Order amid Chaos: Structuring communication functions to amplify effectiveness in Ebola Time

Dozens of international organizations mobilized in Liberia to stop Ebola. “Bootstrap” NGOs formed in every county. Each organization brought its own approach to messaging, outreach and methods. Without beds, ambulances, doctors, or rapid response capability, social mobilization was the only defense against Ebola. Lacking a clear strategy and a way for organizations to intersect effectively, efforts were duplicated, inconsistent, uncoordinated. Demands exceeded the capacity of the 9-member national team. The Liberian director of health promotion was the single coordinator for dozens of NGOs.

Liberia’s fledgling national Incident Command System presented an opportunity to adapt the social mobilization approach based on the Joint Information Center model. Although introducing a new structure in the midst of a major emergency was not ideal, lack of organization was limiting impact and accelerating chaos.

Together with the Ministry of Health, CDC examined relevant theories and models and proposed a structure that facilitated NGO alignment with areas of greatest expertise. Five core functions were identified to be Ministry led; five work groups, each co-led by an international and a national NGO, coalesced international expertise and built national capacity for post-Ebola work.

Within 45 days work groups had produced a message guide, designed interpersonal training, trained 73 of 88 districts in just 30 days, let a media monitoring contract, and fielded focus groups. Within 60 days, national NGOs led most of the work groups.

The Liberian model shows how developing nations can align partners to support national objectives with greatest effect.