences ccording to the Philippines can understand. A public official shared Statistics Authority, Muslims that since the average educational attain- comprise more than 90 per ment is low, it is understandable why ap- cent of the total population. peals to religious sensibilities and perso- AYet, BARMM, like the rest of Mindanao, nal relationships may be more relatable is ethnically diverse. The main languages to communities compared to a straight in Lanao del Sur and Maguindanao are explanation of science and facts. A key Maguindanao, Maranao, Cebuano, and informant shared that adopting more ca- Tagalog. The information shared on sual conversational tone or a group dia- local radio and in-person through local logue format can be more effective and assemblies are always in these local accessible approach compared to broad- languages. On TV, most information from casting information. BARMM communi- the major media outlets are in Tagalog or ties have a culture of regularly gathering English. Communication from the local and discussing issues in their mosques. governments and on social media often In addition, they feel that acknowledging have a mix of English and local languages. the local realities and context is an

INFORMATION ECOSYSTEM ASSESSMENT 32 BARMM PHILIPPINES IV. INFORMATION DEMAND

important basis for effective infor- around 50% of the region. Outside media mation and educational campaigns to outlets, LGUs are also understaffed and build upon. (“We had this initiative for hy- underfunded in terms of communication giene / handwashing for COVID, but these or information officers. There is limited rural communities don’t even have access COVID-19 testing and health facilities to clean drinking water.”) are concentrated in key cities. So, to the majority of the population, COVID-19 Main Barriers to Access remains an invisible threat instead - external and internal of a serious pandemic. barriers The main external barrier to information is The stigma and discrimination poor infrastructure in BARMM. The lack of around COVID-19 is also telephone lines, cell sites, radio systems, a barrier to spreading and local TV networks continue to restrict critical information. We communication flow in BARMM. As a saw that individuals who result, people living in far-flung areas rely have had COVID-19 or on limited sources of information, such close contacts to it are as word of mouth, printed materials, and hesitant to share their two-way radios. BARMM residents expect views and experiences. the situation to improve once the WiFi One interviewee, who recovered, project by the Department of Information did not want any documentation of the and Communication Technology (DICT) interview because she was scared of DICT and UNDP is completed, which being traced. (“Actually, several of us in the will provide stable internet connection to community probably got COVID-19

INFORMATION ECOSYSTEM ASSESSMENT 33 BARMM PHILIPPINES IV. INFORMATION DEMAND

since we had all the symptoms. But In his community, 5 as a good or very good factor in trusting we were scared of getting tested so we the information). just used herbal remedies.”) She shared the ulama did not that she was scared of not only getting believe in COVID-19. It is worth noting that the complex na- reinfected, but also getting hospitalized So, any contradictory ture of the coronavirus itself is a barrier and perhaps dying in the hospital without to effective communication. A number of given the proper Muslim burial rituals. A discussions would public officials and community represen- barangay official also shared that in his be seen as going against tatives interviewed described that the co- community, the ulama did not believe ronavirus is an invisible threat that is ea- in COVID-19. So, any contradictory the religious leader sily dismissed with anecdotal evidence. discussions would be seen as going For example, positive but asymptomatic against the religious leader. Some also patients embolden individuals to ques- expressed hesitation or fear in asking understandably more concerned about tion the seriousness of the disease. In a for COVID-19 information because they recovering their livelihood than deepening might be considered to have COVID-19. their understanding of COVID-19. In the region long affected by military conflict, surveys, less than 60% of respondents feel the relatively low death rate has led the Finally, Media and Information Literacy confident to tell the difference between residents to question whether such strict (MIL) in the region has been identified as correct and incorrect information. Further, measures are necessary. This implies that one of the major root causes for the spread our qualitative fieldwork reveals that not only is there a need to explain CO- of misinformation and disinformation. this often has to do with assessing their VID-19 information in layman terms, but Besides asking individual health workers familiarity with the source of information, also a need to include relevant stories or local authorities they know, most of instead of assessing the content in the and experiences from the communities the interviewees did not feel the need to piece of information itself (as shown in itself i.e. stories of COVID-19 recoveries actively search for information. They are features of trust with a score of 4.2 out of or COVID-19 clusters. l

INFORMATION ECOSYSTEM ASSESSMENT 34 BARMM PHILIPPINES IV. INFORMATION DEMAND

4.4 FOCUS ON a member of the BTA parliament, “Inse- been adversely affected. curity has increased anxiety and paranoia, Another of the KII respondents shared VULNERABLE GROUPS especially due to lack of information. Their that displaced families residing in the situation and experiences make [IDPs in city have more access to assistance s one of the least developed BARMM] vulnerable to be victims of mi- than those who live in the outskirts. In regions in the Philippines, sinformation and fake news.” The shift to fact, among vulnerable groups reached most of BARMM is especially information dissemination through online by RCCE initiatives in BARMM, only 1% vulnerable to COVID-19. For platforms has further isolated those in were IDPs and 7% were from geographi- Aexample, in all of BARMM, there was only remote areas. “The lockdown pushed the cally isolated areas. In these remote areas one hospital, Amai Pakpak Medical Cen- government and organizations to rely on- where access to telecommunications and ter located in Marawi City, equipped with line. But they forgot that a lot of people do internet service providers are limited, in- ventilators at the start of the pandemic. not have access or rarely go online—and formation is often provided by the military Within BARMM, even more vulnerable they are the most vulnerable,” says a youth and/or the roving public announcement groups are IDPs and people living in geo- leader. In particular, the older generation vehicles that pass through these commu- graphically isolated areas. According to that relied on traditional print media have nities. l

INFORMATION ECOSYSTEM ASSESSMENT 35 BARMM PHILIPPINES V. (how INFORMATION individual and communities interact with the information ecosystem and DYNAMICS what do they do with the information they access)

Table 4. Trusted Stakeholders in BARMM compared to the rest of Philippines

BARMM PHILIPPINES, JOHNS HOPKINS UNIVERSITY, JULY 2020 Religious Health Leader 80 % Experts 78 %

Barangay Chairman 78 % WHO 68 %

Traditional Local Health Leader 76 % Workers 60 %

Health TV 57 % Workers 74 % National Authorities 72 % Radio 50 % (ex. DOH, IATF) National Media 69 % Online 30 %

Family and Mayor 68 % Friends 15 %

Family / Friends 66 % Politicians 13 %

Governor 65 % 5.1 TRUST national government authorities all scored 4 out of 5 in trust ratings. Not far behind are Local Media 63 % Trusted sources, features of all other possible sources such as different trust and COVID-19 specifics media outlets (3.6 to 3.9 / 5.0), LGUs (3.8 / Youth 62 % Leader oth surveys conducted show nearly 5.0), international organizations, community all information providers enjoy and religious leaders (each 3.7 / 5.0). In International 61 % Organizations reasonable levels of trust within the contrast, the survey in BARMM shows that International community. In the Mindanao-wide both community leaders and national media Media 49 % Source: Internews 2020 B outlets were the two most trusted, survey, friends, family, health workers, and

INFORMATION ECOSYSTEM ASSESSMENT 36 BARMM PHILIPPINES V. INFORMATION DYNAMICS

Table 5. Ranking of sources of information Source: Internews 2020

0 scoring 4.2 out of 5.0. This is in contrast to findings of ongoing surveys conducted by 1st National Johns Hopkins for the entire country. In their Media Knowledge, Attitudes, and Practice (KAP) 2nd International COVID-19 study conducted in July 2020, far Organizations more individuals trust health experts such as scientists and doctors (79%), WHO (68%), International 3rd Media and local health workers (60%) compared to media outlets (TV 57%, radio 50%, and National 4th online sources 30%), journalists (27%), Authorities and politicians (13%) . This suggests that a Local community-centered approach might be 5th Media more relevant for BARMM, compared to the rest of the country where IATF and DOH-led Local 6th communication will resonate better. Authorities Looking at possible features that drive Traditional trust, it is clear from Table 5 that being a 7th and Religious Leaders trusted information provider goes beyond the substantive information and support 8th provided. For instance, international Trust «Informative» «Helpful» «Connected to «Covid-19» organizations is the second stakeholder Ranking community» Authority considered most informative and helpful, way ahead of community leaders who Boxed: Significant difference between rankings of trust and features of trust nevertheless are more trusted.

INFORMATION ECOSYSTEM ASSESSMENT 37 BARMM PHILIPPINES V. INFORMATION DYNAMICS

Being a trusted information provider goes beyond the substantive information and support provided. For instance, international organizations is the second stakeholder considered most Our qualitative fieldwork reveals have intermittent, changing, or one-time that trust is more driven by stakeholders’ informative and helpful, engagements with communities. untarnished reputations and their sustained In relation to features of trust, other community involvement. For example, way ahead of community factors are flagged as the most important many individuals cited trust in regional and leaders who nevertheless features to build trust on information: local authorities but lower trust in national sources coming closer from loved ones/ authorities like PhilHealth and the Office of are more trusted. relatives (scored 4.1 out of 5); official the President because of recent scandals. information from authorities (scored 3.9 There are also rumors going around that out of 5); and level of detail of information health workers are profiting from COVID-19. information to wear masks and such. A (scoring 3.8 out of 5). In this regard, it Religious leaders are highly trusted because humanitarian official working on the island is noticeable how information coming of their reputations (“Religious leaders will provinces in BARMM shared that in addition from international sources is scored not lie because they are sharing the word of to religious leaders, there are other clusters significatively lower that all other potential God.”). While they are not objectively more of local influencers that may play a similar features of trust (average score of 3.2 out informative than other stakeholders, a CSO role outside the national authorities and of 5). This finding is relevant specially to we interviewed explained that religious mainstream media. These local influencers, humanitarian organizations working in leaders provide a deeper explanation religious leaders, and arguably mainstream the region to consider how and through through integrating Muslim teachings, media have longstanding community which sources they should circulate whereas others just share the same factual presence, whereas other stakeholders often information. l

INFORMATION ECOSYSTEM ASSESSMENT 38 BARMM PHILIPPINES V. INFORMATION DYNAMICS

5.2 TRANSMISSION access often share, react, or comment To note, communities seem to be on stories and memes that resonate with interacting with stories and information Sharing, transforming and their own feelings or experiences on their involving COVID-19 patients because producing information personal accounts. Some are willing to they are afraid of discrimination and majority of individuals (69%) share other stories they have heard or other consequences. (“I was so stressed report that they normally or experienced firsthand, especially around during my quarantine and I don’t want always discuss useful information the topic of aid and the implementation of to talk about it anymore.” / “We are or whether an information is lockdown restrictions. This is in contrast with worried about COVID-19 yes but several Atrustworthy. Moreover, 64% report that they content from public authorities which seem normally or always share information with to have less engagement from communities. of us who got the symptoms don’t want family or friends. In our focus groups, there For example, while a number of those we to share because they might trace and does not seem to be a lot of transmission interviewed are aware of the recent BIDA punish us.”) Local barangay officials are and transformation on “straight” information campaign of DOH, many of them shared also wary of actively sharing COVID-19 or facts. Rumors, anecdotes, and memes that they did not feel compelled to share or information if the religious leaders are are more transmitted. Those with internet enrich the materials. preaching something different.l

INFORMATION ECOSYSTEM ASSESSMENT 39 BARMM PHILIPPINES V. INFORMATION DYNAMICS

5.3 INFLUENCE Knowledge gained from information and key features for influence s most of the key stakeholders echo the same information on COVID-19 case counts and health protocols as shared by Athe Department of Health (DOH) and the Inter-agency Task Force (IATF), it is difficult to determine which stakeholder holds more influence in terms of developing knowledge and changing community behaviors. 78% of individuals reported changing some aspects of their behavior this year based on information received from different sources. In terms of channels used to deliver the information, there is a huge difference in accessibility of online, traditional media, and face-to-face channels across target groups. So, there seems to be no platform that is more influential than others.

INFORMATION ECOSYSTEM ASSESSMENT 40 BARMM PHILIPPINES V. INFORMATION DYNAMICS

In any case, a key driver to influence able to share what their ulamas preached Information on lockdown guidelines and in the pandemic seems to be simple, about COVID-19 in verbatim or describe protocols have the biggest influence on consistent, and concrete messaging in detail the experience of their relatives the communities’ day to day life. Many used across stakeholders and channels. in quarantine. Despite the daily updates lost their source of livelihood because of For example, when asked about practices from local authorities being shared the restrictions and they have no choice that protect them from COVID-19, 63% through official channels and through but to abide. Most feel that they have of individuals in our BARMM survey local media platforms, very few described lost opportunities in the “new normal” were able to cite wearing a mask and/or the state of COVID-19 in their areas. including students learning online and face shield. In contrast, the message on Instead, many questioned if the pandemic farmers struggling since they cannot sell distancing has not translated as clearly is real and if the situation warranted such their harvest outside their municipality. to the community with 25% mentioning strict measures. In addition, while many Many shared that any information they some articulation of social distancing, shared that they trust and would follow will get on COVID-19 could only mean while 17% mentioned to stay at home. health authorities like MOH or those more bad news for them. (“I pay attention However, our interviews suggest in Amai Pakpak Medical Center, many to the pandemic because I have to think information provided by community are wary of the idea of getting tested or about where we will find food or money leaders or personal contacts, in the form going to the hospital. The youth are more if this lockdown continues.”) Other of stories or discussions, is more likely influenced by what they see on social COVID-19 updates tend to increase their to be retained and also acted on much media, especially by pages and accounts concern and worry or don’t address their more easily. For example, many were that have sizeable followings. concerns at all. l

INFORMATION ECOSYSTEM ASSESSMENT 41 BARMM PHILIPPINES V. INFORMATION DYNAMICS

Source: Internews 2020

% who 5.4 IMPACT ON Table 6. COVID-19 Knowledge and Rumors have heard % who answered KNOWLEDGE, correctly Covid-19 can be 91% ATTITUDES, AND passed from person to person 92% PRACTICES ilipinos have shown consistently FACT Covid-19 can be 84% controlled by high adoption to health protocols wearing masks 77% and in BARMM, this is no exception. Nationally from July to Covid-19 was 84% FSeptember 2020, 90% of Filipinos have made by a lab in China 4% consistently reported the adoption of You shouldn’t get a Covid-19 74% mask-wearing in their communities and test because people will around 70% report practicing physical think you are infected 31% distancing. Similarly, the Social Weather You shouldn’t get a Covid-19 71% vaccine because companies Station surveys indicate high compliance are just trying to make money 23% of health protocols throughout Luzon, Hospitals are exaggerating 63% Visayas, and Mindanao from May to July Covid-19 cases to get 2020. Fieldwork similarly indicates high PhilHealth money 29% RUMORS overall compliance to mask-wearing and Covid-19 can be cured 57% with tuob or other home distancing. remedies 38%

Covid-19 can 50% However, both our quantitative and be treated qualitative fieldwork shows significant with bleach 41% and troubling gaps between COVID-19 Covid-19 is being 35% spread by 5G and other knowledge, attitudes, and behaviors mobile networks 53% in the community. While mask

INFORMATION ECOSYSTEM ASSESSMENT 42 BARMM PHILIPPINES V. INFORMATION DYNAMICS

wearing and the contagious nature “People have masks because Interestingly, while there is disbelief of COVID-19 are common knowledge, or doubt in the pandemic, there is there are many fundamental aspects they want to go out, but you also stigma and fear on COVID-19 in of COVID-19 that is not known by the can see they’re not wearing communities. In the beginning of the public, as shown in Table 4. We heard pandemic, locally stranded individuals harmful threads of misinformation in it correctly most of the time.” (LSI) were discriminated and faced all of our interviews and focus groups Because the public is under-educated difficulties returning to their homes. consistent with our rumor collection and misinformed, we see attitudes of Patients and close contacts are afraid to efforts. Many individuals were either denial towards the pandemic. Many share their experience. Potential cases are doubtful that COVID-19 exists or put the pandemic lightly and question wary of getting tested and hospitalized. believe that COVID-19 is not serious. the basis for strict lockdowns because As with the rest of the country, there For example, many believe that of the relatively low mortality rates and are apprehensions about COVID-19 COVID-19 was created and it can be asymptomatic cases. Thus, while many vaccines. These gaps in knowledge, cured with home remedies: “Several practice the recommended health attitudes, and practice highlight the need of us in the community probably got protocols, these come from a desire to to help the public understand COVID-19 COVID since we had all the symptoms. comply or have a semblance of normal more thoroughly, not just in terms of basic rather than a real concern or desire to But we got better from home remedies public health measures. l so is it even serious or real?” There is curb COVID-19 spread. (“You can see a lack of understanding on the nature during relief operations that people “You wear your mask to go of testing and hospitalization due to forget about distancing.” / “People have rumors circulating in communities. masks because they want to go out, to the mosque, but most will but you can see they’re not wearing it correctly most of the time.” / “You wear take it off once inside. If you “You can see during relief your mask to go to the mosque, but most keep it on, it’s as if you’re will take it off once inside. If you keep it operations that people forget on, it’s as if you’re saying you don’t trust saying you don’t trust the about distancing.” the people in the masjid.”) people in the masjid.”

INFORMATION ECOSYSTEM ASSESSMENT 43 BARMM PHILIPPINES VI. HUMANITARIAN RESPONSE AND INFORMATION

Likewise, the DOH has released an social media, radio, public texts blasts (to 6.1 NATIONAL COVID-19 information campaign known as “BIDA key actors and CSOs), and two-way ra- RESPONSE PLAN Solusyon sa COVID-19” . This campaign dios (using the SAKSI frequency) to the Plan, network and which is disseminated through various community. Although risk communica- coordination of action communication platforms – digital print, tion and community engagement initia- t the start of the pandemic radio, tv, and traditional print – aims to tives are specified in the NTF COVID-19 in March, the Philippines encourage individuals to take an active Response Plan, one of our key informants assembled an Inter-Agency role in the fight against COVID-19. noted that in their municipal COVID-19 Task Force (IATF) to lead and Moreover, messaging tool kits for Local Response Plan, communication and Aoversee the development and regulation Government Units (LGUs) have also been coordination are not included. of technical documents related to developed by DOH to assist local health the overall COVID-19 response. To leaders in engaging communities . According to the Network Mapping complement this group, a National Task Following the top-down approach, coor- assessment in Table 6, public bodies’ Force (NTF) was also formed which dination is done from the national govern- main nodes of interaction are spread serves as the operational command ment (IATF, DOH and other agencies) over the main clusters of stakeholders or the implementing arm during this to the local government units (provin- and include high interaction with all pandemic. Through Resolution No. 51 , cial and municipal level). Since the local international organizsations, other public the second phase of the National Action government units are only expected to bodies, media sector and community Plan for COVID-19 was institutionalized. adapt the resolutions from the national representatives. In this regard however, One of its key features is the importance levels, local discussions at the municipal when looking at the specific stakeholders of risk communication and community IATF are minimal. Information is then lo- public bodies that stakeholders interact engagement to promote behavioral calized and institutionalized in the form of with in Figure 6, it is noticeable that change and increase compliance to memorandums and executive orders. In they mainly nodes at the media sector the minimum public health standards. turn, circulation of these is done through level are interact with public media

INFORMATION ECOSYSTEM ASSESSMENT 44 BARMM PHILIPPINES VI. HUMANITARIAN RESPONSE AND INFORMATION

Table 7. Public Bodies COVID-19 Principal Interaction Node

AVG PUB BODIES

UN agencies INTERNATIONAL 4.00

Multilateral organisations INTERNATIONAL INTENSITY (i.e. government radio stations and (other than UN) 1.67 OF INTERACTION Countries official government Facebook pages) at (other States donors) INTERNATIONAL 1.67 the media sector level. They interact most Other international INTERNATIONAL 3.33 with religious leaders, likely because Ministry of information/ Communication NATIONAL 2.33 many restrictions they have to implement Ministry of Health NATIONAL 4.00 directly affect places of worship and Ministry of Disaster NATIONAL 2.67 religious gatherings. Management (or similar) Other Ministries Narrowing the assessment to specific or executive bodies NATIONAL 1.67 high intensity nodes of interaction (over Regional/local level authorities NATIONAL 3.67

3 out of 5), the mapping shows that key Media regulatory authorities NATIONAL 1.33 stakeholders are not well connected to Other public bodies NATIONAL 1.33 the respondent networks. Our interviews Community media MEDIA 2.33 reveal that public bodies have strong representatives Media associations 1.67 bilateral ties with specific stakeholders, MEDIA for example, the Ministry of Health Public media MEDIA 3.67 with WHO and the Bureau of Public Commercial media MEDIA 2.67

Information with UNICEF. Multilateral ties Community leaders CIVIL SOCIETY 3.33 are less common, especially between Religious leaders CIVIL SOCIETY 4.33 different sectors. Thus, the point remains Online platforms (private sector) CIVIL SOCIETY 3.00 that both key constituencies and UN – search engines Key constituencies agencies stakeholders are on the fringes. (women, youth) CIVIL SOCIETY 3.00 This denotes a potential risk in gaps of Other private CIVIL SOCIETY 2.00 communication with communities and Source: Internews 2020 overall alignment to international efforts.l

INFORMATION ECOSYSTEM ASSESSMENT 45 BARMM PHILIPPINES VI. HUMANITARIAN RESPONSE AND INFORMATION

Figure 4. Visual Stakeholder Map of Public Bodies (nodes with scored interaction over 3 in a scale from 1 to 5)

Source: Internews 2020

RESPONDENT INTERNATIONAL NATIONAL MEDIA CIVIL SOCIETY

Ministry of information / Ministry of Communication Disaster Management Community leaders

Un agencies Public media Bureau of public Information Ministry Countries of Health (other States donors) Regional/ local level Online platforme authorities Multilateral (private sector) - Influencies organisations search engines, (Women, (other than UN) social media youth) platform Municipal Religious Government leaders of UPI Commercial Community media media Other representatives private Media Other international associations Other Ministries Media of executive regulatory authorities

INFORMATION ECOSYSTEM ASSESSMENT 46 BARMM PHILIPPINES VI. HUMANITARIAN RESPONSE AND INFORMATION

Local non-government organizations and community-based civil 6.2 HUMANITARIAN to respond to the pandemic. For example, society organizations have UN agencies have on-going support for the ACTORS ACTIVE ON Bangsamoro Transition Authority and the COVID RESPONSE limited participation in RCCE Marawi Rehabilitation, and now cover the umanitarian and development groups and humanitarian COVID-19 response and its foreseen so- organizations have an establi- cio-economic impact to the region . USAID shed presence in the Philip- coordination. also used their on-going Marawi Response pines, one of the world’s most Project to provide additional aid to address Hdisaster-prone countries. There are more COVID-19. Maps were also created by the than 50 UN and non-government organi- The government has had long established International Alert Philippines, which has zations that are part of the COVID-19 hu- partnerships with various humanitarian been used to identify emerging clusters of manitarian response, which include IOM, and civil society organizations in BAR- cases in the area. UNICEF’s U-Report, an OCHA, UNDP, UNHCR, WHO, Save the MM. According to the latest COVID-19 online platform intended for youths, has Children, Action Against Hunger, Oxfam, Response Snapshot, there are 35 huma- been used to disseminate information on Philippine Disaster Resilience Foundation nitarian organizations implementing CO- COVID-19 as well. The role of humanita- (PDRF), and the Philippine Red Cross . VID-19 response in BARMM , 26 of which rian actors has been crucial in BARMM but Humanitarian networks are also present, are implementing risk communications interviews have shown that at the muni- such as the Philippine International NGO and community engagement initiatives. cipal level, the support provided are often Network (PINGON) and the Disaster Risk Assistance from humanitarian organiza- short-lived and mainly involve distribution Reduction Network Philippines. tions were mainstreamed and extended of goods and services.

INFORMATION ECOSYSTEM ASSESSMENT 47 BARMM PHILIPPINES VI. HUMANITARIAN RESPONSE AND INFORMATION

The UN-led Philippines Humanita- coordination. rian Country Team (HCT) and sub-natio- These humanitarian actors also work nal coordination forums ensure that directly with local governments and im- humanitarian action by its members is plement projects through local organiza- well coordinated, principled, timely, ef- tions. Interviews have shown that mayors fective, and efficient. For the COVID-19 and community leaders are consulted response, the Philippines HCT supports and coordinates with the National IATF. and involved in all activities, including Lead agencies have been identified to installation of COVID-19 IEC materials. lead response pillars and support go- Organizations like UNICEF have partne- vernment cluster leads. red with the BARMM Bureau of Public In- formation and Ministry of Health to sup- The Mindanao Humanitarian Team port localization of key messages . (MHT) leads coordination in Min- danao for the COVID-19 response, Local government coordination is done as well as response programs for through IATFs and existing multi-secto- recent armed conflict, Typhoon Vongfong, and earthquakes in ral coordination mechanisms such as the North Cotabato and Technical Working Group on Preventing Davao del Sur. For Violent Extremism and Municipal Peace the Marawi Res- and Order Councils. To coordinate with ponse in Lanao the media, they have created Facebook Del Sur, UNDP, chat groups and organized regular mee- UN-Habitat, and tings with the press through the «Kapi- UNHCR lead the han sa Bangsamoro» initiative. l

INFORMATION ECOSYSTEM ASSESSMENT 48 BARMM PHILIPPINES VI. HUMANITARIAN RESPONSE AND INFORMATION

6.3 RISK on Community Engagement which community engagement have yet to be coordinates feedback mechanisms as met . However, local non-government COMMUNICATION well as RICAA and CORA reports from organizations and community-based AND COMMUNITY humanitarian partners. WHO supports civil society organizations have limited ENGAGEMENT the Risk Communication and Community participation in RCCE groups and he government and humanitarian Engagement Group of the government, humanitarian coordination. Our network sector have poured their which is led by the Department of Health. assessment shows that there is little to no resources on risk communication. UNICEF, on the other hand, is in close interaction (score of 1-2 in Table 5) with civil Risk Communications and partnership with the BARMM Bureau of society and the media in the pandemic. As TCommunity Engagement (RCCE) is one Public Information, who is the lead of the a result, RCCE mapping does not reflect of the priority pillars of the Philippine BARMM IATF Strategic Communications numerous community-led initiatives. COVID-19 Humanitarian Response Plan Group. (HRP) that compliments the initiatives In the latest RCCE report, the top two of the national government. The pillar As of September 2020, 30 million information needs are: (1) clarifications aims to provide two-way communication people have been reached by 8,190 on information about COVID-19 released platforms, improve the quality of RCCE initiatives as implemented by by WHO and/or DOH and (2) support community engagement and establish humanitarian organizations, 9% of or aid from the government and other common messages. which were conducted in BARMM . As organizations . There is also a need activities were focused on sharing general to clarify the guidelines of physical WHO and UNICEF are the lead of the information and support on COVID-19, distancing, travel restrictions, and RCCE Pillar of the HRP. OCHA also RCCE objectives on strengthening two- community quarantine for specific leads the Community of Practice way communication platforms and contexts. l

INFORMATION ECOSYSTEM ASSESSMENT 49 BARMM PHILIPPINES VI. HUMANITARIAN RESPONSE AND INFORMATION

6.4 RUMOR TRACKING and social media posts from the local There is no coordinated or centralized rumor government or trusted organization tracking or community feedback mecha- AND COMMUNITY pages. Humanitarian organizations also nism for the humanitarian and government FEEDBACK include awareness raising activities COVID-19 response. Information sharing is MECHANISMS during distribution of relief and hygiene heavily top-down while means to verify infor- umanitarian organizations have kits. Community consultations were mation that reach communities are lacking. their own community feedback however limited and targeted to avoid Our interviews indicate that concerns from mechanism integrated with survey fatigue. Existing data gathering the community are addressed on an ad-hoc, their programs and conduct tools, such as RICAA and CORA, were informal basis. If there are rumors or disinfor- Hsocial listening initiatives. However, these also maximized instead of creating new mation on COVID-19 online, the government are not mainstreamed and information tools. tries to respond via its official Facebook gathered are only for internal use of the page or during Facebook Live sessions. So- respective organizations. Interviews Communication has increased during metimes concerns are also addressed on showed that there were previous initiatives the pandemic as governments shifted the local government’s radio programs or to create common feedback platforms in to coordinate through Facebook chat COVID-19 hotlines. previous emergencies but these were not groups and Zoom meetings. These sustained. A network mapping survey communication channels had already Moreover, there is no means to verify also shows that interactions between existing before COVID-19 but were whether the right information has in- international organizations, the media, maximized as part of the response. Prior to deed reached the communities or if the and the community are scarce. the pandemic, information dissemination concerns continue to linger. On comple- and feedback sessions were only done by ting this feedback loop, one of our key Communication mechanisms are the government through annual barangay informants explained communities have primarily done either through printed assemblies and League of Barangay “survey fatigue” which dissuades sus- IEC materials distributed in barangays meetings, which occur twice a year. tained efforts to collect feedback. l

INFORMATION ECOSYSTEM ASSESSMENT 50 BARMM PHILIPPINES VI. HUMANITARIAN RESPONSE AND INFORMATION

6.5 IDENTIFIED GAPS constantly changing, exacerbating OCHA for example has relied on its information inequalities. Humanitarian network of partners for information from IN INFORMATION organizations have found it hard to the grassroots level. Some are leveraging NEEDS AND keep up with government’s protocols SMS, hotlines, or social media though PROGRAMMING to implement their programs and geographically isolated areas will be left out. Addressing varying information andling multiple crises establish two-way communication with in BARMM is not new to communities. Organizations usually needs has also been challenging: (1) humanitarian organizations, complement information gaps by doing there are multiple crises to address, (2) though the pandemic has face to face community sessions, but this needs are difficult to identify and keep H changing, (3) localizing messages is not made things more difficult. Information has been limited due to the travel and in the pandemic is fast-paced and gathering restrictions in the pandemic. easy.

Humanitarian organizations are also not well-equipped to manage the rumors in the pandemic. Core efforts have been to spread vital information such as mask wearing, distancing, and COVID-19 symptoms especially to vulnerable communities. However, these same communities are often the ones plagued by potentially dangerous misinformation. Many of them recognize the need to reach out to local influencers such as religious and traditional leaders, but engagement has been challenging. They have tapped local influencers in past initiatives for education and peacebuilding but they have always been a “tough crowd to preach to.” l

INFORMATION ECOSYSTEM ASSESSMENT 51 BARMM PHILIPPINES VII. KEY FINDINGS AND RECOMMENDATIONS – Towards a healthier information ecosystem

7.1 KEY FINDINGS ON interviews 82% said that they normally or health protocols such as mask wearing always get the information in their prefer- and distancing across stakeholders have THE INFORMATION red language. trickled thoroughly in the community. n The Department of Information and LANDSCAPE AND n The communities trust the majority of Communications Technology has an on- COMMUNITIES’ INFOR- stakeholder, including the media, public going engagement with private-sector authorities, and humanitarian organiza- MATION PRACTICES partners in strengthening connectivity in the region. tions involved in the COVID-19 response. n Foundations to build upon for a healthier n Social media has given the government There is a culture of dialogue and dis- information ecosystem and media outlets a faster channel to cussion on important issues within com- n Information flows in local language is share information to communities. munity that can serve as a platform to a strong driver. In our focus groups and n Consistent information campaigns on share critical COVID-19 information.

INFORMATION ECOSYSTEM ASSESSMENT 52 BARMM PHILIPPINES VII. KEY FINDINGS AND RECOMMENDATIONS

Main challenges across the infor- Opportunities and potential for informa- and broad trust in stakeholders, that can be mation ecosystem tion ecosystem health improvement researched further for future projects. n In geographically isolated communities, n Capacity-building activities are initiated n The island provinces in BARMM (Basilan, there are limited sources of information by local associations like the Marawi Sulu, and Tawi-Tawi) deserve separate as- and the audience rely mostly on informa- Broadcasters Association. sessments in terms of the media landscape tion from the military, their barangay offi- n There is cross-sector engagement and gathering community feedback. cials, or their friends and family. between local media and other sectors n Most journalists lack the training and of society, including civil society and reli- Risks to mitigate and negative trends on-ground support to report on CO- gious groups (Ulamas, Bishops, etc.). to take into account in ecosystem stren- VID-19 thoroughly and in a way that is n Military provides quick on-the-ground gthening efforts relevant (i.e. localizing technical informa- information, but accuracy is not always n During the pandemic, there have been tion). dependable. many closures of different media outlets n While the LGUs and relevant offices n Members of the youth and the health- which further reduce verified sources are focused on sharing health protocols care sector have the ability and the will to and increase exposure to rumors and and data on cases, the public’s concerns research and inform their social circles of misinformation regarding COVID-19. on timing and sources of livelihood are critical information. n There is widespread misinformation es- not being acknowledged and directly n The Bangsamoro Transition is underway pecially on the seriousness of COVID-19 addressed. and should strengthen the government’s in both rural and urban areas. This further n Media Information literacy is poor in the capacity to respond to the pandemic. dampens the authorities’ ability to control communities, on top of the limited access to n There are bright spots in the information the pandemic and eventually re-open the information that they are already facing. ecosystem, such as community influencers region. l

INFORMATION ECOSYSTEM ASSESSMENT 53 BARMM PHILIPPINES VII. KEY FINDINGS AND RECOMMENDATIONS

7.2 KEY FINDINGS ON Challenges Opportunities and potential for stronger n There is a lack of common service plat- information flows and linkages

HUMANITARIAN form for feedback and no collaboration in n Use of multiple media platforms to share RESPONSE AND data sharing. Most data being collected information INFORMATION are only exclusive to each of the organi- n Growing interest to participate in RCCE zations. There is no collaboration or data in BARMM, and local government and Foundations to build upon sharing mechanisms in place. community-level n Youth sector who are organized, em- n Humanitarian organizations are already n The lack of RCCE priority at the local powered, well-informed, and very active on the ground before the COVID-19 pan- and regional level results in poor alloca- in sharing information demic, due to Marawi Rehabilitation, IDP tion of resources. n General population that accepts the im- Camp Management, and other initiatives. n Communication and coordination have plementation of safety standards as part n Ulama councils have been tapped to migrated online, thus resulting in the ex- of the new normal share information on COVID-19. clusion of local actors who have challen- n ges in accessing platforms and tools due There is a strong interagency collabo- Risks to mitigate and negative trends to ration through the IATF, MHT, and other to poor connectivity. take into account n coordination mechanisms. RCCE initiatives are not innovative and n Recurring displacements and insecurity n Humanitarian organizations have strong responsive to local needs: COVID-19 in- in BARMM that make it difficult to sus- partnership with the government, parti- formation is not localized, both in lan- tain community initiatives and increase cipate in IATFs, and influence with local guage and contents, and lacking genuine health risks decision-makers. community engagement. n Alarming circulation of rumors surroun- n Groups that were formed during the n There is leadership limitations, as BAR- ding efforts to combat COVID-19, inclu- Marawi Siege and BBL are also being uti- MM is a transitional government and ding discrediting the virus and motives to lized for the COVID-19 response, as they agencies and policies are still being for- fight the virus, even questioning its rea- are trusted and have a strong reach. med. lity. l

INFORMATION ECOSYSTEM ASSESSMENT 54 BARMM PHILIPPINES VII. KEY FINDINGS AND RECOMMENDATIONS

7.3 SUMMARY OF RECOMMENDATIONS Immediate Recommendations for COVID-19 Response There is a need for regional and local governments and humanitarian orga- nizations to expand COVID-19 com- munication strategies to address in- formation needs and issues in BARMM particular context. While the current li- near, top-down, and purely public health approach implemented thus far has suc- ceeded in informing the public on mini- mum health protocols, the public remains under-educated and exposed to the risks of misinformation. We suggest the fol- lowing: n Topics – In addition to public health up- dates and guidelines, cover information needs on livelihood, aid, and education as they are not being addressed in com- munities. n Channels – Directly engage commu- nities via local governmental units and local Public Information Officers on suc- ceeding COVID-19 initiatives, particularly on government aid and vaccination

INFORMATION ECOSYSTEM ASSESSMENT 55 BARMM PHILIPPINES VII. KEY FINDINGS AND RECOMMENDATIONS

efforts. This is because a purely me- communities. These mechanisms should be n Local organizations and established dia-based effort is not enough to pene- compatible with various humanitarian initia- humanitarian organizations – Local trate the communities. tives but designed to be inclusive to local ac- organization should be included in coor- n Context – Supplement information from tors and other sectors, such as CSOs. dination meetings while ensuring that the national and regional government and those from marginalized/GIDA areas Department of Health with credible com- Coordination (BASULTA) are represented. RCCE ini- munity-centered messages. For example, and Collaboration tiatives should always be in partnership Islamic principles can be used to explain the To improve the COVID-19 response, par- community-based organizations, in ad- importance of quarantine or sharing sto- ticularly the flow of information, there is dition to local government units, to pro- ries COVID-19 recovery from community mote a community-driven approach. members to address stigma. a need to strengthen coordination and collaboration between these particular n Other linkages that need to be stren- n Content – Explore layman ways of gthened include: verbally explaining technical aspects of stakeholders: - Connections between community, na- COVID-19 such as transmission, testing, n Community media and government tional, and international media to com- symptoms, and vaccination to communi- offices such as IATF and MOH – Journa- pare experiences and to enable localiza- ties. This includes translating COVID-19 lists were often limited to press briefings terms to local dialects. and public releases. Many government tion of stories where relevant. - Long-term partnerships between BAR- n Community Engagement using Trus- offices are understaffed in terms of Infor- ted Sources – Complement COVID-19 mation Officers hence not able to link with MM journalists and local organizations messages from public officials and health the many community media outlets. One such as CSOs and Muslim Religious experts with support from traditional approach could be to strengthen groups Leaders (MRL) as voices for the com- and/or religious leaders at the commu- of journalists in BARMM (for example, the munity. nity-level. Marawi Broadcasters Association) to ad- - Institutionalizing local inter-agency n Community Feedback Mechanisms – vocate for press access and contextualize coordination mechanisms to sustain Introduce a common service platform for National and Regional responses to be functions outside the framework of the IATF feedback and understanding rumors in more locally relevant. and thus beyond facing COVID-19.

INFORMATION ECOSYSTEM ASSESSMENT 56 BARMM PHILIPPINES VII. KEY FINDINGS AND RECOMMENDATIONS

Capacity Building n Community-based Rumor Manage- existing community touchpoints (e.g. du- ring masjids facilitated by MRL or com- Over the long-term, the following efforts ment - Capacitate and empower MRLs, munity listening groups run by CSOs). will sustain a healthier information eco- CSOs, and traditional leaders to incorpo- n Media and Information Literacy (MIL) system in BARMM: rate rumor management practices in their programs, specifically modules on ethics and accountability intended for local journalists, digital information literacy for youth sectors, and civic participation for local community influencers. n Other opportunities for capacity buil- ding include: - Activities on managing misinformation and rumors as well as effective crisis communication for local journalists and LGUs - Developing capacities of youth orga- nizations, women, traditional and/or re- ligious leaders in risk communication in their current community touchpoints (e.g. during masjids facilitated by religious lea- ders or community listening groups run by CSOs). - Training on amplifying social media pre- sence to LGUs and government agen- cies to promote engagement of verified content. l

INFORMATION ECOSYSTEM ASSESSMENT 57 BARMM PHILIPPINES ACKNOWLEDGEMENTS AND CREDITS

Disconnected: Information Dynamics in Daryl Del Rosario (Internews, Research Monitoring, Evaluation, Research, and BARMM during the COVID-19 Pandemic Coordinator) is the research lead for Security Operations) oversaw the report was funded by a grant from USAID’s Rooted in Trust Philippines and the in its final stages through publication, Bureau for Humanitarian Assistance principal author of the report. Denvie including during feedback phases (BHA) to support the Internews’ Rooted Balidoy (Internews, Media Liaison with external stakeholders. Michelle in Trust Project. Officer) contributed to Section 1 with a Dyonisius proofread and helped finalize A big acknowledgement is due to our review of media literature and interviews the report. partner organizations, the Coalition of several journalists. Mikaela Alpay of Moro Youth Movements (CMYM) (Internews, Information Manager) and Ganaëlle Tilly created the graphic and Initiatives for Dialogue and Kia Obang (Internews, Humanitarian design and the sketches and formatted Empowerment through Alternative Data Analyst) led the collection and the report. Legal Services (IDEALs), without analysis of rumors in discussed in Photo Credits - All photographs by whom we would have been able to reach Section 2. Leanne Lagman (Internews, Internews and Rooted In Trust partners communities. They conducted all the Humanitarian Liaison Officer) wrote (CMYM and IDEALS) except photographs qualitative and quantitative fieldwork for Section 3 based on her work and on pages 26, 28, 40, 41 by Bangsamoro this report in the middle of the pandemic. interviews with various humanitarian Government. Cover Photo by Charlie Deep appreciation as well to Sorhaila organizations. Gian Libot (Rooted in Saceda. We thank the photographers Latiph (Mindanao State University, Trust Philippines Project Lead) led the and people featured in those images Professor) and Shidik Abantas (Mindanao baseline drafts of the report as well as for authorization to use these pictures State University, Chief Legal Counsel) provided research support throughout. in the report. Selected photographs were for their contributions as expert panelists Joaqin De La Concha (Internews, edited before inclusion. through the three drafts of this IEA. Many Global Monitoring, Evaluation, Research, thanks to Internews-ers Irene Scott, Greg and Learning Lead) designed the Disclaimer: Kehailia, Kathryn Raymundo, and Stijn visualizations and guided the writing The content of this report does not Aelbers for their helpful reviews and advice of this report for the first three drafts. necessarily reflect the views of Internews throughout the writing of this report. Pierrick Judeaux (Internews, Global or any of its funders.

INFORMATION ECOSYSTEM ASSESSMENT 58 BARMM PHILIPPINES ANNEXES

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INFORMATION ECOSYSTEM ASSESSMENT 60 BARMM PHILIPPINES ANNEXES

LIST OF KEY INFORMANTS

Institution Name (Position)

OCHA Gil Arevalo (CoPCE Cluster Lead) International OCHA Cotabato Gemma Assis (Information Management Focal) Organizations WHO Kei Bughaw (Risk Communications Consultant)

BARMM Bureau of Public Information Andrew Alonto (Director) Government Bangsamoro Transition Authority Zia Alonto (Minister) Authorities Provincial Government of Lanao del Sur Jennie Tamano (Information Office Head) Municipal Government of Upi Paulo Cagara (Planning & Development Coordinator)

Sbang Ka Marawi Radio Sorhaila Latiph (Anchor) Brigada News FM Richel Umel (Anchor) MindaNEWS Ferdinand Cabrera (Member) Media Sector National Journalists Union of the Kathryn Cortez (Board of Director for Mindanao) Philippines Charlie Saceda (Former Chief Officer) Peace and Conflict Journalism Network Nash Maulana (Correspondent) The Mindanao Cross

Girl Defenders Movement Anna Boloto (Gender Advocate) CSO Global Marawi Youth Bin Nur Magancong (Youth Advocate) Maranao People Development Center Norhana Talib (Project Officer)

INFORMATION ECOSYSTEM ASSESSMENT 61 BARMM PHILIPPINES ANNEXES FIELDWORK OVERVIEW Information collection tools (survey and interview questionnaires) can be made available upon request a) Quantitative Research Mindanao Survey BARMM Survey Partners (CMYM and Conducted by GeoPoll IDEALs) Convenience Random Sampling Method Sampling Phone Survey Door-to-Door Maguindanao (Shariff Zamboanga Peninsula, Aguak), Lanao del Sur Northern Mindanao, (Bayang, Balindong, Areas CARAGA, Davao, Lanao del Sur, Soccskargen - see Marantao) – see map map below below Sample Size 278 167

Gender Split 60% Female 59% Female Age Split See graph below See graph below

19% MINDANAO 22% BARMM n Above 35 48% n Above 35 46% n Below 24 n Below 24 29% 35% n 25 to 34 n 25 to 34

INFORMATION ECOSYSTEM ASSESSMENT 62 BARMM PHILIPPINES ANNEXES

b) Quantitative Research

AREA PROVINCE Urban Rural Lanao del Norte Lanao del Sur Maguindanao Focus Group 30 (73%) 11 (27%) 5 (11%) 31 (78%) 5 (11%) Discussions Individual 16 (50%) 16 (50%) 4 (13%) 19 (59%) 9 (28%) Interviews

ETHNIC GROUP GENDER Maguindanao Maranao Iliganon Male Female Focus Group 5 (12%) 31 (76%) 5 (12%) 17 (43%) 24 (57%) Discussions Individual 9 (28%) 19 (59%) 4 (13%) 13 (41%) 19 (59%) Interviews

INFORMATION ECOSYSTEM ASSESSMENT 63 BARMM PHILIPPINES ANNEXES

c) Summary of Rumor Collection Mecha- Of the collected rumors, the dominant the- “People do not want to get rapid test or swab nism (as of November 14 2020) mes of the rumors were people’s mistrust test as they develop a perception that getting Internews’ Rumor Management Methodo- of the government and healthcare system checked for COVID-19 tells that a person is logy focuses on tracking rumors on local along with stigma on testing that may lead positive for COVID-19.” (Feedback from peer- people in the Bangsamoro Region to deny to-peer sharing via word of mouth in Maguin- communities in BARMM. The selection is the reality of the pandemic. Of the 135, 61 ru- danao) based on a risk assessment matrix that ac- mors were criticisms or complaints, 31% of “In Manila, their local government has let their counts for the frequency of the scenario or which 31% were directed at the government. people to go back to normal… surprisingly, our social media engagements and its potential There were common perceptions that the province Lanao del Sur is still getting stricter be- impact on the community. This analysis is implementation of stricter measures in La- cause they still believe in COVID-19, even if the based on 135 rumors collected online and nao del Sur was selective and not fair. Other pandemic is now over.” - Male, 26-35 years old offline between September 4 to November rumors related on issues such as the relia- “Only those who are connected to local offi- 14, conducted in Tagalog, Maranao, Maguin- bility of COVID-19 testing and allegations of cials are hired as contact tracers. It is so un- danao and Cebuano. corruption on hiring contact tracers. fair. I was informed it was an order from the mayor. Why is it people who don’t have any Rumors by theme (sept. 4 to Nov. 14 n Low Risk n Low Risk connections can be easily removed from the list of candidates, despite being eligible and Presentative going through the right process?” – Female, Symptoms 26-35 years old Food Organisation (UN/NGO/CSO) Local posts on social media blamed the go- Travel vernment, expressing negative sentiment Cause/Origin towards various government responses Other against COVID-19. 67% percent of the ru- Testing mors were low risk, comprised largely of Transmission commentary on government as well as Treatment/Cure rumors about treatments and “cures” for Healthcare COVID-19 ranging from home remedies to Hoax traditional medicines with low frequency of COVID-19 Impacts online engagements. No high-risk rumors Pejudice/Stigma were identified in the September to No- Government vember 14 period.

INFORMATION ECOSYSTEM ASSESSMENT 64 BARMM PHILIPPINES ANNEXES

BY AGE BY SEX 30%

25%

Unknown 8% 20%

15% Male 47% Female 10% 45% 5%

0% 26-35 Unknow 19-25 36-45 46-60 15-18

Among those who shared the ru- Community conversations revealed their livelihood and education. This is in mors, 47% were male, 41% were that most in BARMM are still ques- hopes of helping them accept and un- female, and 13% were unidenti- tioning the reality of COVID-19. There derstand this so-called “new normal”. fied. Meanwhile, 28% who shared ru- are also increasing concerns on tes- Communities and information providers mors belong to the 26-35 age group, ting, treatment, and on vaccine effective- acknowledge the widespread and poten- followed by 19-25 years old (20%), and ness. Even though the end of the pan- tial harms of misinformation. Over 70% 36-45 years old (20%). 81% of the ru- demic is still far from sight, community feel concerned or scared about rumors mors were collected from social me- members would like to hear more about circulating in their communities. Howe- dia, the majority of which on Facebook the government recovery plan to shed ver, communities must recognize and be and 19% from community listening or light on the duration of quarantine mea- empowered to recognize and act on ru- peer-to-peer feedback. sures, and how people can continue with mors and misinformation.

INFORMATION ECOSYSTEM ASSESSMENT 65 BARMM PHILIPPINES ANNEXES

n Humanitarian Maps

INFORMATION ECOSYSTEM ASSESSMENT 66 BARMM PHILIPPINES ROOTED IN TRUST DISCONNECTED: Information Dynamics in BARMM during the COVID-19 Pandemic AN INFORMATION ECOSYSTEM ASSESSMENT BY INTERNEWS PHILIPPINES - FEBRUARY, 2021