Episode Description
Our episode today focuses on anti-corruption messaging: what messaging has looked like in the past, the challenges and risks it poses, and novel approaches that could yield better results. Holly Sandalow, Program Officer at CIPE’s Anti-Corruption & Governance Center, sits down with Caryn Peiffer, Associate Professor in International Public Policy and Governance at the University of Bristol, and Nic Cheeseman, Professor of Democracy at the University of Birmingham, who have authored the new How-to Guide to Anti-Corruption Messaging in partnership with CIPE and with support from the National Democratic Institute.
Anti-corruption campaigns have been a staple of both foreign aid programming and civil society over the last 30 years, and there is often an element of awareness-raising that involves producing messages about the harm that corruption can do. There is growing concern, however, that anti-corruption messages may be ineffective—or even do more harm than good—in part because they are not being tailored, targeted and tested to make sure they have the desired effect.
Drawing upon their own research and studies by fellow academics about the impacts & efficacy of anti-corruption messaging, Peiffer and Cheeseman discuss the risks of deploying messages that have not been rigorously tailored, targeted, and tested. Listen in to hear what ideas they have for crafting more effective messaging campaigns.
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Transcript
Announcer  (00:02):
The Democracy that Delivers podcast is brought to you today by the Anti-Corruption & Governance Center at CIPE. This is the podcast where we talk about corruption in its many forms. And now to your host.
Holly Sandalow (00:17):
Welcome, everybody to the Democracy that Delivers podcast here at the Center for International Private Enterprise. My name is Holly Sandalow, and I’m a Program Officer at the Anti-Corruption & Governance Center at CIPE. This episode is part of a continuing series of podcasts put on by the Anti-Corruption & Governance Center that’s focused on any relevant anti-corruption issues that are of interest to the broader global anti-corruption community. Today, the conversation will be focused on anti-corruption messaging. What has it looked like in the past? Issues and challenges with traditional approaches, and the new approaches that could yield better results. To that end, there’s a new resource guide available from CIPE aimed at helping anti-corruption practitioners craft more effective anti-corruption messaging campaign. I have the pleasure to introduce two very special guests who have also authored this guide, Nicholas Cheeseman, a Professor of Democracy at the University of Birmingham, and Caryn Peiffer, an Associate Professor in the International Public Policy and Governance at the University of Bristol. It is great to have both of you today.
Caryn Peiffer (01:22):
Thanks very much, Holly, for having us.
Holly Sandalow (01:24):
Of course, we want to discuss the newly published How-To Guide to Anti-Corruption Messaging, but I wanted to start with a bit of background and set the scene related to anti-corruption messaging efforts. Could you give us a sense of where we’ve been in terms of who produces anti-corruption messaging campaigns and what some of the defining characteristics of those campaigns have been?
Caryn Peiffer (01:45):
Sure. So governments around the world, NGOs like Transparency International, often with the support of foreign aid donors produce anti-corruption messaging. And this is something that’s actually in the UN Convention against Corruption. In there it says that all signatory states should be engaged in anti-corruption messaging. So most anti-corruption strategies have an awareness raising or messaging or strategic communications component. And these are often in the shape of billboards, posters, but also films, plays, even TV and radio shows with the aim sometimes of just raising awareness about the problems of corruption and trying to encourage people to engage in anti-corruption efforts like reporting corruption.
Holly Sandalow (02:33):
In the How-To Guide, you also focus on what you call the three T’s. Can you unpack what it means to tailor target and test anti-corruption messaging and how these three T’s can improve the impact of messaging campaign?
Caryn Peiffer (02:46):
Sure. So tailoring a message is about tailoring so that it hopefully resonates as best as possible with your audience. And so this is making sure that, for example, it’s chiming with how people see their role as beings, maybe an anti-corruption advocate or just even how they think of the state. And the messenger itself targeting a message though is making sure that it’s reaching those that you care most about influencing either their behavior or their attitudes around corruption. So we argue that for an anti-corruption message to be effective, it’s got to be tailored effectively and targeted effectively. Those really work in conjunction. Additionally though, we argue that all messages really should be tested, and this relates to the fact that while studies on anti-corruption messaging are growing, they have so far pointed to a risk that they can potentially backfire because of this. The suggestion here is that we have to test messages first to make sure that they’re not having unintended impacts or having the opposite impact to what we would want when they’re deployed in the field. So that’s why we emphasize tailoring messaging, targeting messaging, and finally always testing messaging.
Nicholas Cheeseman (04:02):
And maybe just a quick two-finger on that great response from Caryn. I think one of the things that then is really important to think about is what’s the generic kind of anti-corruption messaging that we might be used to? And sometimes we see really clever anti-corruption campaigns that are really targeted maybe using social media, et cetera. But sometimes we see really overarching campaigns, big billboards, big messages on the side of a bus, things in the newspaper, big posters outside government buildings. And of course, one of those things that’s very difficult to do if you’re doing that very overarching generic kind of messaging is to carefully target and to carefully tailor your messaging. So one of the things here I think it’s really encouraging us to think about is do we really need to be thinking about moving away from that really generic anti-corruption strategy to really thinking about perhaps more specific focused nuanced campaigns in which it becomes possible to do the tailoring and the targeting, and therefore, making sure that the messaging is more likely to have a positive effect and is less likely to backfire.
Holly Sandalow (05:05):
And you’ve both mentioned a little bit about the backfiring. If you could expand on what those risks are when you have poorly designed anti-corruption messaging campaigns and examples that you might have seen in your past research.
Caryn Peiffer (05:20):
So I think there’s a couple risks that the research points to. The first is that messaging might actually be unimpactful. So if it did that, then we’re worried that there’s sort of a waste of money there. But then the second risk, as we alluded to earlier and as you’re asking about is this risk of backfiring or having unintended impacts. So there’s two risks that the research really points to you. The first is that messaging might be unimpactful, and the second is that messaging might actually backfire. And with respect to backfiring, we think there might be two reasons for this. So the first is that messaging might make people think more about the problem. And when people think more about the problem of corruption, they can become even more overwhelmed, think more pessimistically about corruption ever being able to be solved. They also might think that it’s more socially normal to engage in corruption than what they previously did.
(06:14):
And so that can make them also maybe encourage them to engage in corruption rather than to discourage them. But the risks here are related to very specific anti-corruption messages. So the research so far points to it’s actually messages that highlight the problem, well, are most problematic. Nic and I have studied this through a number of survey experiments, the first in Lagos and then the second in Albania. And I’ve conducted studies in Indonesia and Papua New Guinea on this as well. So the way it works is we expose people to a message or several messages, and then at least one group of people, we don’t expose them to a message at all. And we can see the impact of messaging based on whether or not people who were exposed to a message have different responses either in a survey or some behavioral test than those that weren’t exposed to a message at all. So maybe Nic, do you want to talk about our Lagos study as an example?
Nicholas Cheeseman (07:10):
So yeah, one of the ways that you want to test this is obviously by asking people questions about how they feel about corruption and show them the message and then you gauge their feelings afterwards. But in a sense, the gold standard is actually to be able to see whether or not after receiving a message, they changed their actual behavior. One of the things that we tried in the case of Lagos was actually to play a game with people after we showed them the message, or of course in the control group didn’t show them a message. And in that game, basically we had people playing for money and they were basically told that they had two options. They could play the game the way the official rules were basically set out, or they could play that game in a different way by offering a small bribe to someone that we framed as a hypothetical banker figure in return for the banker, basically, diverting more of the money to them than to another player who was playing the game.
(08:01):
Now, there were a number of features of this that we thought was really interesting and made this a stronger test than just asking people whether or not they would report corruption and so on after showing them the anti-corruption message. One was that we played for real money, so people had real money at stake. These were people in many cases who weren’t particularly wealthy, so there was real money on the line, it would be a better test of how people would really respond. The second was that the way the game was set up, people thought that there was going to be another individual playing who would lose out if they actually bribed. So there was a real, as it were, moral cost here. There was a real implication of another player who would get less if they got more. And in that sense, we upped the stakes of the game.
(08:43):
So these two things we thought would make this a much more effective, a meaningful test than simply asking people whether or not they were more likely to engage in anti-corruption efforts. And one of the things that we found as Caryn’s already essentially said is that people who received the descriptive anti-corruption messages, the messages that really emphasize the corruption is really bad. It’s all pervasive, it’s having very bad effects. People who received that message became more willing to pay the bribe in the game, not less. So this is really demonstrating not just that certain anti-corruption messages might not have an effect and therefore potentially be a waste of money because they don’t actually galvanize people against corruption but might actually be doing more harm than good.
(09:26):
Encouraging, as Caryn was saying, a sense of either apathy or a sense of actually corruption is more socially acceptable, and then actually encouraging people through those mechanisms, which may be happening subconsciously rather than consciously, encouraging those people to actually be more willing to pay a bribe in a game. Now of course, there’s a gap between paying a bribe in a game and paying a bribe in real life. And you always have to be careful when you extrapolate from these kinds of studies. But the fact that real money was involved and that it simulated a real world situation and that someone else lost out means that we think that’s a particularly significant finding of the research that’s been done so far.
Holly Sandalow (10:04):
Thank you. And I think that lays out a lot of the potential risks to some messaging, although well-intentioned in this fight against corruption can obviously backfire. To ensure that we don’t deter our listeners from the great well-intentioned, anti-corruption messaging efforts that they’ve worked on so far, could you also speak on the potential upshots? Why would the public officials and civil society organizations behind messaging campaigns choose to navigate substantial risks? In other words, what could an effectively design anti-corruption messaging campaign do for a country and society?
Caryn Peiffer (10:39):
In ideal terms, an anti-corruption message would fulfill its policy aims, and there could be several different policy aims for an anti-corruption messaging campaign. For example, as we’ve talked before, it might encourage people to report corruption, but also to resist opportunities to engage in corruption. It could also make people think differently about their relationship to their government, to politicians. It might encourage them to vote corrupt leaders out of office and hold leaders accountable in other ways as well. So I think there’s a lot of potential benefits of anti-corruption messaging. In short, messaging to the general public is one of the few tools we have to try and change the way that citizens think about issues and to try and make transparent government’s efforts in anti-corruption and to celebrate those efforts as well.
Nicholas Cheeseman (11:35):
And that’s particularly important because we have a lot of research now in anti-corruption moving beyond messaging that tells us that in established corrupt systems with deep clientelistic practices, politicians may not have very strong incentives to actually change the way that they behave. If they know that other politicians in the system are likely to protect them, if they know that anti-corruption institutions are weak, there may be relatively few incentives within the system for politicians to amend their ways and adopt cleaner politics.
(12:04):
So one of the things that obviously is going on here is the idea that if we can actually incentivize and encourage and persuade and inspire citizens to demand better government, that creates pressure on political leaders who then have to respond. In the absence of that pressure, they may continue to behave in the same way and therefore, in many cases we see the idea that awareness raising should be a core component of the campaign. The good news is that we’ve actually found, and others have found that not all messages have the same effect. And so there’s a potential here to take the research and actually turn it into a very positive direction by, as we talked about at the beginning, tailoring and targeting messages and developing messages that are least likely to have these negative effects or no effects at all, and most likely to have the positive effects that we’re looking for.
Holly Sandalow (12:50):
And what are the ways that anti-corruption practitioners who are interested in undertaking a messaging campaign can use the How-To Guide to advise their approach?
Caryn Peiffer (13:01):
Thanks. Yeah. So the How-To Guide, we’ve tried to think about every stage in this process of deciding if messaging first is right for the aims that you’re seeking. So if your aims are to change how citizens think and believe for example, or think and act, then perhaps messaging might be appropriate. But if it’s a different aim that maybe isn’t as clearly connected to how messaging could impact it, then we would suggest maybe thinking about messaging fitting in a different space, working perhaps alongside a different kind of policy strategy. Then we talked as before, the importance of tailoring and targeting messages. So getting to know your audience, knowing what they think and feel, and also thinking about the ways in which messaging can resonate most with the audience. We talked about also in the How-To Guide some overarching design principles. So making sure messaging is clear, concise, and consistent.
(14:02):
There’s some examples in the How-To Guide a messaging in practice that sometimes miss the mark, but are also some good examples of things that seem to have worked really well in a variety of countries. We talk about of course, avoiding negative messaging about the extent of the problem as that being the big risk for backfiring, certainly avoiding blaming or shaming the audience. So not emphasizing citizens’ negative role in perpetuating corruption that cannot resonate for seemingly obvious reasons. And we also talk about considering credible positive messaging. So this would be for example, messaging that emphasizes how much resolve there is amongst the public against corruption, how much people disapprove of corruption.
(14:52):
Some research suggests that that can be a really positive avenue for messaging to emphasize. And finally, we also talk about how the messenger matters too. Also, messages can articulate a clear call to action. So that can be helpful because giving the audience a way forward, something that they can do can counteract any sort of feelings of hopelessness. So those are some of the themes that we walk people through in terms of how to design messages and considerations they might make in designing or targeting and tailoring the messages.
Nicholas Cheeseman (15:32):
And I think that the real takeaway, even if people don’t have the time to think everything through or do all the testing and et cetera, that we will advise is that as far as you can move away from generic messaging about how bad the situation is and about how pervasive corruption is and move towards this slightly different kind of messaging that’s really emphasizing the extent to which citizens are against corruption. It doesn’t necessarily have a positive effect, but it does seem to be maybe a bit less likely to have a negative effect. And that may be is the one key takeaways. But I think also there’s a really important point in the report and we talk at the end about a life cycle of an anti-corruption program, about we need to be as a community more systematically testing what works and what doesn’t, and then feeding that back in.
(16:19):
So that we actually start to really build a really effective database of the different messages that people have used, how effective they were, whether or not they had unintended consequences so that we can start to really understand which are the kinds of messages that have the effects we want and which don’t. And one of the things that I think is then really important to talk about is what does it mean to actually test the effectiveness of a message rigorously? And that’s something that Caryn’s been a real pioneer of during her career. So maybe back to you Caryn, to talk a little bit about what’s the actual way that you test a message to really get a sense of whether or not it’s actually having an effect or not.
Caryn Peiffer (16:55):
Thanks, Nic. Yeah, sure. So testing a message to make sure that you can be confident that it’s having the effect that it’s having. The only real way to get out that which we described clearly in the How-To Guide is through an experimental test. So as described before, survey experiments can help with this, and this is where you’re exposing one group of people to a message and another not. And then by comparing their reactions to this messages, you can have a lot of confidence that the message itself is having a very specific effect. We also outline other ways to approach different tests from messaging though. For example, we talk about the role that focus groups can play, for example, in vetting potential messages to see if they’re resonating potentially with the right audience. Though there’s some pros and cons to doing it with focus groups, especially because you just can’t be sure that the responses they’re giving in a focus group are their true reactions.
(18:00):
They might, for example, participants of a focus group might, for example, wish to say something that the rest of the group agrees with. Surveys too can be useful for getting to know your audience. So just a standard survey can help to see what people think about corruption and what they feel and how they feel about anti-corruption. And potentially, even how, for example, they might feel about different potential messengers of anti-corruption messages. So that can be really helpful for informing any targeting strategies for a message. But experimental approaches are best placed to tell us with any confidence what impact a message is likely to have.
Nicholas Cheeseman (18:46):
And I think this is a really good point maybe to communicate to people much more broadly than just the anti-corruption side, which is there is a big risk that if we bring people into a focus group, whether it’s on democracy or corruption or anything else, and we let people know the point of the focus group and we let people know the organizations we work for, and then we ask them if they feel like they want to fight corruption that they tell us they do because they think that’s what we want them to think. And so the risk for me and other work that I do on democracy or this work with Caryn on corruption is if you go in and you let people give a clear sense of the kind of findings that you probably want, which is that they become more willing to fight corruption and so on, there’s a tendency perhaps for people to want to give you that and therefore people might be likely to overestimate the extent to which messages have a positive effect or would’ve a positive effect on the rest of society.
(19:36):
And so we have to be really careful in how we actually assess what’s likely to happen when we show people messages. This has been really innovative and fantastic research recently, for example, showing the effect that having a researcher in a room can have on how people play a game or how people respond to questions and how researchers from different countries actually can shape the responses that people give in focus groups or in games that are played in laboratory conditions. So I think one of the things that we increasingly need to realize is that there’s a big risk that if we don’t actually use scientific experimental methods that we may find from our focus groups or discussions a lot of positive feedback for what we want to do. But that might be slightly misleading in terms of how accurate that is of actually how most people are going to respond really if they actually see this message on a billboard or on their mobile phone in real life.
Holly Sandalow (20:31):
Definitely. And it’s great that you laid out the importance of measuring effective anti-corruption messaging as one of those aspects to consider as people approach their campaigns. I’m curious, Caryn, you’ve spoken before about your experience getting into field of anti-corruption and at one time understanding the logical function that corruption serves in places, which is to maintain a form of patrimonialism while also working for some organizations in the anti-corruption space that maybe didn’t fully understand the logical function and rationale of corruption. Could you speak on the need for anti-corruption practitioners globally to understand the social and cultural contexts they’re working in and how anti-corruption messaging campaign should be considered in those dynamics?
Caryn Peiffer (21:20):
Thanks, Holly. Yeah, I think the awareness has always been there. I don’t think that there has been a lack of understanding, but instead maybe policy seemingly didn’t take that into account. And I think recognition that anti-corruption programs need to be contextually sensitive and sensitive to a range of issues like gender sensitive and so on. That’s grown substantially since I started out. I think for anti-corruption messaging, this is really important to consider as well. So this, for example, it relates to this importance that messages to work really should resonate with the audience. And so you need to know the context before they’re designed and before they’re communicated. And Nic and I have suggested in the guide that actually working with people and local organizations to help co-produce these messages can be a really effective way to try to make sure that anti-corruption messaging that’s maybe supported from abroad is resonating in the right ways.
Holly Sandalow (22:26):
Nic, you’re a professor of democracy at the University of Birmingham. You’ve written a book titled Democracy in Africa. I’m curious in your view of how anti-corruption messaging fits into democratic systems of government versus authoritarian systems of government. Nominally any government would want to claim that they’re against abuse of positions of public trust for private gain. But what is your experience in terms of efficacy of anti-corruption messaging campaigns within different systems, some of which you have a lot of familiarity with?
Nicholas Cheeseman (22:59):
Thanks, that’s a fascinating question. I mean, I guess the first thing to say is overall I feel like there is a positive relationship there. If you look at the most democratic countries in the world, they do tend to be less corrupt. And if you look at the least corrupt countries in the world, they tend to be more democratic. If you look at the most corrupt countries in the world, they tend to be more authoritarian. That’s using the kind of general measures of corruption that we have and democracy that we have, of course, which have limitations. But based on that data, those patterns are there. But although that’s there in terms of the general overarching trends, it is also true that corruption is present obviously in a number of democracies just as it is in a number of authoritarian systems. And one of the things that I think has undermined popular confidence in democracy in a number of countries in Africa recently has been the coexistence of serious economic hardship and high level corruption scandals.
(23:55):
And we only need to look at Kenya where young people and others have been on the streets in June and July with 39 people killed, demanding a reduction of the cost of living, demanding better government performance, but also demanding an end to the corruption. That means that systems of government are poorly performing but also overly expensive. And I think there we can really see the rubber hitting the road on popular anger and frustration with corruption being endemic and being one of the key factors that very clearly is increasing taxes and fees because you have to provide more funds to a government that is wasting them and mismanaging them and stealing them. And so I think it is one of the big issues of the day. Now that raises a really interesting question, obviously about how do you harness responses? How do you inspire people in context like that to be able to believe that things are possible, that change is possible?
(24:48):
And I think one of the things that is certainly true if you look at the survey data from a lot of countries is that a lot of people believe that their countries are endemically corrupt, and they also believe that it’s very unlikely their countries will ever not be corrupt because they’ve seen so much corruption for so long, they’ve seen new governments come and promise anti-corruption mechanisms and that they haven’t actually been successful. And so the level of pessimism is quite high. And that’s particularly important because one of the things that Caryn and I have found in some of our work is that people who are pessimistic are actually the most likely people to react negatively to some of the messages that we’re testing. And it’s that kind of inbuilt skepticism and assumptions about the difficulty of dealing with corruption. That means that when people see a message that primes them to think about corruption, they might respond in these more cynical ways rather than joining movements to fight corruption.
(25:40):
So what does it mean to actually be able to get people engaged positively, proactively? I think one of the things that needs to happen, and again, this comes out really powerfully I think in the How-To Guide is not simply to communicate messages about corruption in the abstract, but to connect them to a broader theory of change. In other words, if you’ve got an anti-corruption commission that’s actually starting to prosecute people, and not just people who are in the opposition, but across the board of all political stripes of corruption, that can be a really positive message that you can then harness to an anti-corruption messaging campaign around popular anger and frustration and belief against corruption. And then you can also try and enhance the ability of people to report corruption by creating new mechanisms through which you can do so and perhaps passing whistleblower legislation that makes it easier to protect those who come forward and actually speak about corruption.
(26:34):
But a critical point is that those things need to happen together. One, to give people the belief that actually change is possible and to give credibility to more positive anti-corruption messages, but also to make it more feasible for them to actually be able to do something proactively that contributes to the fight against corruption. And messages I think that don’t actually come alongside all of those other kinds of reforms and interventions that are sort of isolated and done on their own. Those are the messages that my senses are probably most likely to have no effect or to backfire.
(27:06):
So one of the things I think that really then leads us to think about is, okay, let’s think much more carefully about what we’re trying to achieve with those anti-corruption messages. Are we trying to get people to actually report more corruption? If so, are we doing things to strengthen and improve the mechanisms for which they can do so safely? Or are we trying to encourage them to vote for anti-corruption leaders? If so, are anti-corruption leaders on the ballot? Are they actually available to people? Have we provided, for example, scorecards on corruption so citizens know which of their candidates and leaders are most likely to do a good job of that? Is thinking through those different kinds of goals, thinking through those theories of change, and then integrating anti-corruption into those broader programs. That I think is the big challenge perhaps for our future years.
Holly Sandalow (27:51):
Well, Nic and Caryn, thank you so much for walking us through a little bit of information on the three T’s, just more in depth in your How-To Guide, the importance of measuring the impact of campaigns and using focus groups and other methods to make sure that we’re tracking the effectiveness of those campaigns and understanding the social and cultural contexts within the societies that we’re trying to make change in. In addition to this How-To Guide, you’ve put together a curriculum. If you could just provide a little bit of information for our listeners on how to get engaged with the curriculum, what it offers, and what benefits they can see if they participate in that full day or half day session.
Nicholas Cheeseman (28:34):
Absolutely. I mean, we know that just hearing people talk about it like this can make people maybe interested in the issues, but it’s very hard to communicate exactly how you might want to go about testing anti-corruption messages and designing them in the context of a podcast or even a How-To Guide as carefully as we’ve written it to try and make it easy to follow. So we designed a curriculum that basically takes people through all of these steps, so it can either be a half day tailored to that or it can be a full day. And we basically take people through first of all the research and the evidence base, but then it’s very practical. How can you design an anti-corruption strategy and anti-corruption message? What would be the kind of things you would want to do in the first place? What kind of goals are you trying to achieve?
(29:17):
How can we then actually design a message? And so the course actually culminates in people designing their own message within the context of the course for the feedback of the expert team that we put together around everybody else around the table so that we can then actually get a really great conversation going about the kinds of messages that are most likely to be successful in different contexts. So it’s not only a curriculum that really walks you through these measures and gives you a lot more understanding and ability to do the things you’ve been talking about today, but hopefully, it’s also a curriculum that by the time you get to the end, you’ve actually had a go at designing a message that connects all of the dots that we’ve been talking about and has had some really positive feedback. And you can leave with a much clearer sense of what you might want to do in the future.
(30:01):
And as I said, that’s a half day option or a full day option, and we think that’s really the most effective way of learning the lessons of the How-To Guide, and then being able to turn them into something that’s very practical and used in your own messaging. And we are very keen to hear from people who might be listening to the podcast or might be reading the How-To Guide, who would be interested in having those sessions for their own organizations. Obviously we believe in this research, we think it’s important. It’s important not only in the fight against corruption, but also it’s broadly important in terms of making sure that resources that are scarce are spent on things that are really going to help, and therefore, we’re very keen to make that information available and to offer those workshops and sessions to whoever might be interested.
Holly Sandalow (30:41):
Thank you so much, Nic and Caryn. It was such a pleasure speaking with you today and having you on our podcast and walking us through the importance and impact of effective anti-corruption messaging in our global fight against corruption. For more information, please visit the site webpage to find the How-To Guide on anti-corruption messaging and information on how to sign up for those half day or full day sessions or private briefings, more information on the site. Thank you.
Caryn Peiffer (31:09):
Thanks, Holly.
Nicholas Cheeseman (31:10):
Thanks, Holly.
Announcer (31:12):
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Published Date: August 21, 2024