COMMUNICATION GOOD PRACTICE NOTE 10 Designing Communication Campaigns for Energy Subsidy Reform Heather Worley Sara Bryan Pasquier Ezgi Canpolat i GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM CONTENTS Acknowledgments iv About the Authors v Acronyms and Abbreviations vi Introduction 1 1. Purpose 1 2. The Crucial Importance of Communication in a Successful Energy Subsidy Reform Program 2 3. Important Elements of a Successful Communication Campaign 3 I. Determine the objective, timeline, budget, and governance for the communication campaign 5 Objective.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 Timeline.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5 Governance. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6 II. Map key stakeholders and consider their level of interest and influence 6 III. Conduct opinion research to understand stakeholder views and perceptions 9 IV. Create compelling messages that address stakeholders’ commonly held views and build awareness of the scope of the subsidies and their influence on the economy 11 What makes a SUCCESsful message? (Adapted from Heath and Heath 2007). . . . . . . 11 V. Assign credible messengers and spokespeople 12 VI. Identify the best channels for communicating messages to different stakeholders and encouraging two-way dialogue 12 VII. Set measurable goals to track the communication campaign’s effectiveness 13 Example of Engaging Citizens and Raising Public Awareness to Support Energy Subsidy Reform: Natural Gas Pricing Reform in Ukraine. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15 Engaging Citizens to Assess Needs and Attitudes Distilling the Message and Retargeting Communication. . . . . . . . . . . . . . . . . . . . . . . . 15 Lessons Learned in Ukraine. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16 4. Conclusions 17 References 18 ii BOXES BOXES Box 1: Components of a Communication Campaign 3 TABLES Table 1: Mechanisms for Internal Consultation on Subsidy Reform 7 Table 2: Types of Research Methods to Ensure an Evidence-Based Communication Campaign 10 FIGURES Figure 1: How to Sequence a Successful Communication Campaign 4 Figure 2: Timeline for Internal and External Communication 5 Figure 3: Mapping Stakeholders by Level of Interest and Influence in Tariff Subsidy Reform in the Power Sector 8 iii GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM ACKNOWLEDGMENTS This is the tenth in the series of 10 good practice notes under the Energy Sector Reform Assessment Framework (ESRAF), an initiative of the Energy Sector Management Assistance Program (ESMAP) of the World Bank. ESRAF proposes a guide to analyzing energy subsidies, the impacts of subsidies and their reforms, and the political context for reform in developing countries. This paper was written through a collaborative process led by Heather Worley, Senior Strategy and Operations Officer, Energy and Extractives Global Practice, World Bank; Sara Bryan Pasquier, Senior Operations Consultant, Energy and Extractives Global Practice, World Bank; and Ezgi Canpolat, Anthropologist Consultant, World Bank. The authors’ experiences working closely with colleagues in a number of countries to raise citizens’ awareness and acceptance about the need for energy subsidy reform have informed this good practice note. During the preparation of this good practice note, the authors benefited particularly from collaboration with Paul Mitchell, Consultant; Jayakrishnan Nair and Manish Soni from PwC in India; Damon Vis-Dunbar, Tom Moerenhout, and Kieran Clarke from the Global Subsidies Initiative (GSI) in Switzerland; and Munqith Dagher, IIACSS. Other colleagues within the World Bank Group have also contributed insights, including Sophia Georgieva, Social Development Specialist. The Guidebook to Fuel Subsidy Reform for Policy Makers in Southeast Asia (GSI and IISD 2013), written by GSI and the International Institute for Sustainable Development (IISD), provides an important foundation for any discussion on communicating for energy subsidy reform, and this good practice note refers to that guidebook frequently. The 2014 World Bank paper titled Transitional Policies to Assist the Poor While Phasing Out Inefficient Fossil Fuel Subsidies was also essential to this work. Recent analysis on communication campaigns in India, led by the Energy and Extractives Global Practice and South Asia Region of the World Bank, titled Communication Research on Energy Efficiency in India: A Communication Needs Assessment and Stakeholder Mapping (Worley and others 2016), also informed this note. iv ABOUT THE AUTHORS ABOUT THE AUTHORS Heather Worley, Senior Strategy and Operations Officer at the World Bank, has 18 years of experience in international strategic communication and public awareness campaigns. Her work focuses on the intersection of energy and behavioral science. She has helped clients in Africa, East Asia, South Asia, and Eastern Europe design and implement effective public affairs strategies and behavior change campaigns on a range of energy and environment issues. She has worked with a number of governments and partners to help promote energy efficiency and build awareness of the need for fossil fuel subsidy reform. Sara Bryan Pasquier is an energy expert with more than 10 years of experience advising governments on energy policy. As a Senior Operations Consultant at the World Bank, Sara helps governments and energy companies design, implement and evaluate strategies to build citizen support for energy sector reform and to improve energy efficiency. Prior to joining the World Bank, Sara was a Program Manager at the International Energy Agency where she worked with emerging economies to strengthen their energy policies and strategies, including on the topics of energy efficiency and electricity security. Sara teaches courses on energy efficiency policy at Sciences-Po, Paris, and IFP Energies Nouvelles. Ezgi Canpolat is an anthropologist and gender and social development consultant with technical expertise on social inclusion, gender, citizen engagement, and social safeguards. Ezgi led the qualitative research on social impacts of electricity subsidy reforms in Pakistan. Previously, she co-led the analysis of qualitative research conducted across eight countries in Europe and Central Asia to understand household vulnerabilities in the face of increasing energy costs. She has hands-on experience designing and implementing citizen engagement mechanisms to reduce losses and nonpayment rates while improving service delivery in southeastern Turkey. Ezgi is the lead author of the Gender Practice Note for Energy and Extractives Global Practice, and she is advising energy investments in Africa, Middle East and North Africa, and Europe and Central Asia regions on gender and social inclusion issues. Ezgi is currently a Ph.D. candidate in Cultural Anthropology at the Graduate Center, City University of New York. Previously she taught topics in anthropology and ethnographic methods at Baruch, Lehman, and Queens Colleges in New York. v GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM ACRONYMS AND ABBREVIATIONS ESMAP Energy Sector Management Assistance Program GDP gross domestic product GSI Global Subsidies Initiative IISD International Institute for Sustainable Development IDI in-depth interview vi 1. PURPOSE 1 INTRODUCTION 1. PURPOSE Public information campaigns can mobilize political support for reforms and help overcome vested interests. …The public should be informed about the drawbacks of existing subsidies and the benefits of reform. IMF 2008 Energy subsidy reform is not a goal in itself, but Other governments begin communicating rather a means of achieving lasting economic with the public only after a decision to reform and social progress. Communicating with subsidies has been taken. Communication the public and other key stakeholders about about the benefits of and need for reform the benefits of reform and the drawbacks of should begin early in the reform process, existing subsidies helps build support and ideally in parallel with a public awareness acceptance. It can also increase trust and campaign to build trust and improve the understanding of the political decisions that image of the energy sector. underpin the reform. International experience shows that communicating before, during, and This note is intended for use by governments after subsidy reform is essential to ensuring and aims to (a) advocate for the importance the smooth rollout of a well-planned and of communicating with citizens proactively executed energy subsidy reform program about energy subsidy reform and (b) guide (GSI and IISD 2013). practitioners through some of the important elements of an evidence-based and effective Some governments undertaking energy communication campaign, including timing, subsidy reform programs either ignore stakeholder consultation, opinion research, communication with stakeholders or take a messages, messengers, media, and evaluation. top-down approach that fails to recognize This note should be used in combination stakeholder views and concerns. This with other tools, including capacity building happens for many reasons, including lack workshops and tailored advice from of understanding about the powerful role experienced communication professionals. communication plays in a successful energy subsidy reform program and the absence of As described in Guidance Note 1, many forms capacity within a government to undertake of subsidies have little effect on energy prices. communication activities. For example, tax expenditures may increase 2 GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM the profits retained by energy producers and making political economy analysis as well as result in large fiscal losses but may have no effective communication on the rationale for impact on end-user prices in a deregulated oil reform essential. Subsidies that keep energy market. Because tax expenditures are seldom prices artificially low also create distortions reported or subject to scrutiny by legislators, with ripple effects throughout the economy they frequently attract little or no attention and arguably represent the most serious from the public and policy makers. By contrast, form of energy subsidies. As such, while this those subsidies that lower prices paid by note is applicable to all forms of subsidies, it consumers—and the reform of which is likely focuses primarily on energy price subsidies to raise prices—are much more politicized, for consumers. 2. THE CRUCIAL IMPORTANCE OF COMMUNICATION IN A SUCCESSFUL ENERGY SUBSIDY REFORM PROGRAM Phasing out energy price subsidies (see Communication campaigns are one of the note 1, Identifying and Quantifying Energy essential tools that governments can use to Subsidies, for definition) can be politically explain the need for and benefits of reform difficult, although a number of countries have and to demonstrate the intent to protect the done so without major disruptions thanks in public against negative impacts. part to building support and acceptance for reform among a variety of stakeholders (see In order to be effective at communicating, note 9, Assessing the Political Economy of a government needs to be seen by the Energy Subsidies to Support Policy Reform public as credible and trustworthy. When Operations). How did they do it? mistrust is an issue, it can be very difficult to inform and persuade citizens. Similarly, when A 2013 IMF study indicated that among 22 messages are delivered in one direction— countries pursuing energy subsidy reforms, from a government to the people without an putting in place a well-planned and executed opportunity for interaction—it is also difficult communication campaign was an important to lead an effective communication campaign. factor in the successful implementation of Failure to consult stakeholders and gain their reforms (Clements and others 2013). This support has stalled and sometimes reversed is because energy subsidy reform requires much-needed reforms in many countries. In consensus, support, and changes in behavior. several countries, increases in electricity tariffs All of these can be achieved through a or fuel prices have led to public protests and communication campaign that consults a ultimately resignations of governments. range of stakeholders about their concerns and perceptions and proactively addresses Box 1 shares examples of how communication these concerns with targeted messages. campaigns contribute to public acceptance of energy subsidy reforms. 3. IMPORTANT ELEMENTS OF A SUCCESSFUL COMMUNICATION CAMPAIGN 3 BOX 1: COMPONENTS OF A COMMUNICATION CAMPAIGN In this note, a communication campaign (also known as a communication strategy or plan) is a strategic effort to • Use outreach and two-way dialogue with citizens to demonstrate that energy subsidy reforms are necessary and beneficial, and that social protection mechanisms will help alleviate the impacts of reform on poor and vulnerable households; • Consult with citizens and stakeholders to understand concerns and perceptions about the energy sector and planned reforms; • Coordinate within the government on outreach to citizens to ensure buy-in and a consistent approach to communication across ministries, agencies and government-owned energy industries; and • Communicate consistently and with evidence-based messages to build understanding and support for reforms, and to minimize negative perceptions and potential social impacts. 3. IMPORTANT ELEMENTS OF A SUCCESSFUL COMMUNICATION CAMPAIGN Communication campaigns implemented 5 | A ss ig n c re d ib le m e ss e ng e r s and in support of energy subsidy reform can spokespeople; take many forms. However, certain common 6 | I d e n t i f y t h e b e s t c h a n n e l s f o r elements and proven practices transcend communicating messages to different country borders and political contexts. Broadly stakeholders and encouraging two-way speaking, practitioners interested in designing dialogue; and and implementing communication campaigns should: 7 | Set measurable goals to track the communication campaign’s effectiveness. 1 | Determine the objectives, timeline, budget, and governance for the communication In addition, it is important to ask the following campaign; questions when planning a communication 2 | Map key stakeholders and consider their effort: level of interest and influence (see also • Is information about the price subsidies note 9 on political economy); accessible to the public, including the 3 | Conduct opinion research to understand magnitude of price gaps, how prices are stakeholder views and perceptions (see set, who benefits, and the scale of diversion also note 4 on qualitative analysis tools); to unintended beneficiaries, if any? 4 | Create and pretest compelling messages • Are all forms of communication being that address stakeholders’ commonly held exploited? views and build awareness of the scope of the consumer price subsidies and their influence on the economy; 4 GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM FIGURE 1: How to Sequence a Successful Communication Campaign Establish a strong internal coordinating body to pursue the parameters and objectives of reform, as set by political decision makers LITTLE TIME ADEQUATE TIME OR RESOURCES AND RESOURCES Analysis to project Literature reviews, interview experts 1. Identify key stakeholder groups and audiences. impacts, invite expressions of interest Groups of experts, Literature reviews 2. Map supporters and opponents of reform. use of targeting strategies For INTERNAL For INTERNAL 3. Use CONSULTATIONS STAKEHOLDERS: STAKEHOLDERS: and other activities to collect Interdepartmental task forces, expert groups, data and gauge views from cabinet and parliamentary committee internal stakeholders. committees For COMMUNICATIONS: 3. Use COMMUNICATIONS to raise awareness about For COMMUNICATIONS: Announcements, speeches, print subsidies and rationale for Television and radio advertising, media releases reform. Select key advertising, websites messages and media. For EXTERNAL For EXTERNAL 3. Use CONSULTATIONS STAKEHOLDERS: STAKEHOLDERS: and other activities to collect Surveys, interviews, written Interviews, literature data and gauge views from submissions, public reviews, focus groups external stakeholders. inquiries, road shows, polls, workshops 4. Political decision makers decide plan for next subsidy reduction and related mitigation measures. Announcements, 5. Use COMMUNICATIONS to prepare stakeholders speeches, media Television and radio for reform. This requires selection of key messages releases, print advertising, websites advertising and appropriate channels for communication. 6. Reduce or remove subsidies 7. Monitor and adjust COMMUNICATIONS about the e ects of reform. Source: GSI and IISD 2013. 3. IMPORTANT ELEMENTS OF A SUCCESSFUL COMMUNICATION CAMPAIGN 5 • Is consideration being given to a Web-based where they can go for more information. In national conversation, giving many people order to determine specific objectives, it is an opportunity to be heard? important to understand the target audience based on their level of interest and influence in • Are all segments of society being reached, the potential reform. A credible, transparent, including those who are illiterate or who and fact-based campaign can also serve do not have access to the Internet or TV? other purposes, including increasing trust • Is electronic communication being in the government and policies, improving complemented by face-to-face stakeholder the level of coordination across agencies, meetings? and demonstrating the progress a country is making with improving the energy sector and I. DETERMINE THE OBJECTIVE, the benefits this will bring to the population. TIMELINE, BUDGET, AND GOVERNANCE FOR THE Timeline COMMUNICATION CAMPAIGN A communication campaign should be integrated throughout the planning, Objective development, and implementation stages The objective of a communication campaign is of energy subsidy reform. The focus should simply to inform citizens about the necessity initially be on internal consultation in order and benefits of a reform. In addition to building to create a coalition for reform among public support for and understanding, a politicians and administrative services (GSI communication campaign’s objective is also and IISD 2013) (see also note 9 on political to inform citizens about the process of reform, economy). External communication (that is, the available social protection resources, and communication with stakeholders outside FIGURE 2: Timeline for Internal and External Communication INTERNAL Inception of Decide approach Clearance by Development Decide and Monitoring & policy proposal (all relevant decision makers of detailed release final adjustment (lead ministry ministries and plan (relevant policy & comms. (lead ministry) and minister) central agencies) ministries) strategy (meeting with cabinet) Choose and design Research the likely impacts of reform new pricing mechanism Implementation & mitigation measures Awareness-raising Consultations with Consultations Communications on Communications communications about stakeholder groups with stakeholder final policy, raising on actual impacts, subsidies and the need on likely impacts groups on awareness of plan adjustments and for reform reform plan and mitigation successes measures EXTERNAL Source: GSI and IISD 2013. 6 GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM the government) can also begin at the early Whoever is leading the communication stages of subsidy reform planning, raising campaign should be well integrated into awareness about the negative impacts of the subsidy reform process and ideally be consumer price subsidies and the need for a champion and seasoned practitioner of change and communicating guiding principles proactive, evidence-based communication. of the reform process, such as the need to design reforms so that they maximize public II. MAP KEY STAKEHOLDERS benefit and, if appropriate in the specific AND CONSIDER THEIR LEVEL OF country, minimize impacts on the poor. Later, INTEREST AND INFLUENCE external communication will shift to gathering opinion research and soliciting input into draft An important goal of communication reform strategies. In parallel, internal (within- campaigns is to build support and reduce government) communication should seek to opposition. Communication campaigns ensure consistent messages and approaches must determine which stakeholders (a) are from across the government. Communication impacted by and interested in the reform and to external and internal parties should continue (b) have influence over whether the reform as prices increase and even after reforms are will succeed (see also the note 9 on political in place. Communication campaigns are a economy). dynamic process that should continually take Stakeholders can be internal, for example, in feedback from citizens and that can span within government ministries and agencies, periods of months to years. It is important to or external within the broader public and civil develop a realistic timeline for a campaign’s society. Outreach to both internal and external specific objectives and resources. stakeholders must be part of a communication Governance campaign. The entity in charge of communication Internal stakeholders: Communication campaigns varies by country and context. In c a m p a i g n s s h o u l d e st a b l i s h st ro n g some countries, it can be the prime minister’s coordination among government actors to office, and in others, the ministry of energy, the ensure consistency and credibility. Competing regulator, or a state-owned energy enterprise. messages to the public from various parts It is generally more effective to have one of the government will be self-defeating. An government organization responsible for internal dialogue that starts at the beginning implementing a communication campaign, of the process to raise awareness of the need not several sharing accountability, although for change and continues afterward to ensure some countries decide to involve multiple a consistent approach to external stakeholders stakeholders in order to show joint ownership and to finalize policies is more likely to build and commitment to the reform. In each of and retain broad support (GSI and IISD 2013). these cases, a dedicated campaign manager International experience demonstrates that is essential for maintaining the focus on one of the major weaknesses in government results, staying abreast of public and political communication is a lack of coordination. shifts that require dynamic messaging, and Mixed messages create unnecessary confusion monitoring progress. and erode the public’s confidence in the 3. IMPORTANT ELEMENTS OF A SUCCESSFUL COMMUNICATION CAMPAIGN 7 government’s ability to manage reforms A variety of mechanisms can be used to effectively. Consistency across the government consult internal stakeholders, and each country is as critical in the implementation of a context is unique. A number of mechanisms communication campaign as the messaging. were presented by GSI and IISD (2013) and are reproduced in table 1. TABLE 1: Mechanisms for Internal Consultation on Subsidy Reform Mechanism Key features Strengths Weaknesses Ensures political-level Needs to be supported by Involves all key ministers Cabinet participation consultation and advisory subcommittee May be led by head of support at the bureaucratic Decisions unlikely to need government level higher level of approval Identify and address Key ministers mobilize concerns of parliament Usually only relevant Parliamentary coalitions or champions within members that could block once reform proposal is committee parliament passage of necessary near-final legislation Seconds officers from relevant departments and agencies Dedicated resources from all relevant agencies Conflict can arise between Limited lifespan to develop Task force Provides central point for task force and home and implement reform relations with internal and departments May be hosted by a central external stakeholders agency May achieve little beyond All relevant agencies awareness-raising among Interdepartmental represented Involves all relevant officials committee Meets regularly or on ad hoc agencies Must feed into process for basis decision-making Experts could be within or Creates some distance Leaders may not take Expert group outside government, but must between political leaders advice if it comes from have backing of lead ministers and reform plans nongovernment experts External stakeholders: Communication • How much stakeholders benefit from campaigns should also speak to the current policies; stakeholders who stand to gain or lose from • How stakeholders will be impacted after subsidy reform, and the parties who represent reform; and and align with these stakeholders. • How stakeholders will be affected after Once stakeholders are identified, it is important mitigation measures are implemented (see to map to what degree stakeholders are note 9 on political economy). impacted by, interested in, or able to influence subsidy reform (figure 3). By analyzing stakeholders’ interest and influence in a stakeholder mapping process, How subsidy reform impacts each stakeholder the communicationt practitioner can group depends on many factors, including understand better where support for or the following: resistance to reform is likely to be strongest. 8 GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM • Level of Interest is assessed by how likely a on communicating to them. Communication stakeholder is to welcome the prospect of campaigns often aim to build coalitions to energy price subsidy reform, owing to both facilitate reforms and to convince neutral or material and ideological factors. Experience undecided stakeholders about the benefits has shown in several countries that some of reform (figure 3). stakeholders may react based less on the issue itself than on the potential it offers to When mapping stakeholders, it is important to mobilize in pursuit of other goals. consider gender sensitivity and make plans for reaching women audiences, especially where • Level of Influence is a concept that includes household energy is affected by the subsidy political influence, access to means of mass reform. In most circumstances, women are communication, financial resources, the main users and procurers of energy (that perceived credibility, propensity to engage is, collecting fuels or ensuring continuous in political protest, and numbers. access to liquefied petroleum) and primarily responsible for performing household chores, Communication campaigns should consider but they are not often considered in a map carefully which stakeholders to target, given of interest and influence. Women are often limited resources and the reality that some disproportionately impacted by lack of access groups will be deeply opposed to reforms to energy sources, unreliable and low-quality and no amount of communication will energy services, and increasing energy costs. persuade them and some groups will be fully They may not have voice in their community supportive so resources should not be spent and could be overlooked in an opinion research FIGURE 3: Mapping Stakeholders by Level of Interest and Influence in Tariff Subsidy Reform in the Power Sector High Influence, Low Interest High Influence, High Interest Presidency Prime Minister Security forces Well-o Average income Ministry Large firms Deputy PM Civil servants Planning Ministry Youth Electricity Power producers Ministry Media Generator owners Manufacturers Finance Ministry Poor Parliament Smaller parties Central Bank Unemployed SMEs Farmers Low Influence, Low Interest Low Influence, High Interest Source: Excerpt from an internal World Bank report (2017). 3. IMPORTANT ELEMENTS OF A SUCCESSFUL COMMUNICATION CAMPAIGN 9 exercise to inform the campaign. Women’s also help to monitor public opinion and views on energy issues, however, are critical. identify potential risks that might affect the successful implementation of the Mechanisms to cope with increasing energy reforms. While policy makers often feel they costs (for example, by reducing energy use and understand the prevailing public opinion or cutting spending on food, health, and other perceptions, evidence gained from research necessary household expenses) have greater can validate these assessments or uncover impact on women, since they are more likely to previously unrecognized nuances (see note sacrifice their needs first. Although women rely 3 on quantitative impacts on households, heavily on energy to fulfill household chores, note 4 on qualitative research tools, and they might not participate equally in decision- note 9 on political economy). Qualitative and making on the procurement of energy sources quantitative research can gather information or appliances (World Bank 2015). Therefore, to help women are receptive to messages about the positive impacts of subsidy reforms, such as • Identify the target audience’s perceptions, improving energy service quality and reliability, underlying motives, and beliefs that shape and about the accompanying social protection citizen attitudes toward subsidy delivery, measures to mitigate the negative impacts reform activities, and service delivery; on vulnerable households. Women can also • Identify the coping mechanisms currently be activated as agents of change to alter being used to deal with unintended informal and inefficient energy use habits consequences of price subsidies, such and to encourage behavior change toward as fuel shortages and high prices on the energy efficiency, which in many country black markets, and opinions about potential contexts is a complementary and empowering improvements in energy service delivery as message to accompany information about a result of subsidy reform; subsidy reforms. • Understand what consumers might perceive III. CONDUCT OPINION RESEARCH as acceptable in a reform program, including TO UNDERSTAND STAKEHOLDER whether an expansion or improvement of VIEWS AND PERCEPTIONS social safety net programs is necessary; There are different ways to consult and • Find gaps in knowledge and popular communicate with internal and external misconceptions about reforms; stakeholders . For external stakeholders, • Expose barriers to behavior and attitude understanding the public’s knowledge, change that need to be addressed; attitudes, and perceptions of the energy sector, subsidies, and existing social safety • Identify channels through which consumers mechanisms is crucial to designing effective get information, sources they trust, and the communication campaigns. different ways consumers receive or process information to determine effective ways of Communication research (also known as reaching them; and opinion research) can use qualitative and quantitative methods to explore stakeholder • Determine which messages will best opinions and attitudes (see table 2). It can motivate change. 10 GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM TABLE 2: Types of Research Methods to Ensure an Evidence-Based Communication Campaign Method Description Qualitative interviews with individuals, usually at the household decision-making level if one or more energy prices they face will be raised. Interviews can be structured with formal written guidance or with semi-structured guidance that allows issues that come In-depth up to be pursued. They can also be unstructured, but organized around specific topics. interviews Interviews provide in-depth views of the most influential people and groups related to an issue. Generally 12–15 in-depth interviews can be sufficient to begin a communication planning process. Semi-structured qualitative discussions with small groups (generally 6–12 participants). Focus groups are generally used to inform a larger public opinion poll. They seek to obtain Focus broad views on an issue. They can also be used with in-depth interviews to inform reform groups programs as they progress. Focus group discussions can also be used before rolling out a campaign to “pretest” campaign messages with a small group of people before airing messages on mass media. Uses a structured survey questionnaire and is conducted face-to-face or by phone. Public opinion surveys should be conducted with a statistically relevant percentage of the Public population. They provide specific empirical information that should be used to inform opinion campaign messages. They are useful when considering broad reforms that might affect survey the entire population. Surveys provide the greatest depth of information that can be disaggregated in many ways. Usually involves either a Web page with information that people can respond to or a structured and facilitated online discussion. These formats have limitations in that only Online and literate people with good Internet access can participate, but they are a way to quickly written reach large audiences. When choosing online communication as a channel, it is important consultation to plan for hosting and curating the online conversation, including determining how to check comments before they are posted and how to respond quickly to negative comments or misperceptions that are being disseminated through a comments section. Open for all or by invitation. Public meetings take place at any level (for example, the Public community, regional, or national level). Large groups make can it difficult to give everyone meetings a voice, so expert facilitation is needed. Public meetings can function like large focus groups. Workshop Gathering a group of people in a structured format for a specific agenda. Public May be required by regulators in some cases. Public inquiries are a formal process that can inquiries or involve calling for submissions of interest, holding hearings, inviting written submissions, regulatory and issuing recommendations for comment. processes To consult the views of internal stakeholders of energy, or affecting all consumers) or and to coordinate a common approach to targeted (a particular form of energy, or messaging around subsidy reforms, a range specific consumer categories). While only of bodies can be formed, which were outlined one communication campaign is needed for in table 1. a reform program, stakeholders will likely be impacted by reforms differently and will The type of energy subsidy reform under require tailored messages. consideration will affect which stakeholders are engaged and communicated with. Energy subsidy reforms can be broad (many forms 3. IMPORTANT ELEMENTS OF A SUCCESSFUL COMMUNICATION CAMPAIGN 11 IV. CREATE COMPELLING • Unexpected: Messages that grab attention MESSAGES THAT ADDRESS tend to resonate more with people. STAKEHOLDERS’ COMMONLY HELD VIEWS AND BUILD • Concrete: If stakeholders are being asked AWARENESS OF THE SCOPE to do something, such as conserve energy, OF THE SUBSIDIES AND THEIR specific advice about what they can do INFLUENCE ON THE ECONOMY to conserve energy is more effective than general calls for conservation. Clarity and Once the key stakeholders are targeted and consistency in messaging are as important research has been conducted to understand as the messages themselves. their opinions and attitudes, it is time to craft messages to build support for reform. • Credibility: A message must be trustworthy, Messages can change attitudes because they evidence-based, and framed in a way that stimulate thought, evoke emotions, and mesh is easily believed. One way to do this is with citizens’ motivations and needs. When to focus on sharing objective facts. For designing messages, it is important to consider example, campaigns should communicate their structure, content, and appeal. Messages to consumers that what they pay is only a should demonstrate how stakeholders will part of the full cost of energy. Those who benefit from reform in clear, compelling ways, receive subsidized energy are often not based on country-specific public opinion aware that the government subsidizes their research, and what compensation mechanisms consumption. A critical message to convey may be available to the vulnerable. to the public is the connection between poor service delivery and flawed subsidy Local context and contemporary political programs. Further, how resources are going trends must be considered when creating to be reallocated to compensate vulnerable compelling messages. All communication customers also needs to be communicated. campaigns require a tailored approach. Industry principles should be applied, but • Emotion: A communication campaign tailoring the messages to reflect country should design messages that have an specifics will make the difference between an emotional appeal. Governments tend to lose effective communication campaign and a pro the battle over subsidy reform programs forma exercise in mass-media messaging. It is not just because they have poor messages, therefore suggested that governments engage but through the very way they conceive and seasoned, professional communicators in the describe the reform from the beginning. planning and implementation of in-country Governments often use technical or process- communication campaigns. related language instead of language that relates to people on an emotional level. What makes a SUCCESsful message? • Story: Messages that tell a story are more (Adapted from Heath and Heath 2007) easily remembered and more effective at • Simplicity: Finding the core of the idea to influencing stakeholders. Stories ideally communicate, which involves discarding emphasize the potential positive impacts a lot of important ideas to find the most of reform. Some positive impacts might important one. include improved energy service and access; strengthened social safety nets for vulnerable 12 GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM groups; increased resources for health, spokesperson’s experience speaking to large education, or infrastructure spending; the groups of citizens or on TV or radio, on-camera positive impacts on a country’s economic media training may be required to assess growth; the potential environmental and the spokesperson’s comfort level and public associated health benefits; and the country’s speaking effectiveness before implementing debt reduction. a large-scale communication campaign. V. ASSIGN CREDIBLE MESSENGERS VI. IDENTIFY THE BEST CHANNELS AND SPOKESPEOPLE FOR COMMUNICATING MESSAGES TO DIFFERENT STAKEHOLDERS There is an adage in the communication industry AND ENCOURAGING TWO-WAY that says, “It’s not what you say, it’s what your DIALOGUE audience hears.” Source credibility is a term used to describe a communicator’s positive In many countries, radio or television are still characteristics that affect the audience’s the public’s preferred channels for information. acceptance of a message. The choice of In some countries, SMS/text messages and spokesperson is one of the most consequential social media are reaching mass audiences and decisions a campaign manager can make. should be integrated into a campaign’s plans. Once evidence-based campaign messages In every country there is no substitute for have been established, it is important to convey face-to-face interactions with people. Village them through a credible source. During the meetings, town halls, and consultations can initial public opinion research questions can be very effective. Opinion research can help be added in the in-depth interviews, survey, identify the most used and trusted source of and focus group discussions to determine information for each target stakeholder, such who in the country or community is trusted as the following options: television, radio, and respected for putting the needs of the social media channels, and print media. country first. Television is a trusted source of information in In addition to being trusted and generally many countries that can reach broad audiences. liked by the target audience, the messenger Public service announcements, commercials, should be able to get and keep the attention alerts that appear at the bottom of the screen, of the audience by appealing to their emotions and televised speeches and debates can very and feelings. Strong public speaking skills effectively bring the messages of the campaign and a willingness to interact frequently in to the general public. meaningful ways with citizens are essential. For other audiences, radio is the most effective The messenger should speak the audience’s channel for communication. It reaches those language and not be viewed as overly political who may not have access to television. In when making statements about the energy countries with many different dialects and subsidy reforms. languages, there are often radio channels or Once a spokesperson is assigned, an shows that can reach large audiences in each investment should be made in his or her ability of the country’s languages. to deliver the campaign’s messages fluently and effectively to the public. Depending on the 3. IMPORTANT ELEMENTS OF A SUCCESSFUL COMMUNICATION CAMPAIGN 13 Social media channels are an increasingly makers directly. It is important to organize powerful tool for getting out messages, consultations in ways that promote candor but their content must be kept up to date and allow participants sufficient time to review to maintain credibility. The use of Youtube, and digest the information being shared for Facebook, Twitter, Instagram, and other consultation (for example, consultation on Internet-based platforms is increasing rapidly, the tariff-setting methodology for a utility not only by youth, but by adults as well. If will need to present the methodology in an social media is used, an editorial calendar easy-to-understand way if the conversation for planning content should be developed to is going to be well informed). Participatory ensure that messages are posted routinely platforms increase consumer awareness about and do not become stale. Social media reforms while allowing service providers messages should tie in with the core message to receive consumer feedback on service of the communication campaign. Other good provision. These mechanisms could be practices include posting images that reinforce particularly useful in countries where utility the campaign messages; testing messages tariffs are subsidized, commercial losses and and images before launching the campaign nonpayment are prevalent, and an important to see which get better responses; measuring component of raising more revenue to reduce impact by tracking followers, likes, repostings the revenue-cost gap is to reduce commercial and comments; and building a community of and collection losses. followers by inviting and encouraging people to join. VII. SET MEASURABLE GOALS TO TRACK THE COMMUNICATION Print media, including billboards, newspapers, CAMPAIGN’S EFFECTIVENESS fact sheets, pamphlets, and trade publications can also be an effective way of targeting Before launching the communication campaign, messages to specific groups. it is important to establish metrics to determine whether it is successful and determine what In all countries, substantive and credible happened or did not happen as a result of your messages, messengers, and channels of campaign. To measure this, indicators should communication are more effective than be identified and data collected throughout superficial slogans. One-way broadcasting the campaign. These indicators could include from the government to citizens is rarely the number of visits to your website after a effective, but interacting and offering campaign TV commercial directs viewers to opportunities for two-way dialogue through log on for more information; reposts or likes multiple channels is effective in building of your social media messages; the number of understanding and acceptance of reforms. citizens applying for social assistance if that is A campaign should develop platforms for a component of the information campaign; and engaging with stakeholder groups to increase changes in public perception of subsidy reform trust and mutual accountability. Meaningful as a result of the campaign, as measured two-way dialogue allows citizens to talk through follow-up surveys after the campaign about key service delivery problems (such concludes. This last indicator can be monitored as unreliable and low-quality service), raise through online, telephone, or house-to-house their grievances related to energy sector opinion polls or surveys. Polls and surveys governance, and interact with decision 14 GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM can track exposure to messages and measure of Ukraine engaged a World Bank team for a messages influence on views. technical assistance program. Public opinion research and a series of focus groups were The purpose of establishing measurable goals conducted across the country. An awareness is not only to demonstrate success, but also campaign was designed and implemented to determine whether there was a return on to reach citizens with compelling, evidence- investment in communication. With good based messaging about the need to reform gas metrics, a campaign will be able to determine price subsidies and the government’s efforts which outreach activity was most effective to mitigate the impacts of price increases on and which audiences were most receptive. poor households. The awareness campaign This will help inform a second phase of a also focused on energy efficiency measures campaign by indicating which activities and that could help citizens cope with higher channels to emphasize for the most impact. prices and improvements to the national social assistance programs. Citizen feedback Example of Engaging Citizens and was used to design compelling messages for Raising Public Awareness to Support the awareness campaign, improve consumer Energy Subsidy Reform: Natural Gas knowledge, and influence public debate Pricing Reform in Ukraine about reforms. The impact of Ukraine’s citizen engagement efforts was far reaching: enrollment in assistance programs increased significantly, households adopted energy efficiency measures, and the government committed itself to continuing the reform process. Through a comprehensive technical assistance program financed by the Energy Sector Management Assistance Program (ESMAP), the World Bank provided multisector expertise to address the full complexity of reforms (for example, poverty, social protection, and communication specialists, in addition to energy and macro-fiscal experts). One aspect of the work involved hands-on support to a citizen engagement and public awareness campaign to (a) understand the perceptions and attitudes of citizens For years, natural gas consumers in Ukraine and (b) design messages that would help paid prices that were far below gas import build public understanding about the tariff prices, incurring large losses for the utility. By increases. The technical assistance identified 2015, energy price subsidies accounted for and supported the process of raising about 5 percent of Ukraine’s gross domestic citizens’ understanding of Ukraine’s energy product (GDP). Faced with the need to reform consumption, its lack of sustainability, and price subsidies for natural gas, the Government 3. IMPORTANT ELEMENTS OF A SUCCESSFUL COMMUNICATION CAMPAIGN 15 potential solutions—including the need for hotline number to access social assistance and energy efficiency measures to be adopted delivering specific energy efficiency messages by Ukrainian citizens. (such as “Building conservation measures” or “Turn down your boiler”), print brochures, and Engaging Citizens to Assess Needs and advertisements painted on buildings—was Attitudes not reaching enough people. In winter 2014–15, a survey was conducted of In December 2014, the findings of the citizens across the country on energy issues. beneficiary feedback survey were presented Forty focus group discussions on crucial to a group of 18 government agencies to energy issues were held before and after prompt a discussion about messaging and the heating season in 20 cities to develop strategy. Support for brainstorming sessions an understanding of citizens’ knowledge and was provided to identify how the government’s attitudes, the impact of tariffs on household communication strategy could be reoriented budgets, and their experience with social to better explain the need for energy reforms assistance programs. Questions were asked and raise awareness of the social assistance about whether citizens had seen a previous programs, as well as how to encourage more communication campaign on energy issues collaboration across government agencies for and their views on its effectiveness. In addition consistent communication. The World Bank to these focus groups, a quantitative survey team worked with the Cabinet of Ministers was conducted among 2,000 Ukrainians. Public Affairs team to analyze the existing communication campaign and plan for a new The findings indicated that citizens were wave of communication in 2015. shocked by the first, dramatic round of gas tariff increases and saw few ways to reduce Distilling the Message and Retargeting their consumption. Of survey respondents, Communication 69% viewed the increases as unjustified and did not consider them connected to larger Using the findings of the beneficiary feedback energy reforms or the betterment of Ukraine. survey and focus groups, a revised campaign Respondents were also largely unaware with more tailored messages was launched of the assistance program that was being in order to raise citizens’ understanding that made available to them. The majority felt tariff increases were inevitable and to increase uninformed and they were keen to obtain more enrollment in the Housing and Utilities Subsidy information, preferably through television and Program. Messages about the wastefulness the Internet. of Ukraine’s energy price subsidies were reinforced and social protection specialists Although the government had understood the on the World Bank’s Social Safety Nets importance of informing the public, according Modernization Project team helped design to the results of this beneficiary feedback, an awareness campaign based on the concept the 2014 campaign to raise awareness of “social balance,” promoting the idea of about new tariffs and the social assistance balance between the society and the economy. programs had not been very effective. The existing communication campaign—which The messages that were formulated based used billboards publicizing the government on citizen feedback were used to produce TV 16 GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM commercials, print brochures, and social media increased from 1.25 million to 5.5 million products used by the Cabinet of Ministers households. and distributed in municipal buildings and the public transport system. In order to reach Lessons Learned in Ukraine more citizens—and in response to the survey findings that newspapers were still one of the A high level of government commitment is most important channels for information—the need for consistent communication about World Bank sponsored outreach activities with energy subsidy reform. The government sets journalists in 2015 and 2016. More than 500 the pace of the reforms and determines the journalists were trained across Ukraine in 15 level of ownership of the awareness campaign. sessions led by regional press clubs. Journalists Those outside the government offering were provided up-to-date information and had assistance need to be prepared to work at the the opportunity to interact with technical government’s pace and occasionally reassure experts from the Energy and Social Protection the government that a diligent, evidence- Ministries. Media monitoring after the events based communication campaign can help showed that in regions where media training shape public perceptions of reforms. was conducted, the quality of reporting on Understanding citizens’ perceptions of energy reforms improved. reforms is critical. Designing outreach An advertising agency developed a TV campaigns without fully understanding the commercial that highlighted the waste of opinions and awareness levels of citizens can energy subsidies, discussed ways citizens be counterproductive. It is worth investing could pursue energy efficiency measures the time to assess citizens’ knowledge, at the household level, and explained the perceptions, and concerns. Messages can then improvements being made to the social be tailored to better address critical concerns assistance programs to help people deal and fill the gaps in citizens’ knowledge and with the tariffs. The commercial’s messages understanding of complex reforms. were designed with the Cabinet of Ministers Prioritize channels that citizens already use and and the World Bank team, and reflected the trust. The survey and focus group discussions findings of the original citizen feedback survey checked the government’s assumptions about and focus groups. The commercial broadcast the best channels to use for reaching citizens. the government’s hotline number for applying Given that resources are inevitably limited, a for social assistance or get more information. successful communication campaign should The television commercial was aired 400 rely heavily on popular, trusted channels times per week on 19 channels across Ukraine rather than create new channels for a specific in the spring of 2016. At the same time, the campaign. Asking the target audience where process for enrolling applicants in the social they go for trusted information is an important assistance programs was being simplified first step to a campaign. and welfare officers were being trained in Energy subsidy reform is a long and dynamic the new procedures under a separate World process. To monitor the effectiveness of the Bank project. After eight months, enrollment citizen engagement effort, a second round in the Housing and Utilities Subsidy Program of technical assistance conducted another 4. CONCLUSIONS 17 national survey, which analyzed how citizens rationale for reform, but also that there were coped during the 2015–16 heating season and still information gaps that needed to be again asked whether citizens had seen previous addressed. In the second round of national communication efforts by the government. communication conducted in the winter of The feedback showed improvements in 2016–2017, feedback from citizens was sought awareness levels and understanding of the to give them a voice in the reform process. 4. CONCLUSIONS Public reactions to subsidy reform programs early, informing the public in accessible ways, are highly contextual and dynamic. Creating and explaining the mitigation measures to an informed and supportive public that protect poor and vulnerable households, public understands the rationale for reform greatly understanding and eventually goodwill can improves the chances of success. International be built for a reform process. Communication experience has shown that well-planned and campaigns must be flexible to accommodate consistent communication is critical to the shifting political, social, and cultural aspects success of sustainable energy subsidy reforms. of reform, but a well-planned, appropriate communication strategy based on empirical Communication is an investment and should research will greatly enhance the effectiveness be planned and implemented by experienced of any subsidy reform program. professionals before and during the stages of reform. By assessing risks and public sentiment GOOD PRACTICE NOTE 10: DESIGNING COMMUNICATION CAMPAIGNS FOR ENERGY SUBSIDY REFORM REFERENCES Clements, Benedict, David Coady, Stefania Fabrizio, Sanjeev Gupta, Trevor Alleyne, and Carlo Sdralevich. 2013. Energy Subsidy Reform: Lessons and Implications. Washington, DC: International Monetary Fund. GSI (Global Subsidies initiative) and IISD (international institute for Sustainable Development). 2013. Guidebook to Fuel Subsidy Reform for Policy Makers in Southeast Asia. Winnipeg, Canada: IISD and GSI. Heath, Chip, and Dan Heath. 2007. Made to Stick: Why Some Ideas Survive and Others Die. New York: Random House. IMF (International Monetary Fund). 2008. “Fuel and Food Price Subsidies—issues and Reform Options.” Washington, DC: IMF. World Bank. 2014. “Transitional Policies to Assist the Poor While Phasing Out Inefficient Fossil Fuel Subsidies.” Paper submitted to the meeting of the G20 Finance Ministers and Central Bank Governors, Cairns, Australia, September 18–20. ———. 2015. Towards Gender-informed Energy Subsidy Reforms: Findings from Qualitative Studies in Europe and Central Asia. Washington, DC: World Bank. Worley, Heather, Ashok Sarkar, Neha Mukhi; Padu S. Padmanaban, Amit Kumar, Jayakrishnan Nair, and Manish Soni. 2016. Communication Research on Energy Efficiency in India: Communication Needs Assessment and Stakeholder Mapping. World Bank: Washington, DC. 18 Energy Subsidy Reform Assessment Framework LIST OF GOOD PRACTICE NOTES NOTE 1 Identifying and Quantifying Energy Subsidies NOTE 2 Assessing the Fiscal Cost of Subsidies and Fiscal Impact of Reform NOTE 3 Analyzing the Incidence of Consumer Price Subsidies and the Impact of Reform on Households — Quantitative Analysis NOTE 4 Incidence of Price Subsidies on Households, and Distributional Impact of Reform — Qualitative Methods NOTE 5 Assessing the readiness of Social Safety Nets to Mitigate the Impact of Reform NOTE 6 Identifying the Impacts of Higher Energy Prices on Firms and Industrial Competitiveness NOTE 7 Modeling Macroeconomic Impacts and Global externalities NOTE 8 Local Environmental Externalities due to Energy Price Subsidies: A Focus on Air Pollution and Health NOTE 9 Assessing the Political Economy of Energy Subsidies to Support Policy Reform Operations NOTE 10 Designing Communications Campaigns for Energy Subsidy Reform