Chapter 5: The Basics of Planning for Citizen-Centered Advocacy

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The Action Guide for Advocacy and Citizen Participation 99

Planning is necessary because we:

• have limited resources;

• have a limited timeframe in which we wantto accomplish certain objectives;

• want to be increasingly accountable to ourconstituents and partners;

• must achieve some concrete results aswell as a systematic process;

• operate in changing and sometimes unpre-dictable environments;

• need to have a clearly articulated commonaim to minimize conflicts and differences.

What Is Advocacy Planning?

Advocacy planning is about the developmentof:

An Overall Change Strategy

This is usually a long-term plan that embodiesyour vision and reflects where you are, whereyou want to go and how you can get there.

A Campaign

This is a medium-term plan with activitiesaimed at influencing the policy environmentand public opinion. The activities are intendedto achieve some of your advocacy strategyobjectives.

Tactics, Actions, or Activities

These are usually short-term activities within alarger change strategy, designed for a specificmoment and opportunity. They could includeresearch and media work to shape the cam-paign and capture the attention of people inpower in relation to your issue. These activitiesare often referred to as strategies as well.

Impact Assessment

This involves monitoring your impact so youcan change your strategy, campaign, andactivities as necessary.

However, planning for advocacy is more thanjust a set of tools and steps for improvingimpact. Participatory approaches to planningfurther advocacy goals by putting into practice

The Basics of Planning forCitizen-Centered Advocacy5

Immeasurable Goals

Maruja Barrig, a strategic planning expert from Latin America, points out that planning for social andpolitical change is very different than planning for development projects such as building wells orproviding health services. In development projects, the goals are measurable. But political change goalslike empowerment are difficult to measure because real examples are scarce, therefore we are hardpressed to describe what they look like. Advocacy strategies often try to “operationalize values” that donot have clear models in the real world. This makes them more difficult to envision and quantify. That’swhy it’s important to find creative ways to measure these processes. Barrig says that measuring shorter-term results that are steps on the way to larger change may be more practical than trying to measurelong-term results.

Barrig, Maruja, “Planificacion Estrategica” in Mujeres Al Timon, a book produced as part of a women’s advocacy and politicalparticipation project coordinated by Agende (Brazil), Equidad de Genero (Mexico), Flora Tristan (Peru) and other LatinAmerican Women’s NGOs.

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The Basics of Planning for Citizen-Centered Advocacy5

The Action Guide for Advocacy and Citizen Participation

more equitable power relations and moreinclusive citizenship. Participatory planning forcitizen-centered advocacy:

• Builds organization and networks. Partici-patory analysis and decisionmaking helpstrengthen leadership and communicationwithin and among organizations.

• Promotes political education. It involvesnew knowledge about power and politicsand experiences that develop citizenship.

• Strengthens planning for negotiation. Theprocess delineates a clear map of interestsand levels of power among the key actors.

• Builds constituencies. When we involvemany stakeholders—and particularly thepeople most affected by the advocacyissue—more people will be informed andmotivated, and the campaign will havemore legitimacy and clout.

Advocacy planning is a continual process. Ifsome groups have not been involved in theinitial stages of planning, they can be includedlater when plans are being reviewed andmodified.

How Advocacy Planning Differsfrom Other Types of Planning

The temptation to follow donor trends and beproject-oriented has made many organizationsreactive rather than proactive. Advocacyplanning, on the other hand, needs to bestrategic. Being strategic means makingcareful choices about how to use and leveragescarce resources. It is about achieving bothour short-term aims (such as educating citi-zens about their legal rights) and our long-termvision for social change (for example, respectfor human rights and more consultative publicdecisionmaking). Being strategic demands acareful analysis of external opportunities andconstraints and internal organizational re-

sources for addressing a problem. However,since advocacy involves maneuvering in acomplex political system where power dynam-ics generate conflict, planning for advocacydiffers from traditional strategic planning toolsin key ways.

Unlike many approaches to strategic planningwhere goals, objectives, activities, and evalua-tion are presented as a seamless and logicalpattern, advocacy planning acknowledges thatthere are hidden agendas, different values andideologies, incomplete information, and conflict.Further, planning and doing advocacy happenside by side. After every action it is oftennecessary to adjust goals in planning our nextstep. So assessment is a continual task inadvocacy, rather than a step at the end of theplanning sequence. Strategic planning foradvocacy is always a work in progress.

Citizen-centered planning includes a variety ofother features:

• It is not seen as value-neutral. Values andcommitment are just as important as ‘facts.’

• It is not a linear set of steps with predict-able outcomes. It is an iterative process ofexamination and adjustment.

• It gives direction to action, yet is alsogeared to responding to unforeseen oppor-tunities.

• It should, if possible, involve the peoplemost affected by a particular problem inplanning and action—from setting theagenda to leading the campaign.

• It draws upon and strengthens the analy-sis, awareness, and organizational clout ofmarginalized sectors.

• It involves conflicts and negotiation.

• It places equal value on expertise andexperience and seeks to integrate knowl-edge from different disciplines into a holisticstrategy.

The Basics of Planning for Citizen-Centered Advocacy

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5Key Steps or ‘Moments’ ofAdvocacy Planning

Many approaches to planning call the phasesof planning “steps,” and present them sequen-tially. However, advocacy planning involves alot of “two steps forward, one step backward.”For example, you may begin with a macro-analysis of the context in which you are oper-ating, but as you learn more about your issuesand policymaking, you will also learn more

about the context and will then go back torefine your analysis. Because of this, we callthe planning phases “moments” rather thansteps.

Though they are not linear, there is a certainsequence to the moments of planning. Forexample, it helps to begin by looking inward(organizational self-assessment) and thenmove to looking outward (contextual analysis).

The iterative process of advocacy planning

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With participatory planning, it is not just thecontinual analysis that makes the processspiral rather than linear. It is also the fact thatplanning involves different people with differentand sometimes conflicting interests.

The following moments are covered in PartsTwo and Three of this Guide:

Personal and Organizational Assessment

We start with a self-analysis by the organizersand advocates. We then move to organiza-tional assessment by looking at its vision,mission and strategies, and developing a long-term political vision to guide advocacy plan-ning. (Chapter 6)

Contextual Analysis

This involves understanding the politicalcontext at the local, country, regional, andglobal levels. It includes discussion of visibleand invisible power dynamics that marginalizesome groups from the political process. (Chap-ter 7)

Problem Identification and Analysis

In this planning moment, groups define andprioritize their problems for potential advocacy.It involves important decisions for citizens andis key for building the constituency. (Chapters8 and 9)

Choosing and Framing the AdvocacyIssue

The analysis of problems and exploration ofpossible solutions helps groups to slice a bigproblem into manageable advocacy issues.Framing the issue is about describing yourcause in order to have wider public appeal.(Chapters 9 and 13)

Long-term and Short-term AdvocacyGoals

The long-term goals specify the political,

economic and social changes the advocacyefforts seek to accomplish. These goals estab-lish the basis for setting maximum and mini-mum positions for negotiations withdecisionmakers. The short-term goals describethe desired outcomes for the specific advo-cacy solution. (Chapter 10)

Power Mapping

This moment of analysis helps planners iden-tify the targets, allies, opponents, and constitu-ents for their advocacy. It examines stake-holder interests, positions, and conflicts. Itreveals hidden mechanisms of power thataffect marginalized groups’ participation aswell as important allies within decisionmakingstructures. Power mapping is essential forplanning, negotiating, and calculating risks.(Chapters 10 and 12)

Policy and Situational Research

This moment involves gathering informationabout the policies, laws, programs, and bud-gets shaping your issue, and about its causesand the people it affects. This information willmake your advocacy clearer and providematerial for your media, outreach, lobbying,and negotiations. (Chapters 8 and 11)

Advocacy Objectives

With the power maps and policy information,you can draft a set of advocacy objectives.These will spell out the desired changes inpolicy and decisionmaking structures, as wellas how you will use political space, andstrengthen citizen engagement. Finally, theyindicate how the advocacy will ultimatelyimprove people’s lives. These objectives arecontinuously refined. (Chapters 10 and 11)

Activities, Actions, Tactics, andImplementation

Advocacy objectives help you define actionstrategies. The nature of the political environ-


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ment, opponents and targets will inform yourmedia, outreach, lobbying and negotiationtactics. (Chapters 10 and 11 and Part Three)

Measuring Progress and Adjusting Action

Ongoing evaluation helps to ensure that advo-cacy responds to political opportunities andfollows organizational priorities. Evaluationallows groups to adjust their actions to chang-ing situations.

The Importance of Participationin Advocacy Planning

How planning is done is just as important ashow well a plan is defined. There are manyreasons why participation is critical for effec-

tive advocacy. When we focus on buildingcitizenship, two reasons stand out. First,planning is learning and decisionmaking. Manyinitiatives that claim to be participatory actuallyconsult people, but the real decisions aboutplans and directions are made elsewhere.Being involved in making decisions is key toempowerment and creates ownership, motiva-tion, trust, and impact. Participation by staff,board, and constituents in all aspects of plan-ning helps to:

• generate commitment;

• create shared ideals and directions;

• speed up action (but may slow progressinitially);

• surface and cope with conflicts and differ-ences;

Tips for Effective Advocacy Planning

Use Simple ToolsAnalytical frameworks and role play exercises presented in the Guide enable groups of people to thinkcreatively 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 JargonTerms such as gender equity, democracy, empowerment, women’s rights, and mobilization are complexideas that different people understand in different ways. It helps to discuss them in detail to identifydifferences and similarities in interpretation before beginning to plan. Defining key concepts enablespeople to interpret and give their own meaning to citizenship and politics. Part One offers suggestionsabout how to do this.

Involve FacilitatorsYou may want to have a facilitator assist the planning process within your organization or coalition. Anexternal and skilled person is often helpful when planning brings together different organizations withdifferent interests and contributions.

Keep It DynamicGood planning is made of equal parts of information, excitement, commitment, and participation. Findways to involve everyone in different tasks.

Bring Values and Assumptions to the SurfaceDifferences, power imbalances and hidden stereotypes cause misunderstanding and conflict that willslow down planning and action. Begin your planning with the introductory exercises from Chapter 6 orthe Annex. Deal with these matters openly when they arise. Also see discussion of conflict managementin Chapter 16.

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• assess political risks;

• improve organizational accountability; and

• increase self-confidence and criticalconsciousness.

Secondly, participation in advocacy planningprovides new citizenship experiences andskills in such areas as:

• analyzing problems, power, and context;

• setting objectives;

• locating resource;

• preparing budgets;

• leading meetings;

• organizing campaigns;

• identifying and negotiating diverse inter-ests;

• collective problem-solving;

• speaking in public; and

• evaluating accomplishments.

Citizen-centered advocacy is based on thepremise that participation in publicdecisionmaking is a right. Participation in

advocacy planning begins to give shape andmeaning to this right for citizens.

The kind of participation may differ at differentstages in the planning process. In the earlystages of choosing issues and defining solu-tions, constituents, and allies can be fullyinvolved. As you move into the fast-movingpolicy arena, the pressure for quick responsesto opportunities may make full participationmore difficult.

Participation is empowering only when thosewho participate make decisions and choices.

Making Participation Work

There is general agreement that active partici-pation by intended beneficiaries—such as poorpeople, women, and workers—in planning isnecessary for lasting success both in terms ofempowerment and social change. Everyonefrom water-user groups and women’s rightsactivists to the World Bank is calling for moreparticipation. Participation is a buzzword that


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5has many meanings depending on who isusing the term. The typology on the followingpage explains how the word ‘participation’ isused to describe very different processes withvery different results with regard to power,empowerment, and learning.

Although there are no perfect models, somepeople see ideal participation as one whereeveryone participates equally. But people’scontributions are not equal—people participatein different ways and make different kinds ofcontributions. In order to enable differentperspectives to be heard, it is essential toacknowledge how differences can translateinto unequal power dynamics, and then adjustthe dynamics to facilitate more equal communi-cation and decisionmaking.

Here are some points to consider in makingparticipation work:

Look At Who’s Involved

Participatory planning will involve the followingpeople in different moments:

• staff and volunteers, directors, and board

• members and affiliates

• constituencies, including excluded groupsthat will benefit from advocacy

• partner organizations involved in theadvocacy effort or related issues

• individual and organizational allies

Value Diverse Perspectives

Ideally everyone should have a voice in decid-ing the broad direction of the organization andstrategy. The selection of the issue and morespecific aspects of planning may require asmaller group who can represent the concernsof others at some stages in the planningprocess. Differences also bring debate anddisagreement into the planning process. SeeChapters 8, 15, 16, and the Annex for tips onconflict, prioritizing, and consensus-building.

Involve Constituents

It is particularly important for constituents—those most affected by the problem—to beinvolved in choosing and analyzing the issue,exploring strategies, leading meetings, speak-ing in public, organizing events, and otherroles (see Chapters 8 and 14).

Engagement and Participation

“Engagement in social and community participation hasinevitably brought citizens in closer contact with theinstitutions and processes of governance.Conversely, leaders of projects, programs andpolicy research initiatives have increasinglysought the voices and versions of poor peoplethemselves. Where citizens have been able totake up and use the spaces that participatoryprocesses can open up, they have been ableto use their agency to demand accountability,transparency, and responsiveness fromgovernment institutions. . . . These moves offer newspaces in which the concept of participation can beexpanded to one of ‘citizenship participation’, linkingparticipation 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.

PoliticalParticipation

SocialParticipation

Citizen Participationor Citizenship

ParticipatoryMethods

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Build Trust

Trust emerges through open communicationand respect for different talents and perspec-tives. Some groups outline participants’ re-sponsibilities in a pact or agreement. In thispact, constituencies mandate leaders to act ontheir behalf during fast-paced moments ofadvocacy when full consultation is impossible.

Use Interactive Dialogue

Often the most constructive learning andplanning will use a series of open questions ora simple framework for structured discussion.

Listening is as important as speaking, andoften, encouragement to speak involveswaiting in silence for a voice.

Work in Small Groups

Wherever possible, work in small groupswhere each individual can speak more easily.Be conscious that gender, age, and otherfactors may make it difficult for some people tovoice their opinions. Follow up with largermeetings to pull together the contributions ofthe small groups.

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


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5Use Participatory Needs Assessments

Participatory community needs assessmentand surveys enable grassroots groups to beinvolved in assessing their situation andchoosing the issues and solutions to theproblems that affect them. Because they livewith the issues, they have important insightsabout why a problem exists and what wouldsolve it. They also have the anger and motiva-tion to push hard for change (See chapter 8).

Integrate Experience and Expertise

Generating decent solutions requires a combi-nation of practical know-how and theoreticalexpertise where both kinds of knowledge arevalued and examined. Marginalized communi-ties have the knowledge of firsthand experi-ence, yet they often need more information tomake good choices and formulate arguments.On the other hand, college-educated advo-

cates may have theoretical and factual knowl-edge, but they will not usually have the per-spective or understanding of local problemsthat community people have. Sometimesexperts are stuck in boxes (a single discipline)that do not provide coherent explanations oranalysis. When different groups work togetherin advocacy, they need to respect each other’sperspectives, interests, and contributions, andfind ways to make decisions together thatintegrate their knowledge.

Schedule Time for Planning As Part of theStrategy

Allocate adequate time for participation andinclude planning as a regular activity in youradvocacy timeline. Use these planning mo-ments for education, consciousness-raising,and building organization.

Balancing Perspectives

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 differentroles. Each of these perspectives makes a vital contribution to advocacy; however, there is often atendency to value some more than others. It is critical that advocacy leaders not allow these differencesto 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 todominate the planning agenda.

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Global and National

National and Local

Local

Levels of AdvocacyPlanning: Local toGlobal

Many of today’s advocacystrategies require planning andaction on more than one level of policymaking.For planning on a global level, for example,face-to-face discussion and decisionmakingare more difficult. While information technologyhas made global and regional planning easier,it has also reinforced inequalities. The furtheran advocacy planning process extends be-yond the local level, the more it is necessary tohave multilayered systems of consultation,communication and feedback.

Local

Participatory planning is sometimes easiest atthe community, neighborhood, or city levelwhere face-to-face interaction is not compli-cated by distance.

National

Often, planning for national level advocacyinvolves coordination of different organizationsthat serve as intermediaries for a variety ofcommunity-based and local groups. Nationaladvocates rely on their allies to be in touchwith local groups and involve them in analysis,planning, and decisionmaking. National advo-cates need to remember that participatoryplanning takes time and should be careful totake this into consideration in their timelines.

Regional

Regional planning efforts entail communicationamong the participants at different levels.Again, timelines need to accommodate discus-sion and decisions across borders. TheInternet is often useful for regional advocacyplanning. However, regional organizers need tomake sure that groups without Internet accessare fully informed and can offer input.

Global

Like regional planning, global processes needto coordinate and provide information andfeedback to the different players so that thefinal planning decisions include input from alllevels. This input is crucial since some part-ners will be taking on greater risks than others.Their opinions need to be included to avoidunnecessary danger. Internet access is usu-ally crucial for this level of work.

Multilevel participation in planning and carryingout global advocacy helps to:

• build new forms of citizenship that in-crease the voice of excluded groups;

• give legitimacy to people’s voices in theeyes of global policymakers;

• create a network to monitor and enforce-ment so that global policy promises be-come real at the national and local levels.

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Chapter 5: The Basics of Planning for Citizen-Centered Advocacy