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Problems of Information Services:  Role of information in provincial development

Neither those providing services or the users are satisfied with the situation at present and all wish to see real improvements so that greater benefit could be obtained from the information already available. Positive contributions to alleviate existing problems exist but these need to be coordinated to minimize duplication of effort and wastage of scarce resources.

Problems arise from: -

- historically, a vacuum followed from the closing of the office of Information and Extension Services. This had been compounded be closing or absorption of sections and the departure of key staff.

- lack of clear objectives for existing services leading to an inability to plan or to identify core issues and appropriate strategies, channels and levels of communication.

- a low priority for information within the province and subsequent neglect and a lack of policy support

- a lack of resources ( manpower and finance) to initiate and maintain an effective and comprehensive information network

- Despite a lack of interest in improving services there was also "interference" in services from those in political power and the need to obtain approval for information items from higher up which was not all that easily obtained.

- ineffective and inappropriate communication infrastructure

- lack of clear definition of target groups for information dissemination.

- lack of clear identification of source of information

- ineffective, old fashioned and inappropriate methods of information dissemination and inadequate processing of information for use and the level of jargon used.

- within government reports and policies were being produced but not being fully debated making it very difficult to inform people about them.

- duplication of resources within an accompanying lack off co-operation and coordination and communication amongst division and between national and provincial agencies.

- extension service and face to face work was either not being done on an ad-hoc basis; officers were talking down to people; liaison officers were not contributing fully.

- distribution of printed materials and also of oral information was often poor so that some of what was being made available was not being passed on.

- a society oriented to oral communication rather than a reading society; in addition the oral system had its own characteristics, favoured rumours and was prone to abuse.

- barriers imposed by illiteracy resulting in misinterpretation of information

- a lack of evaluation and research on communication strategies and a lack of evaluation of information activities carried out.

- the nature of material available, propaganda, foreign and uninformative matter, a lack of timeless, television and video programmes that affected literacy, culture and traditional ways of life and other developments.

- lack of continuity in collection and currency of data collected and processed by data services.

- lack of copyright legislation.

At the seminar Mr. Jack Lahui outlined the intricate nature of the publishing industry involving as it did authors, printer, publishers, government agencies, etc. It was also an industry that cris-crossed national boundaries and whose operations adhered, in most cases, to international agreements and conventions. Here were issues such as copyright (not observed here) and ISBN ( sometimes observed). The field of publishing was divided as a result and foreign agencies were involved in addition to indigenous ones.

The creation and work of the Literature Board was meant as a device for harnessing the talents and voices of Papua New Guinea writers. Uli Beier after his African experience was responsible for much initial activity. Mr. Lahui mentioned the National research institutes publications and also mentioned the work of the NRI's Cultural Services Division in relation to the national Writing Competition. Provincial Governments should extend this competition work.

As a result of the endeavours of the Literature Board and the NRI there were now thousands of entries, and the support of culturally conscious people was needed to support this work. It was patently absurd to continue to rely very heavily on foreign material for curriculum work while such a vast collection was waiting to be utilized. This material consisted of novels and materials that could be gathered to provide anthologies. There were problems associated with copyright. In addition to the duty to Papua New Guinea there was also a duty to contribute to the pool of world literature from which we were drawing but no longer contributing to.

There was also a contribution to be made to literacy ad the process of reading and writing needs to be backed up by appropriate materials from a recognized background. There should be a national body of literature to back up the new skills. If material from the literacy competitions was returned back it would complete the cycle of literacy and engender new work.

In addition there is a need for specialist literature and for the development of children's writers and book designers.

It was suggested there be a Central Publishing Organisation to encourage National writers and produce materials for local use.

Recommendations and Provincial Information System guidelines

Recommendations

The Participants noted the importance of information for the economic, educational and social development of the province and its people. During the seminar they analysed the problems facing the information services in the province at present.

This analysis and comments are presented here in seven sections which are consistent with the major information policy objectives on information to be found in the draft National Policy on Library and Information Services prepared by a working Party of the Library council of Papua New Guinea.

The participants passed the following major resolution-

" In view of the fragmented nature of the operation of information services a committee or body should be established to review the functions, objectives and activities of information of information services in the province."

It was agreed that this resolution be forwarded to the provincial government and that the Terms of Reference of any committee established by them would flow from the Guidelines established by the participants.

The Guidelines could form the basis of a Provincial Information Policy for East New Britain and this could, in turn, serve as a model for other provinces in their discussion on information issues. Stages after the approval of policy are shown in the figure.

It was further agreed that written versions of the various contributions be obtained for the proceedings of the workshop. What is available is given in section 4 above.

During the course of the workshop reference was made to previous work on communications, namely the Report of the Review of Information Services in Papua New Guinea (The Morgan Report). The "principles and recommendations" of this report are given in section 4.8 above.

Draft Provincial Information Service Guidelines

The initial draft has been provided by John Evans, Marae Knothole and Margaret Obi. This was circulated to all participants for comments by the end of November 1991. A final drafting committee consisting of Marae Knothole, Lisa Sakias, Sam Piniau, Apisai Enos, Wesley Waninara, Esekia Mel and Samson Kove was to provide the final version. The Guidelines were to be directed, it was suggested, to the Secretary of the Department.

Working Definition

It was agreed to use this as a working definition for the discussions.

"Information is some meaningful message transmitted from source to users. In this process information may be stored in information products and systems organized for the purpose of providing a memory in numerical, textual, sound and image forms. Information may also be communicated through interpersonal channels. The source may be documentary material, institutions or people."

Scope

In these guidelines:  "information" is understood as problem solving and publicly available information which serves for development. The term excludes classified information which is restricted to a limited number of users. It also excludes news of a general nature and advertisement media. It also excludes entertainment media such as videos.

It was agreed that at the provincial level what should be excluded and how to control these should be an issue for separate discussion.

On the issue of information agencies it was agreed that, as the list of attendance showed, there were numerous agencies involved in the dissemination of information. These include the National Broadcasting Commission, the Provinces Media and Communication Services, Church and Community Groups, Formal and Informal Education system, literacy workers, community leaders, etc.

It was agreed that the Province should provide a guide to the information sources available and utilize the co-operation of the workshop participants in this respect.

Goal

It was further agreed that the general goal of the document should be as follows:

- The goal of the following guidelines is the systematic improvement of information services in the provinces and at national level for the provision of timely and relevant information to all levels of the population in appropriate forms and consistent with determined needs."

Role of information in provincial development

- the Provincial government shall promote the development of information resources and services as an integral part of its development planning.

particularly in relation to a philosophy of relevant life long learning. It also serves for social and economic development and has a cultural and entertainment role. It is a tool in the process of development. A major additional role was felt to be the dissemination of government policies to the people and making available reviews of progress that had taken place in the province.

For developmental benefits to occur the right type of information would need to go to the right people and at the right time.

The following points are to be noted in relation to the role of information in development:-

- information activities need to be viewed from the stand-point of what we are and be appropriate to Papua New Guinea ways.

- information should flow to all levels as information is equally needed by the decision makers for their purposes as by villages people for their concerns

- information on new developments was essential to inform the people in a changing environment.

- Government information services should open the door to people and involve them in the process of decision making, a two way flow was essential in this

- information should be delivered at a suitable level as the proper level of comprehension would be needed for it to be of use to the different groups.

- Government had additional responsibilities as a result of conditions of illiteracy which involves the need to use supplementary channels of communication.

Access to information

the Province shall facilitate access to information in all parts of the province and by all its peoples.

While information was available, there were concerns that access is limited and that there are not sufficient appropriate channels or media to get this information to the peopled. Information at an appropriate level on core issues should be readily available.

The following points were determined as being important in the issue of access:-

 ·  institutions that deal with rural community and an obligation to undertake fair and wide publicity for their services.

 ·  provisions of information is a two way process - improved information flow was needed from village to centre and vice versa

 ·  clear channels were need between the central agencies, provincial divisions and each subsequent level in the communication chain so that information was readily available in the correct form for application at each level.

 ·  translation agencies would be of importance in ensuring access.

 ·  people had an obligation to realize that they were conveyors of information and had a personal role in the widest spread of information to all concerned.

 ·  a legal framework was needed to ensure free flow of information.

 ·  completeness of information was to be ensured and updating of information provided

 ·  timeliness, clarity, presentation and appeal of information were important for access

 ·  unnecessary restrictions on some kinds of information was coupled by uncontrolled access to other more de-materials/video.

 ·  a mechanism was required to ensure that what was available in terms of entertainment was properly selected.

 ·  technical information be translated in an appropriate format for the rural population.

 ·  due attention needs to be paid to the varying quality of information.

 ·  access to data and statistical services also needs to be developed

 ·  information should be targeted at groups whom it would benefit most

 ·  in determining questions of cost the level of use and potential benefit would need to be taken into account.

 ·  access is increased from such means as rural seminars and combined extension patrols.

 ·  all agencies could contribute to the provision of information and emphasis should be place on systems that already exist as appropriate channels. This would involve church agencies, schools, existing regular meetings, and oral means of dissemination.

 ·  village information facilities/resource centres might be an additional channel for access and these could be linked as a part of the developing provincial library network.

 ·  microfiche collections could allow for very extensive amounts of material to be made available within the province.

 ·  as access needs to be provided where people are, extension services will need to adopt new methods while experts will still need to go out to rural areas.

 ·  reports and government documents would benefit from summaries and indexes.

 ·  distribution of publications should be better developed to facilitate access.

 ·  the methods by which people pass on information require further study if access is to be improved.

Development of provincial information resources

The Provincial shall strengthen the production of all types of information and improve on range, scope and quality. The need for preservation of the existing heritage and for appropriate research is also acknowledged.

The following are issues in the preservation , development and research on resources:

 ·  The value of village information as a cultural anchor and as a source of inspiration is to be emphasised

 ·  there was no room for complacency about the oral heritage as it is not possible to assume that we know all about Papua New Guinea culture; a reorientation of peoples minds towards a positive appreciation of cultural and traditional information sources and values was needed.

 ·  oral history is of considerable importance for the province and much knowledge is thus preserved. A vast library was available in the villages which if not correctly handled would not be available for future generations; there is a need to collect systematically within the province for the future.

 ·  a change in attitude was needed with regards preservation of documentary records for future use.

 ·  it was necessary to search for better methods and approaches to the processing and presentation of provincial information.

 ·  there needs to be a standard basic methodology for information collection at community level.

 ·  collection of data at provincial is needed to supplement national sources

 ·  issues of book development and completing the cycle o literacy through writing, printing and publishing of local works are to be given attention.

 ·  copyright should assist in developing local and national writing

 ·  basic research such as audience research and on the effect of mass communication, such as its Western origins and its effects on attitudes, is to be carried out.

Development of provincial information resources

The Provincial shall strengthen the production of all types of information and improve on range, scope and quality. The need for preservation of the existing heritage and for appropriate research is also acknowledged.

The following are issues in the preservation , development and research on resources

The value of village information as a cultural anchor and as a source of inspiration is to be emphasised

there was no room for complacency about the oral heritage as it is not possible to assume that we know all about Papua New Guinea culture; a reorientation of peoples minds towards a positive appreciation of cultural and traditional information sources and values was needed.

oral history is of considerable importance for the province and much knowledge is thus preserved. A vast library was available in the villages which if not correctly handled would not be available for future generations; there is a need to collect systematically within the province for the future.

a change in attitude was needed with regards preservation of documentary records for future use.

it was necessary to search for better methods and approaches to the processing and presentation of provincial information.

there needs to be a standard basic methodology for information collection at community level.

collection of data at provincial is needed to supplement national sources

issues of book development and completing the cycle o literacy through writing, printing and publishing of local works are to be given attention.

copyright should assist in developing local and national writing

basic research such as audience research and on the effect of mass communication, such as its Western origins and its effects on attitudes, is to be carried out.

Promotion and use of information

The Province shall maximize the use of information resources and services through positive promotional activities.

Even the best resources and services will be of little benefit unless there is a climate encouraging their use

This will involve issues such as:-

- careful naming of services to meet popular preferences eg libraries vs. information centres

- positive top management attitudes and setting of appropriate priorities for activities by the authorities

- cooperative promotional activities between agencies, such as councils and churches

- changed approaches within services to make these of a more appealing nature; government information to be made more interesting.

- more effective use of media eg. A "build up" approach to information issues; developmental communication and broadcasting approaches

- community based approaches; use of local language; an appreciation of the advantages and dangers of the oral systems.

Human resources for information services

The province shall promote and support the development of qualified people for efficient management and operation of resources and services.

The development and improvement of the Provincial Information System will be limited by the abilities of the people running it. While employers would find difficulties in release of employees there were schemes for staff development and training was fast becoming a priority area. They therefore had an obligation on this issue and should plan accordingly.

Provision of suitable opportunities was essential and the workshop participants noted that because of the diverse nature of information activities there was a need for a formal course of training.

The following are issues that need to be addressed in terms of training:-

- content should include information management termed "data processing" in some parts of the seminar, records management, oral history, village and field level work, analysis and dissemination of information a provincial level.

- training would follow a bottom up approach and should concentrate on the development of a holistic person who could contribute in any field.

- On a workshop basis there could be a course on financial information and the information that decision makers require; on interpretation of statements and the drawing up of budgets by village people.

- Attention should be given to the existing programmes at UPNG with respect to information work and other fields.

- Attention should be given to existing short course modules and to training opportunities.

- Liaison between institutions is required for optimum training programmes.

- New approaches at UPNG such as the Certificate in Information Studies model and Extension Studies which involve less time for release of staff are to be considered.

A suggested curriculum, for further discussion, is:-

1. Understanding rural society

- social organization
- economic pursuits
- culture
- music, dance and drama
- oral tradition demography

2. Provincial, local and traditional government

3. NGO's; role of churches

4. Language and literacy; non-formal education

5. Techniques of information dissemination to literate and semi-literate communities

6. Assessing rural information needs / basic research methods

7. Source of information / information materials and resources

8. Appropriate information services / setting up small libraries and information centres

9. budgeting / project development / basic management

Organisation and coordination of information activities

The provincial shall strengthen coordination to ensure effective implementation of these guidelines. The province shall participate, where appropriate in national and regional information activities.

A major problem brought out throughout the seminar was the lack of coordination of information activities at both the national and provincial level. This was felt to be not unexpected on such a "hazy" topic. As a result the subject had become something of an organizational football being passed between Departments. Reference was made to the defunct Officer of Information and Extension Service's and to the Review of Information Services of 1979.

Information activities were described as fragmented and scattered, with many government and private agencies being involved. Information was a neglected industry in Papua New Guinea. Problems extended to issues of control, ownership, and standards employed by agencies. The findings of the previous Information review Committee was also considered as still relevant to the situation.

This vagueness extended through issues of legislation, policy and Ministerial responsibility. The ensure the concerted build up of provincial services integration of services was felt to be essential. Most ideas related initially to the National level.

For improved coordination the following points are to be observed:-

- stability of structure is needed for concrete improvements to take place.

- a National body will need to be created such as a new office of Information and Extension Services or a National Information and Extension Services or a national Information coordination unit - working in particular priority areas.

- a national linkage of information agencies providing a National Inforamtion Network consisting of the National Statistical Office and Provincial Data Centres - this could be linked to a PNGLINET - the PNG library and Information Network recommended to the Library Council

- provision of national policy on information / communications in conformity with the constitution

- a single Ministerial portfolio for information / communications

- with regard to published materials there could be set up a Central Publications Unit.

- on the provincial level it was possible to:-

- parallel the possible changes on the national level

- allow the national body to look after the provincial issues.

- develop links to the national level

- set up a Provincial Information Committee (on the lines of committees established in other fields such as health and including representatives of various divisions and area reps). While this would require legislation it could, initially, work as an advisory body - a situation for which there were already parallel examples in this field.

- that the issues of "pilot" networks be developed based on improved services and a revitalization of agencies.

- that plans and strategies for such networks would need to be developed.

- projects and submissions must also be developed so that funding can be requested to result in real improvement, this would form part of any action plan for the development of policy.

Information technology and systems

The Province shall stimulate the modernization of information handling methods and technology

To assist in this it will be necessary to:-

make fuller use of available computers for information work

look carefully at software and then hardware requirements in the light of the Public Service Information Technology Policy

adhere to available standards

implement modern methods of data transfer and communications, through electronic-mail, satellites and the like

make use of appropriate training opportunities and facilities

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