5 you wanttogoandhowcangetthere. your visionandreflectswhereyouare, This isusuallyalong-termplanthatembodies An OverallChangeStrategy of: Advocacy planningisaboutthedevelopment What IsAdvocacyPlanning? • • isnecessarybecausewe: • • • • • • • • operateinchangingandsometimesunpre- havealimitedtimeframeinwhichwewant need to have a clearly articulated common needtohave articulated a clearly wanttobeincreasinglyaccountableour havelimitedresources; mustachievesomeconcreteresultsas American Women’sNGOs. participation projectcoordinated EquidaddeGenero byAgende(Brazil), (Mexico), FloraTristan (Peru) andotherLatin Barrig, Maruja,“PlanificacionEstrategica” in long-term results. term resultsthatarestepsonthewaytolargerchange maybemorepracticalthantryingtomeasure why it’simportanttofindcreativewaysmeasure theseprocesses.Barrigsaysthatmeasuringshorter- not have clearmodelsintherealworld.Thismakes themmore difficult toenvision andquantify. That’s pressed todescribewhattheylooklike.Advocacystrategies oftentryto“operationalizevalues”thatdo like empowermentaredifficulttomeasurebecause realexamplesarescarce,thereforewehard providing healthservices.Indevelopmentprojects, thegoalsaremeasurable.Butpoliticalchange political changeisverydifferentthanplanningfordevelopment projectssuchasbuildingwellsor Maruja Barrig,astrategicplanningexpertfromLatin America,pointsoutthatplanningforsocialand dictable environments; well asasystematicprocess; constituents andpartners; to accomplish certain objectives; to accomplishcertain aim tominimizeconflictsanddifferences. Citizen-Centered Advocacy The BasicsofPlanningfor The Action Guide for Advocacy and Citizen Participation Citizen and Advocacy for Guide Action The Mujeres Al Timon Al Mujeres Immeasurable Goals , abookproducedaspartof women’sadvocacyandpolitical are oftenreferredtoasstrategieswell. power inrelationtoyour issue. These activities paign andcapturetheattentionofpeoplein research andmediaworktoshapethecam- moment andopportunity. They couldinclude larger changestrategy, designedfor aspecific activitieswithina These areusuallyshort-term Tactics, Actions, orActivities objectives. to achievesomeofyouradvocacystrategy and public opinion. The activitiesareintended aimed atinfluencingthepolicyenvironment This isamedium-termplanwithactivities A Campaign further advocacy goalsbyfurther puttingintopractice impact. approachestoplanning Participatory just asetoftoolsandstepsforimproving However, planningfor advocacy ismorethan activities asnecessary. can changeyour strategy, campaign,and This involvesmonitoringyourimpactsoyou Impact Assessment 99

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more equitable power relations and more sources for addressing a problem. However, inclusive citizenship. for since advocacy involves maneuvering in a citizen-centered advocacy: complex political system where power dynam- • Builds organization and networks. Partici- ics generate conflict, planning for advocacy patory analysis and decisionmaking help differs from traditional strategic planning tools strengthen leadership and communication in key ways. within and among organizations. Unlike many approaches to strategic planning • Promotes political education. It involves where goals, objectives, activities, and evalua- new knowledge about power and politics tion are presented as a seamless and logical and experiences that develop citizenship. pattern, advocacy planning acknowledges that • Strengthens planning for negotiation. The there are hidden agendas, different values and process delineates a clear map of interests ideologies, incomplete information, and conflict. and levels of power among the key actors. Further, planning and doing advocacy happen • Builds constituencies. When we involve side by side. After every action it is often many stakeholders—and particularly the necessary to adjust goals in planning our next people most affected by the advocacy step. So assessment is a continual task in issue—more people will be informed and advocacy, rather than a step at the end of the motivated, and the campaign will have planning sequence. Strategic planning for more legitimacy and clout. advocacy is always a work in progress.

Advocacy planning is a continual process. If Citizen-centered planning includes a variety of some groups have not been involved in the other features: initial stages of planning, they can be included • It is not seen as value-neutral. Values and later when plans are being reviewed and commitment are just as important as ‘facts.’ modified. • It is not a linear set of steps with predict- able outcomes. It is an iterative process of How Advocacy Planning Differs examination and adjustment. from Other Types of Planning • It gives direction to action, yet is also geared to responding to unforeseen oppor- The temptation to follow donor trends and be tunities. project-oriented has made many organizations • It should, if possible, involve the people reactive rather than proactive. Advocacy most affected by a particular problem in planning, on the other hand, needs to be planning and action—from setting the strategic. Being strategic means making agenda to leading the campaign. careful choices about how to use and leverage scarce resources. It is about achieving both • It draws upon and strengthens the analy- our short-term aims (such as educating citi- sis, awareness, and organizational clout of zens about their legal rights) and our long-term marginalized sectors. vision for social change (for example, respect • It involves conflicts and negotiation. for human rights and more consultative public • It places equal value on expertise and decisionmaking). Being strategic demands a experience and seeks to integrate knowl- careful analysis of external opportunities and edge from different disciplines into a holistic constraints and internal organizational re- strategy.

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Key Steps or ‘Moments’ of about the context and will then go back to Advocacy Planning refine your analysis. Because of this, we call the planning phases “moments” rather than Many approaches to planning call the phases steps. of planning “steps,” and present them sequen- tially. However, advocacy planning involves a Though they are not linear, there is a certain lot of “two steps forward, one step backward.” sequence to the moments of planning. For For example, you may begin with a macro- example, it helps to begin by looking inward analysis of the context in which you are oper- (organizational self-assessment) and then ating, but as you learn more about your issues move to looking outward (contextual analysis). and policymaking, you will also learn more DVOCACY A LANNING P

The iterative process of advocacy planning

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With participatory planning, it is not just the economic and social changes the advocacy continual analysis that makes the process efforts seek to accomplish. These goals estab- spiral rather than linear. It is also the fact that lish the basis for setting maximum and mini- planning involves different people with different mum positions for negotiations with and sometimes conflicting interests. decisionmakers. The short-term goals describe the desired outcomes for the specific advo- The following moments are covered in Parts cacy solution. (Chapter 10) Two and Three of this Guide: Power Mapping Personal and Organizational Assessment This moment of analysis helps planners iden- We start with a self-analysis by the organizers tify the targets, allies, opponents, and constitu- and advocates. We then move to organiza- ents for their advocacy. It examines stake- tional assessment by looking at its vision, holder interests, positions, and conflicts. It mission and strategies, and developing a long- reveals hidden mechanisms of power that term political vision to guide advocacy plan- affect marginalized groups’ participation as ning. (Chapter 6) well as important allies within decisionmaking structures. Power mapping is essential for Contextual Analysis planning, negotiating, and calculating risks. This involves understanding the political (Chapters 10 and 12) context at the local, country, regional, and global levels. It includes discussion of visible Policy and Situational Research and invisible power dynamics that marginalize This moment involves gathering information some groups from the political process. (Chap- about the policies, laws, programs, and bud- ter 7) gets shaping your issue, and about its causes and the people it affects. This information will Problem Identification and Analysis make your advocacy clearer and provide In this planning moment, groups define and material for your media, outreach, lobbying, prioritize their problems for potential advocacy. and negotiations. (Chapters 8 and 11) It involves important decisions for citizens and is key for building the constituency. (Chapters Advocacy Objectives 8 and 9) With the power maps and policy information, you can draft a set of advocacy objectives. Choosing and Framing the Advocacy These will spell out the desired changes in Issue policy and decisionmaking structures, as well The analysis of problems and exploration of as how you will use political space, and possible solutions helps groups to slice a big strengthen citizen engagement. Finally, they problem into manageable advocacy issues. indicate how the advocacy will ultimately Framing the issue is about describing your improve people’s lives. These objectives are cause in order to have wider public appeal. continuously refined. (Chapters 10 and 11) (Chapters 9 and 13) Activities, Actions, Tactics, and Long-term and Short-term Advocacy Implementation Goals Advocacy objectives help you define action The long-term goals specify the political, strategies. The nature of the political environ-

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Tips for Effective Advocacy Planning

Use Simple Tools Analytical frameworks and role play exercises presented in the Guide enable groups of people to think creatively and systematically about complex issues. (See especially What’s Your Political Vision? (pg. #), the SWOT Analysis (pg. #), the Power Map (pg. #), the Force-Field (pg. #) and Triangular Analysis (pg. #)

Clarify Jargon Terms such as gender equity, democracy, empowerment, women’s rights, and mobilization are complex ideas that different people understand in different ways. It helps to discuss them in detail to identify differences and similarities in interpretation before beginning to plan. Defining key concepts enables people to interpret and give their own meaning to citizenship and politics. Part One offers suggestions about how to do this.

Involve Facilitators You may want to have a facilitator assist the planning process within your organization or coalition. An external and skilled person is often helpful when planning brings together different organizations with different interests and contributions.

Keep It Dynamic Good planning is made of equal parts of information, excitement, commitment, and participation. Find ways to involve everyone in different tasks.

Bring Values and Assumptions to the Surface DVOCACY Differences, power imbalances and hidden stereotypes cause misunderstanding and conflict that will A slow down planning and action. Begin your planning with the introductory exercises from Chapter 6 or the Annex. Deal with these matters openly when they arise. Also see discussion of conflict management LANNING

in Chapter 16. P ment, opponents and targets will inform your tive advocacy. When we focus on building media, outreach, lobbying and negotiation citizenship, two reasons stand out. First, tactics. (Chapters 10 and 11 and Part Three) planning is learning and decisionmaking. Many initiatives that claim to be participatory actually Measuring Progress and Adjusting Action consult people, but the real decisions about Ongoing evaluation helps to ensure that advo- plans and directions are made elsewhere. cacy responds to political opportunities and Being involved in making decisions is key to follows organizational priorities. Evaluation empowerment and creates ownership, motiva- allows groups to adjust their actions to chang- tion, trust, and impact. Participation by staff, ing situations. board, and constituents in all aspects of plan- ning helps to: • The Importance of Participation generate commitment; • in Advocacy Planning create shared ideals and directions; • speed up action (but may slow progress How planning is done is just as important as initially); how well a plan is defined. There are many • surface and cope with conflicts and differ- reasons why participation is critical for effec- ences;

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• assess political risks; advocacy planning begins to give shape and • improve organizational accountability; and meaning to this right for citizens. • increase self-confidence and critical The kind of participation may differ at different consciousness. stages in the planning process. In the early stages of choosing issues and defining solu- Secondly, participation in advocacy planning tions, constituents, and allies can be fully provides new citizenship experiences and involved. As you move into the fast-moving skills in such areas as: policy arena, the pressure for quick responses • analyzing problems, power, and context; to opportunities may make full participation • setting objectives; more difficult. • locating resource; • preparing budgets; Participation is empowering only when those who participate make decisions and choices. • leading meetings; • organizing campaigns; • identifying and negotiating diverse inter- Making Participation Work ests; There is general agreement that active partici- • collective problem-solving; pation by intended beneficiaries—such as poor • speaking in public; and people, women, and workers—in planning is • evaluating accomplishments. necessary for lasting success both in terms of empowerment and social change. Everyone Citizen-centered advocacy is based on the from water-user groups and women’s rights premise that participation in public activists to the World Bank is calling for more decisionmaking is a right. Participation in participation. Participation is a buzzword that

104 The Action Guide for Advocacy and Citizen Participation The Basics of Planning for Citizen-Centered Advocacy 5 has many meanings depending on who is • members and affiliates using the term. The typology on the following • constituencies, including excluded groups page explains how the word ‘participation’ is that will benefit from advocacy used to describe very different processes with • partner organizations involved in the very different results with regard to power, advocacy effort or related issues empowerment, and learning. • individual and organizational allies Although there are no perfect models, some people see ideal participation as one where Value Diverse Perspectives everyone participates equally. But people’s Ideally everyone should have a voice in decid- contributions are not equal—people participate ing the broad direction of the organization and in different ways and make different kinds of strategy. The selection of the issue and more contributions. In order to enable different specific aspects of planning may require a perspectives to be heard, it is essential to smaller group who can represent the concerns acknowledge how differences can translate of others at some stages in the planning into unequal power dynamics, and then adjust process. Differences also bring debate and the dynamics to facilitate more equal communi- disagreement into the planning process. See cation and decisionmaking. Chapters 8, 15, 16, and the Annex for tips on conflict, prioritizing, and consensus-building. Here are some points to consider in making participation work: Involve Constituents DVOCACY It is particularly important for constituents— A Look At Who’s Involved those most affected by the problem—to be Participatory planning will involve the following involved in choosing and analyzing the issue, exploring strategies, leading meetings, speak- LANNING people in different moments: P • staff and volunteers, directors, and board ing in public, organizing events, and other roles (see Chapters 8 and 14).

Engagement and Participation

“Engagement in social and community participation has inevitably brought citizens in closer contact with the Citizen Participation institutions and processes of governance. or Citizenship Conversely, leaders of projects, programs and policy research initiatives have increasingly sought the voices and versions of poor people Social themselves. Where citizens have been able to Political Participation Participation take up and use the spaces that participatory processes can open up, they have been able to use their agency to demand accountability, transparency, and responsiveness from government institutions. . . . These moves offer new Participatory spaces in which the concept of participation can be Methods expanded to one of ‘citizenship participation’, linking participation in the political, community and social spheres.”

Cornwall, Andrea and John Gaventa “Bridging the gap: citizenship, partnership and accountability” in PLA Notes: Deliberative democracy and citizen empowerment. International Institute for Environment and Development, February 2001.

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Different Types of Participation1

TYPOLOGY CHARACTERISTICS OF EACH TYPE

Token Participation or People sit on official committees, but they are not elected and have no real power. Manipulation

People participate as recipients of information. They are told what has been decided Passive Participation or what has already happened. The administration or project management passes on this information, but does not listen to people's responses.

People participate by being consulted or by answering questions. External agents Participation by define problems and information gathering processes, and control the analysis. The Consultation professionals are under no obligation to include people's views.

People participate by contributing resources, for example labor, in return for food, Participation for cash or other material incentives. People provide these resources, but are not Material Incentives involved in decisions as to what is done. They have no stake in carrying on with things when the incentives end.

People participate at the request of external agencies to meet predetermined Functional Participation objectives. There may be some shared decision-making, but this usually happens only after the big decisions have already been made by external agents.

People participate in joint analysis and development of action plans. Participation is seen as a right, not just the means to achieve project goals. The process involves Interactive Participation methodologies that seek all the different perspectives and use structured learning processes. Because groups are involved in decision-making, they have a stake in maintaining the project. Local institutions are strengthened.

People participate by initiating actions independently of external institutions. They develop contacts with external institutions for the resources and technical advice they Self Mobilization need, but control how the resources are used. The mobilization may or may not challenge existing distribution of wealth and power. Government and NGOs sometimes provide support for self mobilization.

1 This was initially designed to assess participation in development projects, but has been adapted and revised for different purposes. See Biggs (1989), Hart (1992), Pretty (1995), and Cornwall (1995).

Build Trust Listening is as important as speaking, and Trust emerges through open communication often, encouragement to speak involves and respect for different talents and perspec- waiting in silence for a voice. tives. Some groups outline participants’ re- sponsibilities in a pact or agreement. In this Work in Small Groups pact, constituencies mandate leaders to act on Wherever possible, work in small groups their behalf during fast-paced moments of where each individual can speak more easily. advocacy when full consultation is impossible. Be conscious that gender, age, and other factors may make it difficult for some people to Use Interactive Dialogue voice their opinions. Follow up with larger Often the most constructive learning and meetings to pull together the contributions of planning will use a series of open questions or the small groups. a simple framework for structured discussion.

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Use Participatory Needs Assessments cates may have theoretical and factual knowl- edge, but they will not usually have the per- Participatory community needs assessment spective or understanding of local problems and surveys enable grassroots groups to be that community people have. Sometimes involved in assessing their situation and experts are stuck in boxes (a single discipline) choosing the issues and solutions to the that do not provide coherent explanations or problems that affect them. Because they live analysis. When different groups work together with the issues, they have important insights in advocacy, they need to respect each other’s about why a problem exists and what would perspectives, interests, and contributions, and solve it. They also have the anger and motiva- find ways to make decisions together that tion to push hard for change (See chapter 8). integrate their knowledge. Integrate Experience and Expertise Schedule Time for Planning As Part of the Generating decent solutions requires a combi- Strategy nation of practical know-how and theoretical Allocate adequate time for participation and expertise where both kinds of knowledge are include planning as a regular activity in your valued and examined. Marginalized communi- advocacy timeline. Use these planning mo- ties have the knowledge of firsthand experi- ments for education, consciousness-raising, ence, yet they often need more information to and building organization. make good choices and formulate arguments. On the other hand, college-educated advo- DVOCACY

Balancing Perspectives A

Different individuals and organizations play different roles and have different responsibilities in advocacy.

Some are grassroots organizers, others are lobbyists or policy researchers while some play still different LANNING roles. Each of these perspectives makes a vital contribution to advocacy; however, there is often a P tendency to value some more than others. It is critical that advocacy leaders not allow these differences to evolve into a hierarchy in which one role is considered more important than another. For example, many advocacy campaigns have failed when the lobbyists and others close to decisionmaking begin to dominate the planning agenda.

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Levels of Advocacy Planning: Local to Global Global and National Many of today’s advocacy strategies require planning and action on more than one level of policymaking. For planning on a global level, for example, face-to-face discussion and decisionmaking are more difficult. While information technology has made global and easier, National and Local it has also reinforced inequalities. The further an advocacy planning process extends be- yond the local level, the more it is necessary to have multilayered systems of consultation, communication and feedback. Local Local Global Participatory planning is sometimes easiest at Like regional planning, global processes need the community, neighborhood, or level to coordinate and provide information and where face-to-face interaction is not compli- feedback to the different players so that the cated by distance. final planning decisions include input from all levels. This input is crucial since some part- National ners will be taking on greater risks than others. Often, planning for national level advocacy Their opinions need to be included to avoid involves coordination of different organizations unnecessary danger. Internet access is usu- that serve as intermediaries for a variety of ally crucial for this level of work. community-based and local groups. National advocates rely on their allies to be in touch Multilevel participation in planning and carrying with local groups and involve them in analysis, out global advocacy helps to: planning, and decisionmaking. National advo- • build new forms of citizenship that in- cates need to remember that participatory crease the voice of excluded groups; planning takes time and should be careful to • give legitimacy to people’s voices in the take this into consideration in their timelines. eyes of global policymakers; • Regional create a network to monitor and enforce- ment so that global policy promises be- Regional planning efforts entail communication come real at the national and local levels. among the participants at different levels. Again, timelines need to accommodate discus- sion and decisions across borders. The Internet is often useful for regional advocacy planning. However, regional organizers need to make sure that groups without Internet access are fully informed and can offer input.

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