There are three basic Internal communication flows within a development programme:
1) Downward
2) Upward
3) Horizontal
Many administrators limit their communicating to the downward flow, which is probably the least important in the planning and implementation of a development programme.
Katz and Kahn (1966, Chapter 9) do a thorough analysis of communication flows in an organizational system. They describe downward communication as going along the authority pattern of hierarchical positions; horizontal communications as being among peers at the same organizational level; and upward communication ascending the hierarchical ladder.
Berelson and Steiner (1964, Chapter 9) made the following generalizations: communication down the organizational hierarchy is likely to be critical and to consist of authoritarianinstructions; communication up the organizational hierarchy is often inaccurate; horizontal communication tends to be the most accurate, but is often restricted by the organizational structure.
Downward
Most organizational researchers have found that downward communication flows are more frequent than upward flows. Administrators originate a considerable amount of communication that they assume will " trickle down " through the system and eventually cause the intended beneficiaries of the development programme to change their current practices. But too often, certain basic questions are ignored: (a) is the message that is being communicated relevant; (b) is it being understood and acted upon by subordinates within the system; and (c), does it reach the intended beneficiaries ?
Peter Drucker (1966, Chapter 7) suggests that the biggest problem for administrators in making effective decisions is that they too often are talking when they should be listening-one of the major reasons why many development programmes fail.
Upward
During the planning of a development programme and the later monitoring of its progress the upward communication flow is vital. However, as Sagasti (1975, p. 13) points out:
"The single greatest problem in rural development has been the lack of active participation of the local people. In communications terms this means an overemphasis on transmission of information by project managers and staff to the rural people, rather than transmission of information from the rural people to each other and to project staff and development decision-makers."
Most researchers agree that the upward flow of communication in an organization is usually distorted. The nature of the hierarchical structure and. the related reward, system discourages subordinates from passing bad news to their bosses (Wilensky, 1967, p. 42). A superior receives reports that tell him primarily what his subordinates want him to hear (Downs, 1967, p. 118) and almost always contain positive information. Most management information systems are designed to control subordinates rather than to encourage relevant upward communication. What an administrator needs most is the accurate description of problems in programme implementation. Field workers have the information, but are afraid to communicate it to the administrators who desperately need it. A major overhaul in current administrative practices will be required before the upward communication flow can become a valid element in development programme implementation.
Horizontal
At the operational level of implementing a development programme, horizontal communication becomes extremely important, but faces many barriers because of the bureaucratic structure and rules and regulations in most government organizations. It is difficult to establish effective communication linkages between departments and even more so between ministries; between government departments and the private sector or non-governmental organizations it can become almost impossible.
The " gate-keeper" effect of the organizational structurecauses massive problems for most administrators who are implementing development programmes. It results in delays of recruiting personnel, of budget approvals, of information on new technology from researchers. In a study of the organizations involved in helping rubber small-holders in south Thailand, James French (1977) commented that administrative obstacles frequently prevented coordination and cooperation between planners and field personnel, even though the need for a single administrative body which would examine and be responsible for all aspects of rubber development had repeatedly been pointed out.
Much of the horizontal communication that does go on at the operational level is informal in nature and bypasses the formal organizational system. But in using informal channels there are definite restrictions on achieving official action. Much more thought is required for facilitating " official" horizontal communication at all levels of the hierarchy in order to improve the implementation of development programmes.
While the identification of these three types of communication flows appears to be fairly elementary, not enough thought is given to properly using them by most administrators of development programmes.
More attention must be focused on improving the upward and horizontal communication flows. The use of the downward communication flow should be evaluated and where possible reduced. The downward communication flow should be closely linked and coordinated with the upward and horizontal communication flows.
References
KATZ, DANIEL & KAHN, ROBERT L. 1966 The social psychology of organizations. New York, John Wiley and Sons, Inc.
KATZ, DANIEL & KAHN, ROBERT L. 1966 The social psychology of organizations. New York, John Wiley and Sons, Inc.
