Winning Public Trust FINAL - Makali Report PDF

2 WINNING PUBLIC TRUST
Contents
Transmittal Letter 5
Acknowledgements 6
Glossary 7
Members of the Task Force 9
Terms of Reference 10
Methodology and Scope of Work 11
Executive Summary 13
Key findings
Summary of key recommendationsyy
Conclusion
Introduction The Context of Government Communication 24
Chapter One The Culture and Mindset of Government Communication 27
Overview
Emerging issues
Task force recommendations
Chapter Two Constitutional and Legal Context of Public Communications and 36

Information
Why enabling policies and laws matter

Task force recommendations on legal and policy issues
Chapter Three Developing a Skilled Public Communication Workforce 47
Key citizen concerns

Current government practice
International practice
Chapter Four The Culture and Practice of Government Communication 52
Challenges facing current government practice

Report of the Task Force on the Improvement of Government Information and Public Communications 3
Chapter Five Developing Robust Government Communications Channels 60
Why communication platforms matter

Internal communication - current practice in Kenya
Internal communication - international practice
External communication - current practice in Kenya
External communication - international practice
International communication - current practice in Kenya
International communication - international practice
Chapter Six An Agenda for Action by Government, Parliament and Citizens 69
Conclusion
References 72
Annex One: Matrix on recommendations of the task force 73
Annex Two: Implementation Matrix 76
Annex Three: Constitutional, Statutory and Policy Provisions on Access to 82

Information
Annex Four: Major international treaties on transparency and accountability 85

in governance to which Kenya is a signatory
Annex Five: List of stakeholders who submitted views and proposals 86
Annex Six: Gazette notice establishing the task force 89
Annex Seven: Advert inviting stakeholders to submit their views 91
Annex Eight: Sample invitation letter to stakeholders 92
Annex Nine: In pictures: task force engagement with stakeholders 93

Transmittal Letter
16 December 2019
Mr. Joe Mucheru, EGH

Cabinet Secretary
Ministry of ICT
Dear Sir,
REPORT OF THE TASK FORCE ON THE IMPROVEMENT OF GOVERNMENT INFORMATION AND PUBLIC
COMMUNICATIONS
The task force you appointed in January has the pleasure of presenting its report upon completion of its
assignment.
In executing its mandate, the task force conducted research, held public forums and received oral and
written submissions from a broad range of informants and stakeholders in and out of government. They
included communication professionals (in media, academia and government), private individuals, organised
stakeholder and interest groups, civil society organisations, trade unions, constitutional bodies and
government officials. We also ventured to seek the opinions and sample communications practice in the
Judiciary and Legislature as well as in county governments.
Owing to the short term and resource constraints, we also conducted a limited desk review of government
communications in other countries to benchmark with global practice.
The task force believes the recommendations in the report are effective and efficient ways in which to turn
around the practice of public communications, enhance coordination of government communication and
earn the trusted of the public. The proposals also aim to accelerate the realisation of the right of access to
information guaranteed by the Kenya Constitution.
In recognition of the urgency of the proposed interventions and considering that accurate and timely
information is a major enabler of socio-economic progress, it is recommended that an advisory/steering
committee be constituted to follow through the implementation of the report. Its mandate should include
coordinating the development of the necessary legislative, policy and structural changes to improve
government-citizen engagement and timely provision of information to citizens.
This assignment would not have been accomplished without the diligent facilitation of Principal Secretary
Jerome Ochieng and Information Secretary Judy Munyinyi, for whom we would like to register our
appreciation.
We remain optimistic that the implementation of this report will contribute significantly to the transformation
of government communications, enhanced citizen engagement and general improvement in public service
delivery.
Accept our sincere compliments for giving us the opportunity to serve our country.
Sincerely,
David Makali
Chairman
Acknowledgements
The task force records its appreciation to all those who contributed to this report in different ways:
• Members of the public who turned up to give their views in the public participation forums
• Individuals and stakeholder organisations that took their time to prepare and submit written
memoranda
• Staff of state agencies, Ministry of ICT and other government departments who spoke to the task
force candidly on their mandates and the challenges they face daily
• Secretariat staff Augustus Munywoki, Kennedy Buhere, Daniel Kihungi, Josephine Kinuthia,
Benadette Owade, and Eva Inyaboto for administrative and logistical support rendered to the task
force; Kentice Tikolo for peer reviewing the report and Richard Vaughan for editorial assistance in
compiling and Patrick Wahome for design
• The Open Society Institute for Eastern Africa and the International Commission of Jurists-Kenya
section for funding the public stakeholder engagements; the Communications Authority of Kenya,
Media Council of Kenya and the Kenya Film Classification Board for facilitating the task force’s
meetings and engagements with some stakeholder organisations
The views, findings and recommendations in this report are solely the responsibility of the task force.

Glossary
ATI........................... Access to Information Act
BBC........................ British Broadcasting Corporation
CA .......................... Communications Authority of Kenya
CAJ......................... Commission on Administrative Justice
CBOs..................... Community Based Organisations
CCPs...................... Cluster Communication Plans
CoK 2010............ Constitution of Kenya 2010
CPD........................ Continuous Professional Development programmes
DMC...................... Directorate of Media and Citizen Engagement
DCP........................ Directorate of Content and Publications
DDM...................... Directorate of Digital Media
DG.......................... Director General
ICT.......................... Information and Communications Technology
GAA....................... Government Advertising Agency
GCS........................ Government Communication and information Services
GCO....................... Government Communication Officer
GCS........................ Government Communication Service
HoCs..................... Heads of Communication
ICCPR ................... International Covenant on Civil and Political Rights
ISD.......................... Information Services Department
IO............................ Information Officer
KBC........................ Kenya Broadcasting Corporation
KEPROBA............ Kenya Export Promotion and Branding Agency
KFCB...................... Kenya Film Classification Board
KICA....................... Kenya Information and Communications Act
KIMC...................... Kenya Institute of Mass Communication
KNA........................ Kenya News Agency
KSG........................ Kenya School of Government
KYEB...................... Kenya Year-Book Board
MCK....................... Media Council of Kenya
MDAs.................... Ministries, Departments and Agencies
MFA....................... Ministry of Foreign Affairs
MoICT................... Ministry of Information, Communications and Technology
MoPS ................... Ministry of Public Service
NGCC.................... National Government Communication Centre
NDP....................... National Development Plan
PCOs..................... Public Communication Officers
PPP......................... Public Private Partnership
PRSK...................... Public Relations Society of Kenya
PSC......................... Public Service Commission
PWDs.................... People with Disabilities
SAGAs.................. Semi-Autonomous Government Agencies
SCAC..................... State Corporations Advisory Committee
TORs...................... Terms of Reference
UK........................... United Kingdom
UN.......................... United Nations
UNESCO.............. United Nations Education, Scientific and Cultural Organisation
UDHR.................... Universal Declaration of Human Rights
UoN....................... University of Nairobi
WHO..................... World Health Organisation

Members of the Task Force
Chairman David Makali

Vice-Chair Jane Gitau
Members Abraham Mulwo (Dr)

Alfred Ng’ang’a
Browne Kutswa
Cosma Gatere
Eunice Muthamia
Gwaro Ogaro
Murej Mak’Ochieng (Prof )
Noella Mutanda
Paul Udoto
Robin Njogu
Ruth Munyao Musembi
Mbugua Njoroge (Dr)
Umi Wabomba
Joint Secretaries Kennedy Buhere

Augustus Munywoki
Christopher Maina
Admin Benadette Owade

Daniel Kihungi
Terms of Reference
The task force was mandated to:
1. Study and review existing policies and laws on public communication and information and
advise as to their appropriateness and consistency with constitutional requirements, national
goals and aspirations, emerging socio-economic trends and advancements in information
communication and technology
2. Identify and review any gaps and inadequacies in the staffing levels of public communication
offices in Ministries/Departments/Agencies and county information offices that hinder
effective articulation of government agenda
3. Make recommendations on how to revamp and strengthen the institutional and operational
base of public communications and information functions at MDAs and counties
4. Explore modalities and generate proposals on how public communications and

information staff in MDAs and counties can respectively be involved in all policymaking and
communication initiatives
5. Identify and make recommendations on how to facilitate public communication and

information cohesiveness across government

Methodology and Scope of Work
The task force conducted a desk review of relevant policies and laws to establish the legislative, policy
and administrative environment within which government communications take place. It studied public
and government communications around the world with which to benchmark; received institutional and
individual specialist presentation; and held focus group discussions with media practitioners.
The task force also received oral and written submissions from key government institutions, semi-autonomous
government agencies, NGOs, religious groups, youth groups, trade unions, the Council of Governors, the
Judiciary, the ICT committees of the Senate and National Assembly, special interest groups, professional
societies and private sector representatives.
In these engagements, the task force sought assessments of current government communication practice
and recommendations on the best way to deal with the challenges of communicating the government
agenda effectively, given present day expectations and realities.
Using a purposive sampling method, the task force invited entities and individuals within and outside
government that were best placed to provide insights on the TORs. In its deliberations the task force made
reference to the Constitution of Kenya, the Government’s Big Four Agenda, Vision 2030 national development
blueprint, and Executive Order No.1 of 2019 on the Framework for Coordination and Implementation of
National Government Programmes and Projects.
The task force sampled some government agencies in which public communication plays a significant role:
education, agriculture, health, the anti-corruption commission, public service, population control, tourism,
investment, trade, national branding, youth, people living with disabilities, record keeping and archiving,
investment, governance, ICT, administrative justice, and access to information.
Presentations were also made by special interest groups representing the youth and people living with
disabilities (PWDs) for feedback on government responsiveness to their communication needs.
For a holistic view of the level of coordination and coherence in government communication, the task force
also ventured to solicit the views of other arms of government the Judiciary and Parliament and county
governments, as collectively represented by the Council of Governors.
The task force also benefitted from global expertise on crisis communications by Bob Jensen, through the
facilitation of the US Embassy in Nairobi.
The full list of stakeholders consulted by the task force is annexed to this report.
Apart from presentations from representatives of organised stakeholders, the task force also held public
meetings attended by a cross section of citizens, private and public sector organisations and government
officials at county level in Nairobi, Mombasa, Kisumu, Garissa, Meru and Turkana counties.
The task force compared current practice in Kenya with those in other jurisdictions with similar linguistic
and political traditions, including Australia, Ghana, India, Malaysia, South Africa, the United Kingdom and the
United States.
The task force kept the public informed of its proceedings through updates on its social media platforms,
especially Twitter, and occasional press coverage. Proceedings were also documented through minutes,
video and still photography.

Executive Summary
Key Findings
Declining trust in public communication and institutions
In general, while citizens look to government for services and have high expectations, mistrust is prevalent
and rising among vocal citizens who have access to mainstream and digital media platforms. Presentations
to the task force made clear that significant sections of the citizenry have low trust in communication
emanating from government in general because they feel that they are excluded from decision-making
processes and are, as a result, skeptical whether government initiatives are genuinely designed to advance
their wellbeing.
This phenomenon is not unique to Kenya. The global Edelman Trust Barometer 20191 found that fewer than
half (47%) of respondents in 27 countries had trust in their government, a figure that has remained largely
unchanged for five years. This calls for a paradigm shift: from top-down information dissemination models
to an approach that emphasises continuous and open dialogue between government and its citizens. Open
citizen engagement and building trust should be at the very heart of public communication.
1. Lack of a coherent, overarching government communication strategy

The task force heard that the absence of a guiding communications philosophy or a clear strategic
communications plan results in incoherent government messaging that either ignores - or is often out
of touch with - the daily concerns of the citizens it serves. Government communication was found
to be reactive and short-term, conditioned by emerging day-to-day issues rather than a longer-term
vision. Contradictory or confusing government communication on the Huduma Namba registration,
the Housing Levy and the Competency-Based Curriculum were mentioned as some glaring examples
of discordant messaging from government. This made the government appear unsure or untruthful of
its objectives.
“Open citizen engagement and building trust should

be at the very heart of public communication”
2. Limited appreciation of the power of information to catalyse socio-economic progress
Crucially, there is limited understanding of the role that useful, accessible information plays in the
management of public affairs, catalysing development and driving positive social change. The
predominant ethos is that information in the government’s custody is secret (serikali ni siri kali) and
withholding it from a prying public is the proper duty of a public servant complying with the Official
Secrets Act. This widely prevalent mindset is not in sync with CoK 2010 provisions on access to information
and the requirement that the government purposefully disseminates information of public interest.
3. Underlying mindset of government communication is out of step with the times

Despite the radical administrative and political changes introduced by the CoK 2010, the conduct of
public affairs has not changed fundamentally in tandem with the requirements of the Constitution. Most
of the public officers responsible for leading the implementation of the changes have not embraced a
citizen-centric approach to managing public affairs.
1 The Edelman Trust Barometer 2019
4. Effectiveness of public communication not evaluated
There is no evidence to suggest that public communication is ever evaluated to determine its
effectiveness. In most cases, it adopts a ‘top-down’ method characterised by a one-way dissemination
approach, instead of a two-way engagement model that entails creating awareness, interacting with
citizens, listening and providing feedback that then informs government decisions. This has happened
through directives, Executive orders and circulars from time to time. While this approach is meant to
communicate government policy and administrative decisions, the tone tends to be terse, instructional,
and authoritative. Furthermore, it is often accompanied by threats of sanctions and punitive action for
noncompliance. While this approach expects maximum compliance from the target groups, it is not
clear whether its effectiveness has been evaluated.
5. Impersonal communications
Dispatches from government communication units such as the Presidential Strategic Communication
Unit, Government Spokesperson or public communication units in MDAs are couched in language that
is clearly informational and instructional. The language and style of government communication was
described as turgid and unengaging, the assumption being that citizens are a passive audience whose
role is to act as directed unquestioningly. Even where public officials engage with citizens directly
during rallies or public forums, it was perceived as being in the expectation that they would endorse
a predetermined position. The task force heard that citizens are accustomed to this practice, and have
become resigned to this fate.
6. Contradictory laws on public information; progressive ones yet to be operationalised

The legal environment within which public information and communication takes place includes a raft
of progressive laws that place an obligation on government to publish information proactively, and
imbues citizens with rights of access to information. The CoK 2010 primes and recognises access to
information as a fundamental civic right for citizens, whilst at the same time obliging the State to provide
public interest information proactively. Other statutory and policy provisions on access are found in
the Kenya Information and Communication Act, Media Council Act, Public Finance Management Act,
Access to Information Act, the County Governments Act, Ethics and Anti-Corruption Commission Act,
the Commission on Administrative Justice Act, the Public Service (Values and Principles) Act (No. 1A ),
Public Archives and Documentation Service Act and Executive Order No. 1 of 2019.
Notwithstanding the existence of these laws, cases were cited of open failure to comply with the CoK
2010, which grants every citizen the right to access information held by the State, and compels the
Government to take the initiative in publishing important information affecting the nation. However,
the farsighted provisions in these laws are many times countermanded by restrictive sections that
encourage, sometimes demand, reticence and even concealment of fairly mundane information by
public officers. These statutes include the Official Secrets Act, the Defamation Act; the Preservation of
Public Security Act, Sec 52 of the Penal Code Section; the Books and Newspapers Act, the Computer
Misuse and Cyber Crime Act, 2018; the Prevention of Terrorism Act; the National Assembly (Powers and
Privileges) Act. In addition, Legal Notice No. 38 of 2008, Legal Notice No. 172 and Legal Notice No. 152
have been cited as impacting negatively on access of information by citizens.

The task force found that where there was conflict or unclear direction between laws encouraging
openness and proactive communication by government and those requiring non-disclosure, it was
the latter that prevailed, normally owing to fear of the consequences associated with disclosing such
information. An informed citizenry does not seem to rank highly in government priorities.
7. Public communications under-resourced

The task force identified public communication officers (PCOs) as an integral component of public
communication. Sessions held with public communication officers (PCOs) in MDAs established that
their role in developing messaging and overall government communication is not well entrenched,
thus undermining and downplaying their professional output. This is attributable to a combination
of factors that include: uncoordinated reporting lines, lack of resources, understaffing, limited training
opportunities, preference for communication advisors by top government over staff (PCOs), lethargy,
and a perceived disdain for career PCOs by top government bureaucrats. This has created rivalry between
regular staff and advisors hired on temporary terms.
The placement of PCOs and IOs in the ministry and counties present a functional and descriptive
challenge. To start with, these officers are lowly ranked in the public scheme of service, despite having
equal or superior qualifications to their counterparts in other departments. They are also poorly
resourced, understaffed and lack motivation because their scheme of service has not been fully
implemented. Whereas their role is supposed to be central within the ministerial top brass, PCOs report
to the directorates of administration, which essentially keeps them away from the centre of policymaking
the ministerial executive committees in which important decisions are made. They are only invited at
the tail end of the policy-making process, or to respond to crises. They are often out of the loop of the
information they are expected to disseminate to the public.
“To secure public trust, citizens must perceive government and the institutions
it runs as capable in fulfilling their mandate, honest and being genuinely
concerned about acting in the citizens’ best interests”
8. Recurrent poor public service delivery complaints, further undermining public trust
With a few notable exceptions2, stakeholders cited poor service delivery, unfulfilled promises by
government, various institutional failures and a poor public sector work ethic in general as major
concerns. Public servants did not seem to appreciate the vital link between efficacy of government
actions and statements on one hand, and public confidence on the other.
This is vital to the earning of trust: to secure public confidence, citizens must perceive government
and its institutions as trustworthy, honest and acting in the citizens’ best interests. This develops the
social capital - the confidence and strong collaborative relationships - that builds cohesive societies, and
which government can call upon in times of crisis3.
2 Examples of effective, citizen focused communication by public entities are highlighted throughout this report.
3 See Spotlight on Building Public Trust for more discussion on this topic.
9. Failure to embrace technology-driven communication platforms
Many stakeholders felt that the government has been too slow, and in some cases failed altogether to
adopt to modern, technology-driven communication platforms used by majority of the population,
especially the youth. This creates an impression of a government that is out of touch with its constituents,
still conversing in media that many citizens, particularly the youth, have abandoned in favour of new
media platforms.
10. Poor information and documentation/archival system

Documentation and archiving of information are key to the preservation of an institution’s distinct
history, culture, identity, memory and heritage for present and future generations. They provide
documentary evidence of policy decisions, operations and blueprints. Properly managed records are an
asset and a reference for sound governance and management, as they contribute to efficient decision-
making, policy formulation, implementation, monitoring and evaluation.
However, despite the country having enabling laws in this regard, the availability and retrieval of
government documents remain a nightmare for the public. The Government does not have a central
archival system to facilitate retrieval of documents at a click of a button. Documents in the custody of
parent ministries and in hard copy format are difficult to retrieve, refer to, or share. This has given rise to
expensive duplication of efforts by government ministries, departments and agencies.
11. Weak public sector support for the Brand Kenya concept
As a result of external competition and internal political pressures, nations have become more
businesslike and market-driven in their economic development activities. Hence, they manage and
control their brand. Nation branding is identified as an important way to create an economic advantage,
and is therefore an important tool for countries4.
This is the rationale behind the establishment of Brand Kenya, which has now been merged with Export
Promotion Council to form the Kenya Export Promotion and Branding Agency (KEPROBA). KEPROBA (or
Brand Kenya) is charged with ensuring an integrated national brand, harnessed and sustained in the
long term. The task force concludes that Kenya has no defined brand identity at home or abroad, and
needs to develop a new, believable, consistent image and identity across the entire public sector. The
guidelines prepared by Brand Kenya are yet to be adopted by some sections of government, hence the
inconsistent messaging and misapplication or lack of branding tools and strategies.
12. Inordinate preoccupation with politics and politicisation of service delivery

Kenya is a de jure multiparty democracy with a five-year electoral cycle though which the Executive, at
national and county levels, and Legislature are elected through universal suffrage. This has entrenched
political competition round the year, the net effect of which is obsession with taking credit for all
government initiatives and services by individual political leaders. Communication on government
policies is often tied to political campaign messages, hence polarizing and undermining its impartiality
or credibility among segments of the public.
4 Daniëlle van den Akker, 2011: Creation of Umbrella Nation Branding Strategy.

13. Marginalisation of PWDs in the government information architecture
It is estimated that people with disabilities constitute about 3.5% of Kenya’s population. This translates
to more than 1.3 million people, the majority of whom suffer physical impairment (over 400,000
people). They are followed by visual impairment (over 330,000 people)5. According to the World Health
Organization (WHO), disability affects ten per cent of any general population sample. An estimated
650 million people worldwide, of whom 200 million are children, experience some form of disability6.
Globally, an estimated 90% of all written materials published worldwide are in formats that cannot
be accessed by persons with visual impairment or have a print disability7. This is a barrier to their full
participation in public life, employment, educational and recreational opportunities.
Although the country has created the necessary legal and institutional frameworks - the Bill of Rights in
the Constitution has been hailed as one of most progressive in African continent their implementation
leaves a lot to be desired. Laws include the Persons with Disabilities Act; the Election Act, 2011, the
Social Assistance Act, 2013, the Sexual Offences Act and the Basic Education Act, 2014.
Article 7 of the CoK 2010 recognises sign language, Braille and other communications accessible
to persons with disabilities as official languages. Article 20 (5) (b) obliges the court, in applying any
rights under Article 43 to be guided by the principle that “in the allocation of resources, the state shall
give priority to the widest possible enjoyment of the right or fundamental freedom having regard to
prevailing circumstances, including the vulnerability of particular groups or individuals”.
Article 21 of the Constitution requires the state and every state organ to observe, respect, protect,
promote and fulfill the rights and fundamental freedoms in the Bill of Rights, and to address the needs of
vulnerable groups within society, including persons with disabilities. Article 27(4) on non- discrimination
prohibits direct or on indirect discrimination against any person on any ground including disability.
Article 28 promotes respect and protection for human dignity of every person. Article 43 recognises
economic and social rights, including the highest attainable standard of health, housing, sanitation,
freedom from hunger, clean and safe water, social security, education and emergency treatment.
Persons with disability need access to e-government services and websites of public bodies through
accessible digital formats. They also need audiovisual aides such as sign language interpreters, large print
text and language, Braille and tactile communication, augmentative and alternative communication.
However, government communication is yet to be made available in these formats as standard practice.
14. Low rating of state media

The Government’s official channels are wilting from poor performance against better resourced, more
professional, privately owned and branded competitors.
5 Kenya National Population Census Report, 2009. Available on http://www.knbs.or.ke/Census%20Results/Presentation%20by%20Minister%20

for%20Planning%20revised.pdf (Last accessed on 10th November 2019).
6 National Coordinating Agency for Population and Development (2008). Kenya National Survey for Persons with Disabilities – Preliminary
Report.
7 International treaty examination of the Marrakesh Treaty to Facilitate Access to Published Works for Persons Who Are Blind, Visually Im-
paired, or Otherwise Print Disabled. Report of the Commerce Committee (New Zealand). https://www.parliament.nz/resource/en-NZ/SCR_74
562/51f51fb80a23c95c8c9719a25f31cfc49f42f127 (Last Accessed on 11th November 2019).
The Kenya Broadcasting Corporation (KBC), which under the constitution is characterised as a public
broadcaster commands below five per cent of the national viewing and listening audience. This is partly
attributable to structural, financial, policy and legal challenges. Government funding has dwindled
over the years, with the loss of monopoly over broadcasting services. The withdrawal of licence fees in
2003, which took away about 20% of its revenue base, left a dent while the operating costs, rent and
personnel emoluments remained. The task force heard that KBC is in dire financial straits, burdened with
a bloated workforce, obsolete, malfunctioning or ageing equipment that is expensive to maintain. Its
quest for adequate funding for operations, technological upgrading and terms of service has not been
successful. Its output has fallen far below that of the commercial competitors, further weakening its
ability to attract alternative revenue sources. The decline of KBC, with its multiple radio and TV channels,
has further weakened the Government’s voice in the marketplace of ideas and public communication
functions. The corporation is yet to align its operations with Article 34 (4) which obligates all state-
owned media to:
(a) be free to determine independently the editorial content of their broadcasts or other
communications;
(b) be impartial; and
(c) afford fair opportunity for the presentation of divergent views and dissenting opinions
KBC is under an obligation to promote the ‘universal access to information for all’ through the provision
of free broadcast services, which by global convention are supposed to be funded by the taxpayer.
Summary of Key Recommendations

The task force proposes that public communication be managed in a strategic manner as part of a decision-
making processes that contribute to effective policy implementation. In the context of rapidly changing
technologies, citizen expectations and media habits, the government needs to ensure that its messaging and
messengers are perceived as trustworthy to earn greater public confidence and impact. The Government
must be agile and adaptive in its approach to communication, and more proactive in publishing useful
information and delivering it to citizens in useable formats in real time. In order to address the challenges
outlined above, this report makes the following recommendations:
1. Urgently review and realign the existing legal framework to eliminate contradictions in the laws
on public information
While some laws and policies facilitate proactive public communication by government, there others
that hinder provision of public information and communication. The task force heard that public officials
hoard information for fear of being reprimanded for violating some of these statutes. These officials play
safe by withholding public information, regardless of its nature. This ends up denying information to the
populace and gives room for speculations, half-truths and general misunderstanding of government.
Reluctance to share such information goes against the spirit and the letter of Article 35 of the Constitution.
2. Operationalise laws that support access to public information and communication
Stakeholders recognised the potency of clear public information dissemination. However, some expressed
concern that the Government has not taken advantage of the law to communicate purposefully and

effectively by ‘operationalising’ others, owing to lack of regulatory frameworks. The Access to Information
Act of 2016 was particularly singled out as being in limbo owing to lack of regulations. The Executive
should fast track regulations to give effect to the laws.
3. Develop and implement a coherent public communication policy and plan
The Government’s successful execution of its mandate is heavily dependent on vibrant and interactive
citizen engagement. Should this be effectively implemented, the Government will succeed in increasing
the awareness of the its mandate to both its internal and external audiences. This will see the Government,
providing regular status updates on ongoing projects, report on success stories, particularly those with
a human interest focus to demonstrate impact, project future plans guided by strategic direction and,
when necessary, effectively mitigate any potential negative reports pertaining to the national brand
through a well thought through crisis communications plan. Consistent, effective communication
will strongly anchor the overall reputation of the Government, thereby laying the ground for brand
equity and ownership of the same by citizens. By building this level of credibility, there is no doubt that
citizens and stakeholders will rally their support and work with a government in which they can believe.
The objective of strategic communication is to enable the Government to be proactive rather than
reactive in its actions. It is to ensure that government institutions have a shared understanding of issues
and policies with citizens. This calls for the establishment of well thought out policies, strategies, and
procedures that are adequately resourced.
The Government should develop a ‘One Government’ brand through the comprehensive exercise and
production of guidelines and templates for use by all ministries and agencies. The Government should
strive to create a common Government identity product, to include stationery, business cards, ID cards,
slogans, e-bulletins, banners, posters, information folders, signage and other outdoor tools such as
billboards. It should also involve the communication of Government messages through training, team
building and other Government events.
The Government should revise, update and implement the draft Public Sector Communication Policy
and prepare a Communication Strategy and Annual Communication Plan from which its agencies
should develop theirs. All major projects and policy undertakings should be supported by a strategic
communications plan and the implementation evaluated accordingly.
4. Strengthen and build the capacity of the government communication workforce
The government communication workforce is facing clear challenges in terms of skills, career progression
and placement. There is a huge variance between the number of authorised posts and the ones in post.
There is also a challenge associated with job description and nomenclature, a fact that hinders career
progression for the officers serving in these departments. The current nomenclature encompasses
the following cadre of staff: information officers, public communication officers, photojournalists,
videographers, editors, speechwriters and digital media specialists. It is imperative that the Government
should review the current nomenclature and job description, as well as urgently equip and upgrade the
skills of its human resource through Continuous Professional Development as proposed in this report,
to match the emerging public sector challenges and the most pressing needs of citizens.
Additionally, the Government should conduct a skills audit of the current public communicators to
identify and subsequently address skills gaps. The proposed Government Communication Service
(GCS) once operationalised should identify and engage professionals with the following skills match
and capabilities: Strategic Communication, Journalism, Development Communication, Public Affairs,
Public Education Campaigns, Branding and Event Management, Media Relations, Content Creation
and Production, Crisis Communication, Citizen and Stakeholder Engagement, Internal Communication,
Digital Media Skills, Communication Planning, Communication Auditing and Monitoring and Evaluation.
5. Initiate a programme to transform the public communication mindset from a government-

orientated to a citizen-centered approach
Stakeholders felt that government, represented by a constellation of state and public officers, should
steer public discourse on public policy issues, with input from the public who are the end consumers of
government information and communication. It is highly recommended that the Government initiate
a transformation agenda that will change the way the Government disseminates information to the
populace and instills confidence in the public. This will ensure acceptance and ownership through
proactive response and feedback. The Government should roll out a culture change programme to help
public officers become more service-driven and responsive to citizen information needs and requests.
A structured programme on culture and mindset change should be integrated in future inductions
and in the Continuous Professional Development courses throughout the public service. It should
be coordinated by the Public Service Commission (PSC) and administered by the Kenya School of
Government (KSG).
6. Separate information and public communication functions from ICT
Public communication - which is synonym for Public Relations - is about building a relationship of
an organisation with its stakeholders (e.g. investors, public and fans/followers) and managing the
Government’s presence. Public communication is conducted through Public Communication Officers
(PCOs) and Information Officers (IOs) pitching government stories to journalists, in order to create a
positive image among citizens and other stakeholders. On the other hand, ICT stands for ‘Information
and Communications Technologies’, that provide access to information through telecommunications.
It is like Information Technology (IT) but focuses primarily on communication technologies such as
Internet, wireless networks, cell phones and other communication media.
The task force heard that the amalgamation of information and communication functions with
information technology has ended up elevating and resourcing the ICT function at the expense of public
communication. Public communication is therefore seen as a subset of the ICT function, whereas it ought
to be autonomous but interdependent. To strengthen strategic communication within the government
architecture, it is recommended that public communication be delinked from telecommunications. This
would entail restructuring the operations of the functions under MoICT, as proposed below. PCOs and
IOs should be redesignated as Communications Officers (COs) and their responsibilities redefined.
7. Reorganise government public communications architecture by creating a national Government

Communication and Information Service (GCIS)
It is proposed that Government information and communication functions be consolidated under the
Government Communication and Information Service (GCIS) for better harmony and coordination.

Apart from creating awareness and understanding of the contribution of the Government to national
processes, effective communication would play a facilitative role in the change management process.
Well-coordinated and targeted communication would enhance visibility and a clear One Government
identity, which is vital for the successful implementation of policies and programmes.
The GCIS will coordinate all government communication, develop policies and plans, set standards
and eliminate duplication or contradictory messaging. The GCIS will be domiciled at MoICT, headed
by a Director General. It will establish guidelines for citizen engagement, and structure government
communication to convey effectively the official position of government as one entity.
8. Update communication platforms and efficiently leverage digital media
Government communication platforms for both internal and external stakeholders should be reviewed
to ensure that the Government’s voice is audible in the cacophony of divergent views in the public arena.
This entails transition from traditional channels of communication such as meetings, letters, memos and
circulars, to more expeditious electronic media platforms such as email, television, radio, magazines and
newspapers and social media.
The government should embrace digital communication, and require its agencies to establish an
intranet for internal communications on government programmes, policies and activities, updated on
a regular (weekly) basis. Similarly, to ensure coordination, the Government should convene an annual
national communication policy forum to review its performance.
9. Effectively manage government’s online presence
A digital media policy to guide the Government’s online communication practices and protocols should
be developed. This will include establishing a central government portal that shall be a repository of all
public documents, operated by the digital division of the GCIS. This portal shall be a one-stop shop, with
links to all government websites and key service outlets such as Huduma Kenya (www.hudumakenya.
go.ke). This exercise will involve rebranding of the government websites to ensure consistency in their
appearance, and updating content to serve the public’s needs.
10. Revitalise primary government communication channels and consolidate production and
publishing agencies
All the agencies that produce and publish government information (GAA, KYEB, KNA, DFS) should be
consolidated into one directorate under the aegis of the GCIS. It should also revamp and rebrand MyGov
as a weekly stand-alone newspaper (renamed Huduma News), to be distributed free of charge through
the National Government Administrative Organisation (NGAO) and other channels.
11. Address barriers to information faced by persons with disability
The Persons with Disabilities (PWD) Bill should be enacted. This is designed to facilitate production of
reading materials for the visually impaired. The Bill, which seeks to operationalise the Marrakesh Treaty8 to
8 The treaty defines mandatory standards and accommodations to enable access to information by the blind, visually impaired, and print
disabled.
which Kenya has assented, will provide for assistive technology for PWDs in Huduma Centres. Elimination
of these obstacles has clear social development implications, and is key to ensuring equal opportunities
for PWDs in society. The Government should allocate resources for translation of key policy documents
into formats that are easily digestible for people with disabilities (for example, Braille and audio formats).
12. Modernise and restructure KBC, vesting in it the functions of a public broadcaster
In this era of highly commercial media, which may have partisan views, it is imperative to have an impartial
medium that delivers official/government information in detail. At its heart, public broadcasting must
reflect a diversity of views. Secured funding and strong governance are important for an effective and
sustainable public broadcaster. Leveraging KBC’s vast assets and support from the Government through
substantial financial subventions will be critical in allowing the broadcaster to reinvent itself.
The task force recommends that the Government reviews the KBC Act to designate KBC as a public
service broadcaster. In this capacity it will have obligations to publicise important government
information and matters of public interest. The task force further proposes that signal distributor Signet
be separated from KBC and established as an autonomous entity charged with the management of
broadcast infrastructure, including transmission sites and signals. The Communications Authority (CA)
should continue to regulate issuance and allocation of frequencies and channels on the digital platform
and manage the telecommunications/broadcasting environment.
To resolve KBC’s perennial funding challenges, it is proposed that government clears all the corporation’s
historical liabilities. Additionally, the State should fully fund the corporation’s annual budget (currently
Kshs 4.2 billion) to cater for public broadcasting services. It is further recommended that a staff
rationalisation exercise be carried out to ensure that the corporation operates sustainably. Additionally,
it is recommended that the corporation be reclassified from 7C to 7A to upgrade personnel terms of
service. The corporation should establish editorial regulations to reflect its constitutional obligations,
including the development of Kenyan expression by providing, in the official and local languages, a
wide range of programming that takes care of Kenya’s socioeconomic and cultural diversity.
13. Proactively use community media and public communication platforms
In order to secure support for its initiatives, the Government should step up public engagement prior to
unveiling major policy initiatives. These should go beyond face-to-face platforms, such as barazas and
town hall meetings whose attendance has declined, to digital platforms that are accessible by majority
of citizens and preferred by the youth.
14. Depoliticise government policy
Official policy statements of the government of the day should be separated from pronouncements that
could be construed as politically partisan in their intent. This is to avoid the danger of official government
policy being confused with the agenda of specific political parties or personalities.

Conclusion
Global dynamics, coupled with an increasingly knowledgeable, restive and sophisticated population,
demand that government be swift in adapting to different circumstances. The Government should
identify and swiftly embrace new technologies, which if applied in public service, will advance
the governance principles of transparency, equal opportunity, public participation, integrity and efficient
service delivery enunciated in the Constitution.
The proposals contained in this report are geared towards instilling public confidence in those officers
charged with responsibility for government communication. A functioning public communication
architecture will inspire government employees beyond drawing a salary to promoting public good. It will
contribute to Kenya’s prosperity, delivering useful information to the public and position the Government as
one that acts in the best interests of the people.
Introduction
The Context of Government Communication
High cell phone and Internet penetration

Since the advent of Internet and cell phone technology, the Kenya government’s communication needs have
evolved rapidly in response to changing public expectations. Globally, it is estimated that there are roughly
50 billion communication devices that are networked. Even Kenyans of modest means can communicate
cheaply and conveniently, in a manner unimaginable 20 years ago.
Consequently, the Government must keep developing and adopting stronger communication methods,
learn to deliver information to the public in real time, thereby earning public trust. The upsurge in ‘citizen
journalism’ and the explosion in social media mean that target audiences are more empowered than ever.
This calls for a new orientation in public communication and massive upgrade of technology.
According to the Communications Authority, there are over 190 television and 350 radio stations on air,
without counting hundreds of online broadcasters and YouTube channels. There are roughly 46 million
mobile phone subscriptions in Kenya. Even allowing for multiple SIM card ownership, this means that the
majority of Kenyan adults – and many children – have access to a cellphone of some kind, to communicate
with each other and with the world at large. At the same time, data/Internet subscriptions stand at roughly
42 million. The majority of Kenyans thus have Internet access through cell phones, computers and other
Internet-enabled gadgets. Mobile devices have become the primary communications medium for most
people.
“The traditional broadcast model by government is ineffective and calls for a

new framework for communication, mindset change for government and a
new set of skills for senior government and public communication officers.”
Public Relations Society of Kenya (PRSK) submission
Changing demographics
Kenya’s population is one of the youngest in the world. The median age in Kenya is now 19 years. Nearly
four out of five Kenyans are below 35 years old. Many young people reaching voting age today were not
born when President Daniel arap Moi left office at the end of 2002. The media consumption habits of most
Kenyans have thus been shaped by very different norms from those used by the officers charged with
designing and implementing most of today’s public communication. This raises challenges about the
resonance of government messaging with the majority of the people.
The 2010 Constitution and the right of access to information

The promulgation of the new constitution in August 2010 after many years of protest and agitation changed
the relationship between citizens and government. The CoK 2010 was a compromise from a protracted battle
for social and political reforms, and contains many provisions dealing with national values, a progressive
Bill of Rights, guarantees of freedom of expression, access to information, media freedom and integrity.

These provisions are often invoked by the public in their quest for greater accountability from the State.
The Constitution also places a mandatory responsibility on the Government to be proactive in publishing
information of national importance.
Advancements in ICT
Kenya Vision 2030 recognises ICT as one of the key drivers of socio-economic development, and an
enabler in achieving middle-income country status. Within the last decade, advances in Information and
Communication Technology have had a dramatic impact on the lives of almost all Kenyans. The mobile phone
revolution has not just made voice and text communication widely accessible, but has become a constant
companion. The Internet has opened up a well of knowledge and information to hitherto marginalised
citizens. While the State has lost its virtual monopoly in the way information is accessed, controlled and
disseminated, this new world order has also provided plenty of opportunities for the Government to bring
information closer to the people.
Waning trust in government and institutions

The explosion in ICT has given rise to a multiple player in generation and communication of information,
thereby creating plurality of information sources through digital terrestrial broadcasting and the Internet
gateway. All these platforms present alternative content, challenging state-controlled media. This has made
the public less inclined to accept the official version of events, and less trustful of information emanating
from the State.
Advancements in news-gathering technology

Twenty years ago, a news crew would frequently comprise a minimum of three people: a reporter, a camera
operator and a sound technician. Today, one individual can report, take a photo and write a story for a news
organisation using a cell phone. This has had a dramatic effect on the cost of gathering news, and the speed
and ease with which stories can be told from the most remote parts of the country. To maintain editorial
standards, there is now increased demand for a new generation of multi-skilled professionals, better known
as ‘multimedia journalists’, working in a converged news environment.
Citizen reporting and fake news

The ease with which hitherto untrained voices can now be heard has given rise to a new generation of
journalists who can establish entire careers through accessing the Internet. As elsewhere in the world,
this global publishing platform has spawned a ready supply of ‘fake news’, presenting a new challenge to
professional and institutional sources of current affairs content. On the flipside, it means that newsgathering
and information dissemination is no longer a preserve of professional media houses. Anyone can report
events as they happen, provided they have witnessed them. Government, in all its facets, is a juicy subject
of such news.
Information security
Personal information for all citizens is now under greater risk of theft and misuse. This has spurred the
movement for data protection by many pro-rights lobbies. The management of private information has
become a subject of intense interest and concern worldwide, because of data mining.
The above are some of the factors that have dramatically changed the phenomenon of communications
and redefined the context within which government communicates with its citizens. Established ways of
communicating have been disrupted by technology, and the Government has to be adaptive to the new
reality to get its message across. Submissions to the task force indicate that government structures, policies
and methods of communication are yet to acclimatise to this changed environment, thus diluting the
impact as well as public understanding and support of much of its messaging.

Chapter One
Chapter One
The Culture and Mindset of Government Communication
“The Government is not serious about public participation. They have

become platforms for dishing out handouts. Only civil society and interest
groups make submissions during public participation hearings”
Chapter Two
Member, National Assembly ICT Committee
Overview
Since Independence in 1963, public trust in government has oscillated between ‘high’ and ‘low’ epochs,
depending on the politics of the day. However, in recent years, growing sophistication of the citizenry,
brought about by greater choice in information sources and changing media consumption patterns, have
contributed to the mistrust of information originating from government.
Chapter Three
Stakeholders highlighted routine breaches by public officials of Article 10 of CoK 2010 on national values
and principles of governance; Article 232 that outlines the principles that govern public service; and Chapter
6 on integrity and leadership, as major reasons for the erosion of confidence in government.
Consequently, even the task force’s public participation forums faced reticence and caginess by key
stakeholders. Some of the senior public officers expressed fear that the task force, though an independent
body, would not be objective in its recommendations because “even you have been appointed by the
Chapter Four
Government”.
Some insisted on talking off the record, dreading that they might be reported if they spoke candidly. Others
were doubtful that the task force’s report would have any effect since “we’ve seen task forces before and
nothing happened”. The task force found itself in the awkward position of having to declare its independence
and reassure public officials that they could speak freely on the record before commencing hearings.
“Our first source of information on what’s happening is social Chapter Five

media, then we go to other sources and government to confirm”
Member, Senate ICT Committee
Some stakeholders claimed that social media outranked government sources as a first source of reliable
public information. Government decision-making and communication processes were described as rigid,
top- down, even dictatorial, and that the Government has not fully embraced the democratic principle
of public participation. As a result, civil society and special interest groups tend to dominate consultation
Chapter Six
initiatives.
The Constitutional imperative – living the national values

The Constitution’s imperatives and aspirational provisions have placed citizens at the centre of governance
and opened space for public participation in policymaking. It has also empowered them to demand better
services through protest and picketing.
The values and principles set out in Article 10 (2) and Article 10 (1)9 of the Constitution bind and require
full compliance by the State and public servants. These values are patriotism, public participation, human
dignity, equity, inclusiveness, good governance, integrity, transparency and accountability. The right of
citizens to access information held by the State is provided under Article 35. The state is required to publish
and publicise any important information affecting the nation is also mandatory.
Further, the CoK 2010 (Article 232) outlines the specific values and principles of public service which must
be observed: high standards of professional ethics; efficient, effective and economic use of resources;
responsive, prompt, effective, impartial and equitable provision of services; accountability for administrative
actions; transparency and provision to the public of timely, accurate information.
It is evident that nearly a decade after promulgation, these constitutional provisions have not been broadly
adopted in the public service in spirit or practice. This calls for a paradigm shift through an elaborate culture
change programme.
Emerging Issues
Government is not alive to changes in the social contract driven by CoK 2010
The right of access to information held by the State and the obligation on the State to publish and publicise
important information affecting the nation has not been implemented fully. The lethargy in disclosure or
even concealment of information that could benefit wananchi flows from the mistaken notion that the duty
of public officers is ‘to keep government secret’.
Evidence of reluctance to publish citizen empowering information is writ large: nonfunctional or out of date
websites; lack of information disclosure plans or supporting budgets; lack of assessment of effectiveness
of public information disclosure in performance contracts are all examples of this reticence. There are
no consequences for not complying with these clear constitutional provisions and others to access to
information legislation. Conversely, the task force found few or insufficient positive incentives and rewards
for exemplary public communication.
Mistrust between media and government, and discourteous treatment by public officials
Media practitioners lamented casual, discourteous treatment by some senior government officials. Both
local and international media complained of being kept waiting for hours after the appointed time without
explanation. Government officials frequently cancel appointments at the last minute in total disregard of
basic protocol and the wastage of resources it entails. This undermines trust. The result is a frustrated press
that ends up publishing ‘what we have’ even if it does not represent the official position or full picture.
Government officials on the other hand complain of media hostility and their reliance on half-truths when
reporting the Government.
Inaccessibility of information to minorities and persons with disabilities
With few exceptions, some of which are cited in this report, government communication platforms, including
websites, social media and publications remain, on the whole, out of reach to persons with disabilities. Some
9 Article 10 (1): The national values and principles of governance bind all State organs, State officers, public officers and all persons whenever
any of them --(a) applies or interprets this Constitution;(b) enacts, applies or interprets any law; or (c) makes or implements public policy
decisions.

stakeholders noted that the language used in public information was inaccessible, and that there were
Chapter One
often inordinate delays in implementing promised government programmes targeting PWDs. This fuels
misgivings about official public pronouncements.
The situation of the PWDs is best captured in the submission by the Kenya National Commission on Human
Rights, which noted: “Persons with disabilities face barriers in various aspects of life including to information
that impedes their ability to live independently and participate fully in all aspects of life with dignity. The
identification and elimination of these obstacles and barriers is key to ensuring equal opportunity for
Chapter Two
participation in society”.
While the Government acknowledged this challenge and indicated that it is progressively addressing it in
order to comply with Article 7 and 35 of the 2010 Constitution, the urgency is not evident in its actions.
Inadequate funding for public broadcasting services

The task force heard that in terms of finances and market share, the Kenya Broadcasting Corporation (KBC) is
Chapter Three
in its worst state in the 60 years of its existence. The situation is attributed to severe under-funding, obsolete
equipment, a bloated workforce and historical debts amounting to nearly Sh4.3 billion as at July 2019. The
broadcaster’s revenues continue to shrink year after year. Currently, internal monthly revenue is about Sh70
million, against a monthly expenditure of Sh265 million. The wage bill stands at Sh1.1b per annum, which
translates to 86% of its annual budget. The corporation’s development budget is below Sh800m, against a
projection of Sh4.4 billion annually.
On the other hand, there are policy and legal challenges that need to be addressed to help KBC transform
Chapter Four
into a formidable, impartial and innovative public broadcaster.
Lack of transparency and accountability

A running thread from several presentations was the presence of multiple, competing channels of
government communication that sometimes work at cross-purposes. These channels are not driven by a
desire to disseminate information premised on national values of transparency and accountability, but are
driven by special interests.
Chapter Five
Poor message discipline in active social media accounts
In cases where government agencies run active social media accounts, they are inclined towards promoting
the personal achievements of the management or chief executive officer at the expense of the Government
or organisation’s agenda.
Inaccessible officials and poor service delivery

Chapter Six
Government officials were said to be largely inaccessible or unavailable to respond to important inquiries,
or attend to citizens’ service needs. A poor public sector work ethic and poor service delivery by many
institutions were other frequently cited reasons. Institutional failures were manifest in delays, abuse of office,
discourtesy, injustice - particularly to the poor and vulnerable - and indiscipline in time management.
These views were not limited to the government communication function, but reflected service delivery in
general, which contributes to low trust in government and hence its tarnished image.
“In the era of fake news, we recommend all government social

media handles to be verified and to entrust them to qualified
personnel to handle them”
Brand Kenya Board Submission
Slow government response to labour disputes

Trade unions blame the frequent strikes by workers and disputes to arbitrary actions by employers, inefficient
communication and outright disregard of labour laws by the managements of many SAGAs.
It was observed that the Ministry of Labour did not respond to strike notices within the timelines as stipulated
in Article 41 on Labour Relations, and as read together with other labour laws. It was observed that the
Ministry rushes to court to declare strikes unlawful at the eleventh hour, thereby occasioning disruption of
services and industrial unrest. These numerous industrial disputes not only attract bad press, but portray the
Government as being aloof, uncaring, authoritative and vindictive.
Inadequate, sometimes tokenistic public consultation

The Ministry of Education’s implementation of the new Competency-Based Curriculum and review of
higher education triggered an uproar from some stakeholders, who felt that their input had not been
sought or considered, and implementation rushed. Religious and other organised bodies complained of
lack of mechanisms for public participation in in the formulation of most policies. They complained that the
Government ambushed them with initiatives on which the public had not participated or been sensitised.
The unions and government frequently resort to media and (social) blogs to pass their message across.
The upshot of all this is that government decision-making processes are still autocratic, rigid and top-down.
Government has not fully embraced the democratic principle of public participation, which has further been
discredited by culture of hand out and apathy. Hence, civil society and special interest groups dominate
public participation initiatives.
Stakeholders called for a complete shift in the mindset and a new organisational culture to keep pace with
the constitutional standards and expectations of an increasingly informed and assertive citizenry.
“Persons living with disability face barriers in access to information

that impede their ability to live independently and participate in all
aspects of life with dignity”.
Kenya National Commission on Human Rights

Insufficient information on sharing of benefits from natural resource exploitation
Chapter One
Stakeholders asked the Government to provide more information on the equitable access to and sharing
of benefits from the exploitation of natural resources, including petroleum and extractable minerals.
Stakeholders, including those the task force visited in various counties, expressed little awareness of the legal
and policy framework for exploitation of such resources, and the benefits accruing from it. They said lack of
clarity on these issues was a cause of community conflicts on matters such as wildlife compensation and the
distribution of proceeds from mining activities. The task force found the levels of suspicion and mistrust to
be particularly acute in the area of oil exploration, which requires massive public awareness.
Chapter Two
Contradictory and incoherent policy communication
Stakeholders cited the Huduma Namba registration, the proposed Housing Levy and Competency Based
Curriculum as examples of contradictory government communication. It is symptomatic of poor strategic
coordination between various arms of government.
Chapter Three
The introduction of the Data Protection Bill in the National Assembly when the Senate version of the same
law was in its second reading stage was flagged as another example. Stakeholders complained about
government ministries, departments and agencies working in silos, thus lacking needed synergy and
coherence in messaging.
Government communication is perceived as reactive and terse
A study of public communication revealed that while government routinely releases information on issues
Chapter Four
perceived to be of national importance, it is mostly a reactive and short-term response to emerging issues
and crises of the day.
Further, there was no evidence that public communication is ever measured to determine its effectiveness.
In most cases, it adopts a one-way communication approach instead of the two-way engagement model
that entails creating awareness, interacting with citizens, listening and providing feedback that then informs
government decision-making.
Evidence of the one-way communication model that the Government employs could be seen in the
executive orders and circulars that it issues from time to time to communicate policy decisions. The tone
Chapter Five
and language of these communications and other directives tends to be terse, authoritative and clearly
expectant of maximum compliance from the target groups. Failure to comply comes with the threat of
punitive action.
Dispatches from government communication units such as the Presidential Strategic Communication
Unit, Kenya News Agency and Public Communication Units in MDAs that provide public communication
and media relations services are couched in language that is clearly informational and instructional, the
Chapter Six
assumption being that citizens are a passive audience whose role is to act without question on what is
being disseminated. Even where public officials engage with the citizens directly during barazas and rallies
or public participation forums, the delivery comes out in a manner that anticipates public endorsement of a
predetermined position or message, without providing room for the citizens to ask questions.
There were instances when official government dispatches were withdrawn, with social media accounts
being pulled down where information was posted. Such inconsistencies and unpredictability in government
communication has created confusion and loss of trust in government messaging.
The need for an all-encompassing strategic communications strategy

The overarching purpose of strategic communication is to advance a shared view of the Government’s
mission and to mobilise broad public support for its vision. This is achieved through continuous engagement
with the media (as opposed to occasional press releases, media briefings and so forth) and by maintaining
effective channels of communication between the Government and its wide set of stakeholders.
This therefore calls for a coherent, long term, overarching government communication policy that defines
the philosophy that underlies its actions, informing all the project-specific communication initiatives derived
from this guiding document. These plans help governments become proactive, rather than reactive, and to
adopt a long term rather than a short-term perspective. Importantly, this strategic communications policy
defines the way in which government engages with its citizens.
To be effective, however, these well thought out strategic communications policies need to be supported
by enabling administrative policies and procedures, and competent personnel, as well as sufficient financial
and material resources.
Exceptions to the norm – local good practice

Some state departments and agencies have functional communications systems, which should be
emulated and applied across the government as standard practice.
• Kenya Ports Authority, the Kenya Revenue Authority and Makueni County are cited by the
Commission on Administrative Justice for exemplary proactive disclosure of information on websites
in compliance with the public right to access information
• Kenya National Library Services leverages emerging technologies in public service delivery,
as evidenced by a dynamic website that issues International Standard Book Numbers (ISBN) to
publishers online, interactive social media pages and reliable internet connectivity that is accessible
to the public nine hours daily free of charge.
• Huduma Centres exhibit strong citizen-centric public service delivery, responsive culture and
mindset, satisfactory turn-around time and strong organisational branding.
• The National AIDS Control Council has a strong longstanding stakeholder engagement framework
that has earned it trust and credibility.
• The National Government Communication Centre in the Ministry of Interior and Coordination of
National government is a dynamic strategic rapid response unit that has proved that it is possible to
play the communication role effectively in government, if it is well-resourced and harnessed.
Stakeholders’ presentations to the task force expressed disenchantment with government communications
in the following sectors:

• Labour
Chapter One
• Education
• Natural resources and mining
• Health
• Persons with disabilities
• Agriculture
• Investment and manufacturing
• The Big Four agenda
•
Chapter Two
Security and terrorism
• Fight against corruption

1. Step up open, early and face to face consultation, especially at the grassroots. This should include
barazas and town hall-style meetings in partnership community and faith based organisations.
Chapter Three
2. Set measurable performance-based communications targets for all MDAs and SAGAs. These targets
should be accompanied by sanctions and reward for excellence.
3. Provide PWDs with signage in Braille, live assistance and intermediaries, including readers and
professional sign language interpreters, to facilitate access to public facilities and information. PWDs
should have access to new information and communication technologies and systems, including the
Internet.
4. Empower officers to speak by clarifying contradictions in law10 to give effect to the clearly progressive
Chapter Four
laws that encourage information disclosure. These functions should be adequately funded.11
5. Replicate the Huduma Centres model across Ministries, Departments and Agencies.
6. Repurpose induction of MDAs, boards and senior officers of SAGAS to include specific programmes
on culture change. Induction by the State Corporations Advisory Committee, PSC and others should
link information and development. Culture and mindset change should be an integral part of the
Continuous Professional Development Curriculum in the context of strengthening the Government
workforce. Coordination between the State Corporate Advisory Committee (SCAC), Public Service
Commission (PSC) and Kenya School of Government (KSG) is key12.
Chapter Five
7. Revitalise and transform Kenya Broadcasting Corporation into a fully funded public broadcaster.
Towards this end, the following measures are proposed:
a) Government to offer a bailout package of Ksh5 billion to settle historical liabilities and stabilise
KBC.
Chapter Six
b) Amend the KBC Act to designate the corporation as a public broadcaster, with full state funding
in furtherance of Article 34 (4) of the Constitution
c) Require all MDAs to give first priority to KBC for all their advertisements
10 A raft of specific proposals on laws and policies is included in Chapter 5

11 See recommendations on government communications infrastructure in Ch. 4
12 Broader recommendations on training in Chapter 6
d) KBC to be obliged to dedicate airtime to broadcast government information apart from other
content
e) KBC to carry out staff rationalisation to sustainable levels
f ) Authorise the corporation to enter into Public Private Partnerships (PPPs)
g) Separate Signet Ltd from KBC and make it an autonomous entity. Capitalise it to roll out
transmission infrastructure to cover 100% of the country
h) Reclassify KBC from category 7C to 7A State Corporation to attract and retain a skilled workforce
i) Ensure that qualifications and professional experience are duly considered in making
appointments to the Board and senior management
8. Encourage proactive disclosure of information. The government should seek to make information
available on its projects, situations and plans. This is particularly so in regard to equitable access to and
sharing of benefits from wildlife and natural resources exploitation, including water, petroleum, coal
and other extractable mines.
9. Formulate and enact a Public Participation law and regulations. The law should provide engagement
framework on matters requiring public input and participation. The proposed law and accompanying
regulation will give effect to constitutional provisions on public participation.
10. Develop, regularly review and implement a Public Communication Policy. The purpose of the public
communication strategy is to promote Government as One, by speaking with one voice and by
maintaining a continuous and systematic process of sharing information on the Government. A robust
public communication strategy is implied in in the Constitution, the national values and principles of
governance. The policy should be implemented through the National Development Implementation
and Communication Committee structures in line with the Executive Order No. 1 of 2019 or as may
be revised appropriately. The task force notes that an effort in this regard was undertaken in the 2016
Public Sector Communication Policy that is yet to be implemented.
11. Develop policy-based public education campaigns. Communication strategies and campaigns should
be formulated for major government programmes and sectors in which the public has potential
great interest such as the extractives (petroleum and mining), energy, environment, agriculture, water,
education, counterterrorism, infrastructural development, road safety and sports.
12. Establish a framework for public service announcements for all media. Public service announcements
should be built into conditions for broadcasting licences. The government and media should agree
on a framework for public service announcements to cover public interest information and crises,
such as epidemics, catastrophes like flash floods, famine/drought, relief food supply, cyber security,
anti-terrorism (alerts for suspicious packages), and public health information like immunisation. An
independent body would be charged with compliance to avoid failure to comply with the provision on
Public service announcements.
13. Establish a performance monitoring and evaluation team/framework to track implementation of

communication strategies and government communication plans.

Chapter One
14. Establish a government Public Communicators’ Forum. This will serve as a platform for professional
discourse on communication within government, comprising directors of communication and the
leadership of the GCS. The GCS should organise a biannual meeting of Government communicators to
share experience; ideas and agree how best to perform its mandate. The forums should deliberate on
the implementation of the Government’s communication strategy to achieve the national goals. The
forum will also review and monitor compliance by ministries.
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15. Fast track the Digital Government Initiative. This will enhance service delivery through e-government.
16. Enhance the Kenya Open Data Initiative (KODI) portal. This will ensure that relevant organisations and
ministries upload current information in a timely manner.
17. Constitute a multisectoral government communications advisory team. This will follow up on
implementation of these recommendations and other communication agenda.
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Chapter Four
Chapter Five
Chapter Six
Chapter
Chapter Two
Chapter Two
Constitutional and Legal Context of Public

Communications and Information
Term of Reference 1:
Study and review existing policies and laws on public communication and information and advise
as to their appropriateness and consistency with constitutional requirements, national goals and
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aspirations, emerging socio-economic trends and advancements in information communication

and technology
The Constitution of Kenya 2010 (CoK 2010) heralded a radical socio-political transition from authoritarianism
to an ‘accountable’, ‘horizontal’ and ‘responsive’ state structure.13
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Article 35 of the Constitution recognises access to information as an important cog in the wheel of democracy.
It provides for the right of citizens to access information held by the State and information held by another
person and required for the exercise or protection of any right or fundamental freedom. Article 47 provides
that ‘Every person has the right to administrative action that is expeditious, efficient, lawful, reasonable and
procedurally fair.’ To implement the provisions of Article 35, Parliament enacted the Access to Information
Act (2016), which radically alters the way publicly held information is to be stored, retrieved and shared with
the citizenry.
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Similarly, the Public Service (Values and Principles) Act (No. 1A of 2015) provides for the provision to the
public of timely and accurate information and the promotion of transparency and accountability. The Public
Finance Management Act, 2015, section 10, provides that the Parliamentary Budget Office shall subject to
Article 35 of the Constitution, ensure that all reports and other documents produced by the Parliamentary
Budget Office are prepared, published and publicised not later than fourteen days after production.
Access to information is therefore fundamental to the exercise of the Bill of Rights, and realisation of the
principles of governance enshrined in Article 10 of the Constitution. However, the country has not moved
swiftly in enacting, formulating and implementing adequate policies and regulations to facilitate information
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and public communications, as envisaged in the Constitution.
There is a retinue of unharmonised statutes that are neither aligned to the CoK 2010, nor today’s social,
political and technological realities.
Citizen awareness
Despite the spaces created for their expression and information, many citizens interviewed either did not
know the existence of the laws touching on access to information or were skeptical. However, awareness
was higher about laws that hinder access to information, or are likely to be invoked by public servants to suit
their own interests, contrary to the provisions of articles 33, 34 and 35 of the Constitution.
13 Speaker of the Senate v AG [2013] eKLR.

Constitutional and legal obligations for government and citizens
The task force found that Articles 10, 33, 34, 35, 47, 50,117, 118, 124 and 196 of CoK 2010 offer some of
the greatest opportunities for the effective management of government information and enhanced public
communication. By way of example:
• Article 35 reiterates the principle that ‘every citizen has the right of access to information held by the
state’ and highlights the obligation that ‘the state shall publish and publicise any important
information affecting the nation.’
• The Access to Information Act, 2016 (‘ATI Act’) was enacted to give effect to Article 35 on the right
to access to information.
• Article 47 provides that, ‘Every person has the right to administrative action that is expeditious,
efficient, lawful, reasonable and procedurally fair.’
• Article 54 (1) (b) obligates the State to ensure that all persons with disabilities have reasonable
access to all places, public transport and information while Article 7 obligates the State to promote
the development of Kenyan sign language, Braille and other communication formats accessible to
those living with disabilities.
• The Public Service (Values and Principles) Act, 2015, provides for the provision to the public of timely
and accurate information and the promotion of transparency and accountability.
• The Public Finance Management Act, 2015, section 10, provides that the Parliamentary Budget
Office shall be subject to Article 35 of the Constitution, ensuring that all documents produced by
the Parliamentary Budget Office are prepared, published and publicised not later than fourteen days
after production.
If purposefully implemented, these laws provide opportunities for effective management of government
information and building public trust in government through enhanced public communication.
Kenya’s international obligations on the Right to Information

The CoK 2010 places emphasis on freedom of expression and access to information as fundamental human
rights and the cornerstones of democracy. These rights are further buttressed by regional and international
treaties ratified by Kenya, and therefore domesticated into the country’s laws under Article 2(6) of the
Constitution. The treaties relevant to information and communication include:
• The Universal Declaration of Human Rights of 1948
• The International Covenant on Civil and Political Rights (ICCPR)
• The Protocol to the African Charter on Human and Peoples’ Rights on the Rights of Persons with
Disabilities in Africa
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• The Declaration of Principles on Freedom of Expression in Africa adopted by the African Commission
in 2002
• The Model Law on Access to Information for Africa of 2013
• The Guidelines on Access to Information and Elections in Africa of 2017
These policy and legal frameworks provide opportunities through which the Government can improve
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access to public information, both at national and county level.
Access to county government information
The obligation to respect freedoms of opinion and expression is binding on all State organs, both national
and local. The County Government Act recognises timely access to information, data, documents and
other information relevant as being critical to policy formulation and implementation. It is one of the
main principles influencing citizen participation in county affairs. Part IX of the Act is dedicated to Public
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Communication and Access to Information.
“The County Government Act recognises timely access to information

relevant to policy formulation as one of the main principles influencing
citizen participation in county affairs”
However, the task force found that just like the national government, counties have been reluctant to
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implement policies and laws geared towards facilitating access to information.
Legal and administrative barriers to effective communication
The task force established numerous barriers to effective government communication. These include:
i. Policies and laws that are inimical to transparent public communication and antagonistic to
the express provisions of the CoK 2010. They include the Official Secrets Act (Cap 187), and the
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Preservation of Public Security Act (Cap 57), both of which have provisions restricting access to
information
ii. An obscure record classification system in many civil registries across ministries, departments and
other agencies of the State
iii. The disharmony between, on one hand, the functions of the Kenya Film Classification Board (KFCB)
and the Licensing Officer (both under the Films and Stage Plays Act, Cap 222) and on the other, the
Kenya Film Commission (KFC), established through Legal Notice No. 147 of 2015
iv. Lack of clarity in the mandate for regulating broadcast content between KFCB and CA

v. Overlap between the Complaints Commission (CC) established under the Media Council Act
(2013) and the Communications and Multimedia Appeals Tribunal (CMAT) established under Kenya
Information and Communications Act (KICA), Cap 411A in resolution of disputes relating to media
vi. Challenges to the implementation of the Access to Information Act owing to lack of regulations
vii. Restrictions in the HR manual that specify who is authorised to speak. These limit the efficacy of
government communication
Why enabling policies and laws matter
The use of policies and legal frameworks in public communication serves to strengthen democratic
institutions. These frameworks hold the Government accountable to citizens and provide platforms for
public participation, hence transparency in decision-making.
Effective communication helps governments to influence public opinion and maintain their legitimacy. They
develop policies and laws that provide an appropriate framework in which this happens. New technologies
are now enabling those in power to challenge the formality of press conferences and communiqués – the
current US President’s prolific use of Twitter being a classic example – but the importance of consistent,
professionally-articulated communication is generally highly valued.
It is therefore imperative that both the national and county governments enthusiastically embrace the
central role of communication and information in their broader meanings. Information sharing needs to be
understood as crucial to all governmental activities, and as a means of empowering citizens with the tools
with which to make the right choices that will better their lives. Proactive publishing of information must be
integrated into Kenya’s democratic and development agenda.
Task force recommendations on legal and policy issues
The following specific recommendations need to be realigned with the 2010 Constitution.
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Access to Information Act
The Issue
The principal object of this Act is to give effect to Article 35 of the Constitution and thereby facilitate
access to information held by Government ministries and other public authorities. The Act recognises
access to information as a right bestowed on the Kenyan people, and seeks to promote proactive
publication, dissemination and access to information by the Kenyan public in furtherance of this right.
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It also spells out the mechanisms for ensuring public access to information, as well as the factors that
may hinder the right to this access. It is borne of the realisation that access to information held by
Government and public institutions is crucial for the promotion of democracy and good governance.
However, the Act has not been implemented because of lack of necessary policy framework and
regulations. The Act presents a challenge regarding ICT Cabinet Secretary role, formulation of
regulations and overall responsibility for the implementation of this Act.
Recommendations
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• Review the ATI Act and reassign its implementation from MOICT to the Ministry of Public
Service
• Develop and implement access to information policy
• Develop and implement access to information regulations
• Operationalise the Data Protection Act, 2019
• Carry out an public awareness campaign on the ATI Act
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Public Service (Values and Principles) Act
The Issue
This Act gives effect to the provisions of Article 232 of the Constitution regarding the values and
principles of public service and connected purposes. The Government has not enforced the provisions
of the Act, thereby inhibiting the sharing of government information. The emphasis in the values and
principles of the public service is on performance through professionalism, efficiency, effectiveness and
economic use of resources. Emphasis is also placed on the timeliness of service delivery, impartiality,
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transparency and equity through ensuring that all levels of the public service reflect the face of Kenya.
Recommendation
• Develop regulations and guidelines to give effect to the Public Service (Values and Principles)
Act.

Computer Misuse and Cyber Crimes Act, 2018
The Issue
The Act provides a framework to prevent and control the threat of cybercrime, that is, offences
against computer systems or committed using them. It is intended to protect and ensure a secure
and safe digital environment. Notwithstanding its intent, its implementation has been met with open
resistance, including court injunctions. Its application in controlling ‘fake news’, which eclipses authentic
government information, remains negligible.
Recommendations
• Amend the Act to provide for ‘public interest’ defenses, such as unauthorised disclosures of
computer data that nevertheless expose fraud, abuse of office, misappropriation of public funds
and self-centered interests. This is consistent with the UN Special Rapporteur’s recommendation.
The lack of such defences heightens the risk of government and private whistle-blowers being
unfairly prosecuted, which worsens the chilling effect on critical public disclosure of wrongdoing
and misuse of office.
• Section 4 (1) should only penalise unauthorised access as described in the provision if it is
committed with intent to obtain computer data or other ‘dishonest’ intent. The law and connected
regulations should also provide examples of ‘dishonest’ intent.
• Section 10(2) should also limit the definition of a ‘protected computer system’ to those systems
that are necessary for a specified range of legitimate national security and public safety purposes.
Executive Order No. 1 (2019)
The Issue
The Framework for Co-ordination and Implementation of National Government Development
Programmes and Projects provides for coordinated strategic communication to the public and other
stakeholders on the progress of government services, and positions communication personnel in
critical committees, but with a limited role.
Recommendations
• Review scheme of services for communication cadre, aligned to the proposed GCS, to ensure that
they are strategically positioned to execute their roles within these committees.
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The National Assembly Powers and Privileges Act (1998)
The Issue
This Act prohibits public officers from giving evidence or producing before the National Assembly or
a committee of the Assembly ‘any paper, book, record or document that relates to correspondence of
any naval, military or air force’ This information can only be disclosed with the consent of the President.
This limits the free flow of government information.
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Recommendation
• The Act should be amended and aligned with Article 35 of the Constitution on access to informa-
tion held by the State.
Kenya Broadcasting Corporation Act
The Issue
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The Kenya Broadcasting Corporation (KBC) Act provides the legal framework for public broadcasting
but does not provide adequate funding for it.
Recommendations
• Review KBC Act to designate the corporation as a public broadcaster with full funding from the
National Treasury to enable KBC fulfill this mandate.
• Review the Broadcasting Regulations of 2009 to align them with the enhanced role of the public
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broadcaster.
Film and Stage Plays Act/Legal Notice No. 147 of 2015/KICA

Act of 2013/ Alcoholic Drinks Control Act
The Issue
The Government has not fully utilised film as a powerful medium of communication, despite the
broad and overlapping mandates of various agencies (KFCB, Department of Film Services, Kenya Film
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Commission and Communication Authority). There is an overlap in roles between the Kenya Film
Classification Board (KFCB) on one hand, and the Licensing Officer (both under the Films and Stage Plays
Act, Cap 222) and Kenya Film Commission (KFC) established through a Legal Notice No. 147 of 2015 on
the other. Similarly, there is duplication of mandate between KFCB and Communications Authority of
Kenya (CA) on the regulation of broadcast content.
Recommendations
• Oversight of the film industry should be divided into two distinct functions, namely
film regulation and film development and promotion. The regulatory function should
lie with both KFCB and the Licensing Officer under Cap 222. The film development
function should be the mandate of KFC. Both these functions may be enshrined in an
omnibus law to be called The Kenya Film Act as per the Draft 2017 National Film Policy.

• Regulation of broadcast content should be the exclusive mandate of the Communica-
tion Authority (CA). The definitions of ‘film’ and ‘exhibition’ under Cap 222 should be
restricted and distinct from the definitions of ‘programme’ and ‘broadcast’ under Cap
411A. In cases where ‘films’ are communicated to the public via ‘broadcast’, the content
regulation mandate regarding such ‘programme’ content should lie solely with CA,
since it is the lead agency empowered to regulate all aspects of broadcasting in Kenya.
• Fast-track the pending assent and publication of the National Film Policy and National
ICT Policy to guide state corporations dealing with content in implementation of laws
and regulations within the creative economy.
• Government to enhance use of film, in collaboration with creative artistes, as a tool to

shape the hearts and minds of citizens.
KICA 2009 (Amended 2013) and Media Council Act 2013
The Issue
The KICA provides part of the framework for the realisation of the freedom of the media (Article 34 of
CoK 2010) in relation to the oversight over broadcasting through the radio frequency spectrum that
should be used for the benefit of the public, as per CoK 2010. The Act provides for the establishment of
the Communication Authority of Kenya which is charged with enforcing broadcasting media standards
and regulating and monitoring compliance with those standards. The Act further provides for a
complaints and regulatory oversight body as a mechanism to ensure broadcasting media standards.
While recognising the fact that every person has the right of freedom of expression which is limited
under Article 33 and 34, the Act seeks to provide a broadcasting media standards framework and to
regulate and monitor compliance in a converged environment of telecommunications and broadcasting
technologies. The 2013 Act amended the Kenya Information and Communications Act (2009) in order,
among other things, to align it with the Constitution.
On the other hand, the mandate of the Media Council Act is to provide part of the framework for the
realisation of the right of freedom of the media as provided for under Article 34 (5) of the constitution.
The Act provides for a body that is free of control by government, political or commercial interests that
sets media standards, regulates and monitor compliance with those standards. The Act further provides
for a complaints and regulatory oversight over media standards.
KICA and Media Council Act lack clarity on dispute resolution mechanism with regards to media.
There is the Complaints Commission (Under Media Council Act 2013) and the Communications and
Multimedia Appeals Tribunal established under KICA 2009 (As Amended 2013)).
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Recommendations
• As a stop-gap measure awaiting the review and harmonization of KICA and MCK Act,
resolution of disputes between persons aggrieved by the publication by or conduct of
a journalist or media enterprise should follow a two-step hierarchical process that begins
with Complaints Commission (CC) and ends with Communication and Multi-Media
Appeals Tribunal (CMAT). The dispute resolution forum of first instance should be the CC.
Therefore, the MCA should provide that where parties in the disputes are dissatisfied with
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the decision of CC, they may appeal to CMAT or seek redress in the courts.
• Review the Media Act 2014 and the Kenya Information and Communication Act (KICA).
• Review KICA to include public communication functions among the uses of USF.
Institute of Public Relations and Communications Management Bill
Kenya has a vibrant Public Relations and Communication Management (PRCM) industry. However, it
lacks a legal framework to regulate the way professionals conduct their practice. There is no mechanism
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to enforce the code of conduct for the PRCM practitioners as well as standards for their training. Together
with the lack of a coherent understanding of the PR and communication practice in the public sector,
the industry has been subjected to manipulation, resulting in negative perceptions that have injured
the profession. It also poses a challenge to the implementation of Article 35 of the Constitution and
the Access to Information Act, 2016, in a manner that embraces national values and principles of
governance under Article 10.
Recommendation
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• Enact into law the Public Relations and Communication Management Bill, 2019. This will
professionalise PR and Communication Management Practice in Kenya. It will also help public
communication officers to operate within a professionally regulated environment
• Formulate and implement Public Relations and Management Policy.
Languages of Kenya Bill of 2015

Chapter Six
The Issue
Article 7 (3) obligates the State to promote and protect the diversity of languages of the people of
Kenya and promote the development and use of indigenous languages, Kenyan Sign language, Braille
and other communication formats and technologies accessible to persons with disabilities. Article 11
(2) further requires the State to promote all forms of national and cultural expression through literature,
the arts, traditional celebrations, science, communication, information, mass media, publications,
libraries and other cultural heritage. These constitutional provisions put the Government compel the
Government to exploit indigenous languages and cultural expressions to communicate its agenda, yet
there is no supporting legislative framework for use of such indigenous Kenyan languages. The Bill is
yet to be enacted into law.

Recommendations
• It is noted that policies and regulations around content development cut across the Ministry of
ICT and that of Sports, Culture and Heritage. Therefore, an Inter-ministerial committee should
be created to explore how to stimulate effectively formulate law and regulations to this effect.
• Finalise the policy and law on the use of indigenous Kenyan languages in communicating the
Governments agenda. This will enable the actualization of the provisions of (Article 7 (3) of CoK
2010.
Other statutes that impact public communication
The issue
Apart from the above, there are still other laws that have implications for access to government
information and public communications.
Recommendations
• Align the following additional statutes to comply with CoK 2010:
o The Prevention of Terrorism Act (2012)
o The Preservation of Public Security Act (1997)
o The Official Secrets Act (1968)
o The Public Order Act
o Evidence Act, section 131
• Initiate public awareness on the classification of government information and its rationale.
• Consolidate and amend the Defamation Act relating to libel, slander and other malicious false-
hoods.
Persons with Disabilities Bill
The Issue
Persons living with disabilities face numerous obstacles in accessing information. Although the
Constitution contains several provisions intended to facilitate information by PWDs, the country is yet to
enact a legal framework to facilitate their access to government information through suitable formats.
Recommendations
• Enact the Persons with Disabilities Bill approved by Cabinet in 2018 which obligates public institu-
tions to provide information in accessible formats and technologies appropriate to different kinds
of disabilities.
• Develop sign language policy.
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Recommendation
Formulate the following policies and regulations:
§ Government Communication Policy and Strategy
§ E-government policy
§ Public Service (Values and Principles) Regulations
§ National Language Policy
§ Social Media Policy
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Human Resource Manual 2016
The Issue
The manual states that ‘Any information relating to Government business should not be communicated
to the general public without the sanction of the Authorised Officer of the State Department concerned.’
This limits the efficacy of government communication.
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Recommendation
The list of officers authorised to communicate for government should be expanded to include,
among others, communication officers. This should be included in the national government
communication policy.
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Chapter Three
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Developing a Skilled, Modern Public Communication Workforce
Identify and review any gaps and inadequacies in the staffing levels of public communication
offices in Ministries/Departments/Agencies and county information offices that hinder effective
articulation of government agenda.
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The government communication workforce comprises information officers, public communication officers,
photojournalists, film and videographers, editors and technical staff spread throughout the country. It also
includes speechwriters and digital media specialists.
A skilled workforce is key to the delivery of professional, world-class government communication services.
These professionals help communicate government priorities, which in turn improve people’s lives and
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enable government to operate effectively.
Key Citizen Concerns
PCOs work in morale depressing circumstances
Stagnation and low morale define the work environment of communicators in MDAs. Most of them have
stagnated in the same grade for many years. This has had a toll on their zest to work and, in some cases, to
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develop themselves professionally.
Communications functions in MDAs have borne the brunt of this stagnation and low morale. Some
communicators have joined state corporations and county governments, while others left to join the private
sector. Like other departments in government, the departments of information and public communications
have an ageing staff complement because of a freeze on recruitment. Those who retire after attaining the
mandatory 60-year retirement age are not being replaced. This has occasioned a severe shortage of staff.
Staff exit with institutional memory of MDAs which incoming officers have to take time to develop. MDAs
end up not getting the best service from departments of communication because of staff turnover.
The task force established that there is little collaboration between the departments of Public Communication
and ICT in ministries as far as content generation and uploading on the website is concerned. This has led to
failure to update current information continuously on websites in some ministries.
Another example is the existence of silos, which has led to an almost complete ignorance in some
departments about what sister departments, such as the National Government Communication Centre
(NGCC), do.
Current government practice
Staffing levels
There is a huge variance between the number of authorised posts and the number of officers in employment.
This acute understaffing has negatively impacted efficiency. Besides, the approved establishment does not
have provision for some technical positions that are critical for carrying out effective public communication
functions.
Current Establishment for Information, Public Communications and Advertising Staff
Authorised
Cadre In-post Variances
establishment
Information Officers and

260 108 152
Photojournalists
Public Communication
Officers – including PCU in 304 44 260
Ministries
Advertising Officers 39 8 31
TOTALS 603 160 443
This assessment was submitted to the task force by the ministry. The task force recommends that a new
audit to establish the current requirements should be conducted, bearing in mind changes in information
technology, and the need for a lean and efficient work force.
Skill sets not fit for purpose
Because of training and orientation, the majority of current officers lack the versatility to fit in the changing
communication environment, which needs a multi-skilled workforce. Some lack digital media skills, yet most
citizens are increasingly consuming information online. There is also a deficit in stakeholder engagement
and public participation skills.
Marginalisation of communication functions in SAGAs
In many SAGAs, the head of communication does not report to the accounting officer, which alienates the
function from the centre of management. Additionally, most of the communication units in the SAGAs are
understaffed or lack the right mix of professional communication skills sets.

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Friction between communication advisers/consultants and staff in government
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ministries
Communication advisors and consultants are hired by various ministries and departments to complement
the role of PCOs outside the established scheme of service. They receive more lucrative terms and tend
to work independently. This has led to demoralisation, conflicts, envy and turf wars, which eventually
compromise service delivery. There are tasks that staff communicators can undertake because of their
institutional memory. They have intelligence about systems and operations within MDAs and can be critical
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in handling communication issues. A healthy reporting structure needs to be nurtured.
Lack of a continuous professional development (CPD) curriculum
There is no CPD curriculum that guides continuous capacity for serving government communicators. This
has seen many government communicators unable to react to current communication dynamics and
challenges. It has also led to a lack of trust in senior government officials owing to perceived incompetence
and lack of self-confidence - hence the engagement of communication advisors.
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The United Kingdom, South Africa, United States of America and Sweden provide good examples of how
staffing and continuous development of government communicators’ skills sets is managed.
Minimum qualifications for recruitment
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• The UK Government Communication Service (GCS) has a fully-fledged, skilled communication
workforce with over 4,000 professionals spread across 25 ministerial departments, 20 non-
ministerial departments and over 400 agencies and public bodies.
• In South Africa, all public communicators must have a relevant communications qualification
and or three years’ experience related to the specialist field for which they are employed.
Management training is an additional requirement for senior communicators.
Continuous Professional Development programmes in other jurisdictions
• In South Africa, each institution is required to provide a budget for ongoing training and
development of communicators to keep their skills updated and relevant. The budget for training
communicators is usually a reasonable percentage of the institutional training budget. The
Government Communication and Information Service (GCIS) provides continuous training to
government communicators.
• In the United Kingdom, the GCS has a comprehensive professional development and talent
management programme called Aspire, which is open to all communicators in government
departments. It offers training on leadership skills and communications effectiveness from a menu
of 1,600 courses that cater to the professional development needs of GCS staff at all grades:
o All government communication officers are required to undergo at least four professional
training courses per year.
o The GCS measures competence and performance through its established process of
capability reviews.
o In addition, the GCS skills survey enables government communicators to self-assess in four
areas - strategic communication planning, media and campaigns, strategic engagement
and internal communication. Government communicators use the results to develop their
annual Professional Development Plans.
The task force found the communications workforce deployed by the Government is way below the expected
establishment in skills and numbers. And urgent intervention is necessary to achieve optimum results.
To address skills gaps, a Continuing Professional Development (CPD) programme should be introduced
for all government communicators. A set number of CPD points should be attained annually, as is done
by other professionals such as lawyers, accountants, engineers and human resource officers and others.
Employees managing public communication should collectively have skill sets similar to other jurisdictions
globally.
Below are recommendations on CPD training for Public Communication Officers:
1) Strategic Communications & Planning

2) Public Participation & Citizen Engagement
3) Development Communication
4) Internal Communication
5) Media Relations & Public Campaigns
6) Digital Media & Content Creation
7) Crisis Communication
8) Communication Audits and Evaluation
9) Branding and Event Management
10) Journalism
• Audit, improve skills set and motivate public communicators

The Government should conduct a skills audit of the current public communicators to identify and
subsequently fill any skills gaps. These should be filled through re-tooling present staff and hiring
fresh talent to ensure that the Government Communication Service (GCS) has the above mix of
skills and capabilities. Additionally, the Government should:
i. Ensure every state department has a director of communication supported by a multi-

skilled team
ii. Fill the vacant positions according to the approved establishment to ensure there are
adequate skilled government communicators

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iii. Deploy government communicators to support regional commissioners, county
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commissioners and assistant commissioners in line with Executive Order No.1 of 2019
iv. Implement the scheme of service for communications work force as provided in the
career progression procedures, and promote those who have stagnated
• Communication officers in SAGAs
It is recommended that the position of head of communication in government agencies and
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parastatals be held by an officer at a level equivalent to the heads of division that report to the
accounting officer. Each agency/parastatal communication department should be endowed with
a mix of the following skills: strategic communication, citizen/stakeholder engagement, messaging
and internal communication, media relations, branding and digital communication.
• Communication advisors and consultants
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Communication advisors and consultants engaged by government agencies or ministries should
work alongside the substantive heads of communication in these ministries. This will ensure
seamless execution of the tasks and avoid officers working at cross-purposes. It is also vital to ensure
that these consultants have the requisite set of skills to effectively do their jobs.
• Capacity building and CPD curriculum
The task force makes the following recommendations:
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i. Public communication officers must complete at least five days of continuous
professional development (CPD) training each year as per the approved curriculum.
These courses should lead towards a Certified Public Communications Officer
qualification. This certification should be a requirement for promotion within the
public sector.
ii. All GCOs should be required to undertake Continuing Professional Training
programmes designed in conjunction with the industry players including the Public
Relations Society of Kenya (PRSK).
iii. The CPD curriculum should be administered at the Kenya School of government
(KSG) and the Kenya Institute of Mass Communication (KIMC) and approved by the
Public Service Commission.
iv. The stand-alone competency programme developed by KSG and industry should
not be combined with communication electives in the existing KSG management
courses such as SMC, SLDP and AOP. Any CPD point earned outside of KSG must be
relevant to public communication and validated by KSG.
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Chapter Four
Chapter Four
The Culture And Practice Of Government Communication
Make recommendations on how to revamp and strengthen the institutional and operational base
of public communications and information functions at MDAs and counties
Chapter Five
Explore modalities and generate proposals on how public communications and information
staff in MDAs and counties can respectively be involved in all policymaking and communication
initiatives
In general, government agencies habitually hoard and conceal crucial public information. The task force was
told repeatedly that they are too bureaucratic and unresponsive to public requests for information. Even
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the Kenya Gazette, which publishes important information, has very low circulation. Furthermore, the print
version is sold only by the Government Printer, which constrains its reach. There is little public awareness
about the existence of a free online version. Important government decisions and announcements affecting
citizens therefore do not reach them first-hand.
Challenges facing current government practice
Exclusion of communication functionaries from strategy decisions
The task force established through the hearings and study that public servants charged with information
and communication functions were largely excluded from key decision-making organs. They also suffered
stagnation in career progression, with no succession planning. They are largely under-resourced and under-
skilled with a serious skills mismatch considering emerging public sector dynamics and communication
trends. Most lack the requisite digital skills and the right organisational structure for optimal service delivery.
Poor archival and documentation system
The Kenya National Archives and Documentation Services responsible for the custody of historical information
is barely surviving, let alone effectively discharging its mandate. It is poorly resourced and financed. This
department, which is charged with documentation of all official records, is woefully understaffed, with only
90 out of the staff requirement of 866 on the payroll.
Changes within the government structures and operations have led to increasing demand for its services
at both national and county government level. Despite the policy of digitisation and e-records, it lacks the
human and financial resources to perform its role. It has only digitised 12 million, a mere three per cent, of its
target 400 million pages. Digitisation will provide a valuable and accessible online resource on the country’s
history for generations of citizens and researchers.

Conflicts in the system of government communication
This is a result of grievances from job placement, grading within the public service scheme of service,
training, workplace resources, their reporting structure and the conflict between government deployed
PCOs and communication advisors engaged by Cabinet Secretaries.
Officers in charge of communication in ministries report to the directorate of administration, a structure that
locks them out of policy and decision-making. They are lowly placed in the public scheme of service; they
are understaffed; have no working tools and are not members of the ministerial executive committees.
Although the Ministry of ICT is the official arm of government communication, over the years, the Government
has established several agencies to handle its communication functions. These include the National
Development Implementation and Coordination Committee, the National Government Communication
Centre (NGCC), the Office of the Government Spokesperson, Presidential Strategic Communication Unit/
State House Spokesperson, and Presidential Delivery Unit, among others.
“The plethora of agencies speaking for and on behalf of the

Government have created confusion, incoherence and internal
competition rather than cooperation”
The government approach to crises was noted to be sporadic and unstructured. It lacked pre-approved
holding statements or clarity on how to take control of the narrative on fast-flowing platforms such as Twitter.
The reporting structure does not aid message clarity or discipline in public communication. The Office of
the Government Spokesman was recently re-designated and housed at the ICT ministry, and is answerable
to the Cabinet Secretary for ICT. But that has not realigned the other communications units such as NGCC,
which carry out special messaging beyond the Spokesperson’s wider remit. The PCOs currently report to
the directors of administration in the ministries, but are expected to liaise with the Spokesperson regarding
possible dissemination of issues touching the Ministry or State Department. This structure still presents
challenges to the objective of mainstreaming government communications in decision making processes.
In jurisdictions where there is generally efficient government communication such as South Africa, the UK,
USA and Ghana, this function is placed strategically at the centre of government. The proper placement
of the public communication function makes it possible for them to advise and positively influence policy
formulation, implementation and evaluation.
South Africa approved a communication policy in August 2018 that sets out the procedures for
communication within all government departments and across the different levels. The Government
Communication and Information System (GCIS) is mandated to serve as the central communications agency
of government. The GCIS mobilises the nation behind the National Development Plan (NDP), showcases
progress and invites South Africans to work together to address challenges critical to the achievement of
Vision 2030.
Chapter T
Chapter Four
The GCIS is responsible for informing all citizens of South Africa about the Government’s work and how they
can participate in governance and consolidating the country’s democracy.
The GCIS has a responsibility to act in the interest of all South Africans, without discrimination, and to
communicate effectively in all official languages, reaching all communities in urban, peri-urban and rural
areas.
The GCIS uses different platforms, including publications, news media, radio, television and izimbizo.
Chapter Five
The United Kingdom has a Public Communication Policy that articulates how regular information on policy,
plans and achievements of the Government should be disseminated. It also provides guidelines on how to
inform and educate the public on legislation, regulation and matters that affect the daily life of citizens.
In the United States, the public communication policy is epitomised by the United States Information
Agency (USIA), which acts as the Public Relations arm in support of the national interest. It discharges its role
by conveying the government policies and presenting a true picture of the society, institutions and culture
Chapter Six
in which those policies are implemented and applied.
In Ghana, the Information Services Department (ISD) serves as the Government’s main Public Relations
organisation, both locally and abroad. The department is charged with the responsibility of creating awareness
of government policies, programmes and activities, as well as promoting Ghana’s international marketing
agenda. It also provides Public Relations support to government ministries, departments, agencies, and
Ghana’s missions abroad.
In South Africa, the Director-General (DG) of the Government Communication and information Service
(GCIS) is the official government Spokesperson. S/he chairs the GCIS Executive Committee (Exco), a strategic
body that integrates, coordinates and rationalises the work of GCIS and government communication. The
DG provides the overall administrative, strategic management and policy-making leadership.
Under the DG, the GCIS is made up of three branches, each led by a Deputy Director-General (DDG). The
divisions include: (i) Administration, (ii) Content Processing and Dissemination, and (iii) Inter governmental
Coordination and Stakeholder Management. Each DGG performs similar functions as the DG but specific
to their divisions. The same functions are still cascaded down, since each GCIS division is divided into chief
directorates, managed by chief directors.
This system ensures that there is active involvement at all levels in policy-making and practical execution of
strategies. All levels are involved in the development of the GCIS Corporate Strategy, Annual Performance
Plan, which are aligned to the National Communication Strategy Framework. The developed strategies are
then implemented in various ways including through engagements with heads of communication (HoCs)
and development of Cluster Communication Plans (CCPs), ensuring that all levels are involved in the process.
The Government Communication Service (GCS) in the United Kingdom has developed a Modern
Communications Operating Model. The model ensures continuous improvement of communications team
capability, structures, skills and resources. All public sector communication practitioners are expected to
have the core capabilities of strategic communications, media and campaigns, strategic engagement and
internal communications.

The Service is headed by a Director General who oversees strategic management and practical work. Below
him are government department directors of communication, who develop strategies and operational
plans in consultation with the Permanent Secretary and agency heads of communication.
This structure ensures the integration of policy formulation and implementation functions at all levels of the
GCS. In terms of implementation, each group develops a group communications plan which is required as
part of the annual government communications plan. It also develops a common planning approach and/
or communications grid, in order to help identify, among others, Group communication and resourcing
priorities, areas to share expertise and mutual support.
Bearing in mind the rationale for the establishment of efficient communication structures and systems,
and having considered the current practice as well as a best practice, the task force recommends a new
structural framework for government communication as follows:
1. Establish a Government Communication Service (GCS) domiciled in MOICT
The GCS will oversee all government communication within the country and abroad (in collaboration
with MFA). It will formulate and develop the national communication policy and strategy to guide the
country’s overall communications initiatives. The GCS shall be headed by a Director General (DG) who
will be the government spokesperson. The DG will be at a level of Principal Secretary reporting to the CS
for ICT. It is recommended that all staff under the Department of Public Communication (DPC), GA and
DI be aligned to this office/structure.
The GCS should be structured as a fully-fledged State Department. The DG will be assisted by a deputy.
The GCS will have the following three directorates:
i. Directorate of Media and Citizen Engagement (DMC). This directorate will be in charge of
communication strategy and planning; deployment of directors of communication and public
communication staff to the various ministries, state departments and county offices, citizen
engagement, public education campaigns, media relations, branding, event management, crisis
communication and the development and administration of Continuous Professional Development
(CPD) curriculum.
ii. Directorate of Content and Publications (DCP). This will be in charge of information gathering,
dissemination, content development and messaging. The first arm of the DCP will establish and
manage a central information repository and facilitate information access through information
centres in the counties, within centres or any other outlets deemed suitable.
The DCP will build partnerships with government institutions that hold information that is relevant to
the public and ensure that the public know how and where to access information. Such institutions
include the Kenya National Library Services and Kenya National Archives.
The second arm of the DCP will oversee all the collation of information from counties; supervision
of county communication officers and production of government publications, including MyGov
(to be rebranded as Huduma News and published as a stand-alone newspaper). The newspaper will
carry all government advertising and inserts such as the Kenya Gazette.
iii. Directorate of Digital Media (DDM). This will be in charge of the creation of digital content,
production of audiovisual materials, management of website content, social media platforms, film
development and monitoring government digital presence.
The diagram below represents the proposed public communication system:

Government Communication and information Service (GCS)
The Government Communication Services shall, under the auspices of the Cabinet Secretary responsible
for ICT, be responsible for all government information and communication. GCS will support the Cabinet
and all government institutions on public communications initiatives. It shall support and monitor the
implementation of Cabinet decisions/resolutions/directives and be answerable to the Executive and the
Legislature.
Government ministries and county GCOs shall align their communications policies and strategies to the
guidelines set by the GCS, which shall monitor and enforce them. The Director General shall administer a
scheme of service for the GCOs and define the scope of their responsibilities and duties.
Functions and Responsibilities
Government Messaging
GCS shall ensure coherence in government messaging. It shall develop a comprehensive national messaging
strategy that targets all stakeholders to foster a One-Government theme encompassing the Executive,
Legislature and Judiciary. Government shall undertake stakeholder engagement to create public awareness
on unitary government.
National Corporate Branding
GCS shall collaborate with the MDAs to reinforce the GoK corporate brand and harmonise the branding of
the Government of Kenya and individual MDAs across board.
Government of Kenya Portal
The GCS shall champion the creation and coordinate and manage the Government of Kenya portal
integrating the Kenya Open Data. The portal shall be a repository of all crucial information and data bases on
government services and programmes by different state agencies both national and county.
The portal shall be accessible through a user-friendly online service that facilitates access to information
held by Government.
Government and Media Relations
GCS will coordinate media access to government agencies/officials and liaise with media to promote public
awareness and understanding of policies, programmes, projects and services.
Internal Communications
The GCS shall undertake measures to steer government corporate communications, monitor and evaluate
the planning, managing and reviewing of policies, programmes, services or initiatives. It shall issue guidelines
on best practices to MDAs.
Chapter T
Chapter Four
Communication Formats
GCS will champion and steer the Government to ensure compliance with the constitutional imperatives
on accessibility of official documentation and information for all citizens. This will include PWDs and others
hindered by the language barriers of the written official and national English and Kiswahili.
Government Advertising
GCS shall oversee government advertisement and determine appropriate, cost-effective platforms to be
Chapter Five
used to ensure that they reach the target audiences.
Social Media
GCS shall be responsible for managing social media presence and the communications platforms for public
engagement. It shall be equipped with the necessary skills and technology to perform these functions.
Training
Chapter Six
GCS shall partner with institutions of higher learning in the development of curriculum for public
communications and training of government communications staff.
Information Resource Centres
The GCS shall facilitate revamping of digital Information Resource Centres at national, county and sub-
county levels in liaison with other stakeholders and state agencies such as KNLS, National Archives and
Documentation Service.
Rural Press and Productions
The GCS shall manage and employ the rural press, film production services and cinema to advance
public awareness and education of government policies, projects and programmes. It shall produce and
disseminate to media and the general public such audio-visual and multi-media content as necessary to
advance the objectives of government.
Communications and Media Research
The directorate of research and monitoring shall conduct surveys and other initiatives to gather public
opinion on diverse aspects of government communications and media in partnership with private sector to
identify audience needs and trends.
Production of IEC Materials
The GCS shall develop IEC materials in digital and traditional media formats to advance the Government’s
development agenda.
International and Foreign Communications
The GCS shall collaborate with the MFA and KEPROBA on publicity initiatives to improve Kenya’s image and
visibility abroad. It shall deploy communications expertise/press attachés to Kenya’s missions.

Crisis, Emergency and Risk (CER) Communications
GCS shall be responsible for steering and coordinating government communication in crisis, emergency
and risk situations as well as other special occasions.
2. Merge the current positions of Public Communication Officers (PCOs) and Information Officers
(IOs) into a new position of Government Communication Officer (GCO)
This will simplify the structure and clarify the role of Government Communication Officers as responsible
for both public communication and information. GCOs will be deployed in state departments, counties
and missions abroad. Their skills will be upgraded, in line with recommendations in this report, enabling
them to perform a more strategic communication role and better meets the needs and expectations of
government and the public.
3. Streamline the reporting relationship in MDAs
Directors of communication in ministries, departments and agencies will report to the Principal Secretary/
accounting officer, and be members of the senior management committee. This reporting structure will
ensure directors of communication in MDAs are involved in policy formulation.
4. Establish a national government communication training programme
This will be done for continuous learning and development of communication staff in line with the
changing dynamics and evolving government communication needs. This report offers proposals on the
content of this programme.
Chapter
Chapter Five
Chapter Five
Developing Robust Government Communication Channels
Identify and make recommendations on how to facilitate public communication and information
cohesiveness across government
For government to communicate effectively, it needs to have clear avenues for engagement with both
Chapter Six
internal and external stakeholders. Efficiency in government communication is critical in mobilising its
internal stakeholders towards a common goal and harnessing goodwill with external stakeholders.
To achieve this, the Government needs to establish and maintain effective communication platforms for
both internal and external stakeholders. These platforms range from internal communication channels such
as letters, memos, circulars to mainstream mass media outlets (radio, television, newspapers, magazines and
internet).
Why communication platforms matter
Rising distrust in authorities and establishments globally, coupled with the growing populism and frequent
rapid spread of fake news underscores the need for government to put in place mechanisms to ensure
effective communication to its publics. Top-down information dissemination models need to be replaced
with continuous dialogue between government and its citizens to maintain public trust and counteract
citizens’ dependence on unofficial and unreliable sources to learn about public affairs.
Internal communication - current practice in Kenya
In government, the normal mode of internal communication is through meetings, internal memos and
concept notes that lead to generation of Cabinet memos that lead to the development and eventual
implementation of government policy decisions across ministries. Policy decisions are also communicated
through circulars. Treasury, public service and Executive Office of the President/Cabinet circulars account for
the bulk of this mode of communication.
Except for intermittent print and online magazines for individual ministries, nothing elaborate exists to
facilitate communication between staff in the public sector. There however exist protocols that guide
communication across MDAs, such that an officer of a lower rank cannot directly address senior managers
without going through line supervisors. The participation of junior officers in policy decision-making is
therefore limited.
Effective government communication at all levels enables efficient flow of information, which aids in
facilitating informed decision-making and service delivery. Within government, a functional internal
communication system is of fundamental importance in ensuring coherence and coordination in service
delivery. It helps employees in government to understand what is expected of them. Effective internal
communication systems create an environment where employees have a shared understanding of the
Government’s vision, goals and objectives and thus enabling teamwork.

To enhance internal communication within government, there is a need for a policy that provides an
overall framework that all government agencies draw from in developing their respective intra- and inter-
agency communication systems.
Internal Communication - international practice
In South Africa, Cabinet approved a Communication Policy in August 2018 that outlines the rules, processes
and procedures for communication within departments and across different levels of government and
serves as the framework for formulating communication strategies and plans. The policy aims to ensure
that government communication across different levels and departments is ‘well-integrated, coherent,
coordinated and consistent... reliable, ethical, open, encourages participation, transformative, professional,
credible, effectively managed, impactful and meets the needs of all citizens.’
The policy requires every government entity to develop a five-year communication strategy and annual
plans, which support the strategy. The strategy must be aligned to the overall government communication
strategy and support the Government’s mandate and priorities. The policy further requires that internal
communication strategies of various government entities indicate channels through which specific
information or campaigns are communicated. Additionally, each government entity is required to have an
intranet that allows free flow of information between management and employees in the organisation.
The intranet of each government entity is required to incorporate government programmes/ policies and
activities and be updated on a weekly basis.
There is an internal communications division tasked with producing, approving and disseminating
communication content in their respective entities. To ensure coordination and coherence in government
communication, the Government Communication and Information System convenes a National Integrated
Internal Communication Forum quarterly to share information, develop joint communication plans, share
best practice and monitor the implementation of government-wide internal communication plans.
External communication - current practice in Kenya
At a time when interest is growing in Kenya and the demand for information has escalated, there is no
reliable comprehensive central repository of information on government priorities. For instance, information
on the Big 4 Agenda is barely found in government websites, except on the Presidential Delivery Unit. This
website links to the counties but not to the ministries concerned at national level.
The MyGov.go.ke portal currently exists but it has scanty information. The Ministry of Foreign Affairs is not
linked to the Big 4 Agenda platform yet foreign investors are expected to play a role in realizing the plan.
The MFA website has a great deal of information on current news and information on the activities of the
Cabinet Secretary and the various treaties the country has signed. The department of trade in the Ministry
of Industrialization, Trade and Cooperatives handles the foreign trade portfolio thereby creating a disjointed
information portfolio rather than a one-stop-shop portal.
However, there is no mention of international trade and what investors to Kenya can expect or even how
Kenyans can export their goods. A section on useful links includes: The Presidency, Brand Kenya, Kenya Vision
2030, Investment Authority and The Institute of Diplomacy & International Studies (UoN).
One would expect a ‘health’ link to the Ministry of Health website to establish the progress on universal
healthcare. Despite universal healthcare being a key legacy project of the Presidency, the Ministry of Health
website does not mention it. But, as an example of the discordant communication, the heading who will
implement leads to nowhere. Under the heading You the citizen, (as implementer) it would be great to have
some ideas of what the citizen can do to connect with the Big 4 Agenda.

A link called government Website leads to MyGov publication. However, there is a link to the NHIF, which is
recognised on the Presidency page as the enabler of universal healthcare. But nowhere does the NHIF itself
mention the Big 4 Agenda.

This discordance underlines the deficiency of messaging: each entity is not connected to the next, hence
lack of cohesion in public communication.

Investors and visitors to Kenya will need much more information than is available on the websites. In the
circumstances, it is essential that a public communication system be established that ensures information is
delivered in a timely manner when required.
The government uses numerous channels to communicate with its citizens. These include traditional
media such as newspapers, radio, television; community media such as vernacular radio and television
stations; new media such as websites, blogs, social media platforms and YouTube; internal publications and
face-to-face platforms.
Further, in order to facilitate the communication of its programmes and activities, the Government has
established various departments and semi-autonomous agencies. However, there is little coordination
between these various agencies, marked by overlaps in their roles, leading to poor communication, and
at times, miscommunication. There is therefore need for cross-linkages of the multiple agencies and units
that are handling specific communication mandates. These agencies and units include: The Government
Advertising Agency (GAA), Kenya Yearbook (KYEB) and the Government Printer.
Traditional and community media platforms in government
a) KBC as the Government’s main channel of communication - The Kenya Broadcasting Corporation
(KBC) was established in early sixties as the Government’s mouthpiece. Despite its extensive infrastructure
throughout the country, it has not adequately performed its intended role owing to several challenges.
First, KBC has come under intense competition from new commercial entrants in both radio and
TV broadcasting established following the liberalisation of electronic media in 1989, and the digital
migration in 2009.
Furthermore, the financial position of the corporation has worsened markedly, owing to loss of revenue
and audiences to more efficient private competitors. Financial support from the Government has been
inadequate, making KBC unsustainable financially. For instance, the Government withdrew licence fees
without providing an alternative revenue stream. In this context, KBC’s broadcasting systems need
urgent upgrading to keep up with changes in technology. Nevertheless, the Government still relies on
KBC to communicate key information to its citizens.

b) Press conferences, talk shows and media appearances – Government officials communicate
government policies and milestones through appearances in radio and television outlets. In addition,
the Government uses community media to communicate to the citizens in rural areas.
c) Government advertorial - The Government uses the mainstream traditional media to advertise
its services and job opportunities to its citizens. All public sector advertising is coordinated by
the Government Advertising Agency (GAA) that was established through a Cabinet decision and
operationalised by Treasury Circular No. 09 of 2015. Its mandate is to consolidate and coordinate public
sector advertising.
d) News agency - The Kenya News Agency (KNA), with 72 offices and 126 officers across the counties
and sub-county offices provides news and information in multiple formats to the public and paid
subscribers. Additionally, rural press units publish eleven regional publications in English or Kiswahili.
The publications were started in the 1970s through funding from UNESCO under the Kenya Rural Press
Extension Programme to bridge the information gaps among the rural population. The Department
is also responsible for mobile cinema, Central Media Services; Photographic Services; Press Centre
and the provision of an accreditation service. The Department of Information has a rich repository of
government data that has yet to be fully exploited through conversion into new formats for public
consumption.
e) Film services – The government produces short audiovisual documentaries and features on its
projects, and runs mobile cinema services.
f) Government online presence - All the 22 government ministries have websites. Similarly, the
Judiciary, Parliament, independent commissions and state agencies have websites. Most of these state
entities operate social media platforms, particularly Twitter and Facebook pages. The degree of activity
on these platforms varies; some have a robust presence while others are inactive. Some government
websites are robust, with a variety of information, including downloadable documents.
A 2018/19 monitoring report that focused on 284 websites owned by Ministries, Departments and
Agencies (MDAs) indicates that only 151 websites were routinely updated. Some even have links to
social media posts, revealing intent to integrate the digital platforms. The monitoring report further
observed that only 137 Twitter and 111 Facebook accounts linked to the websites were active. But few
government ministries, departments and agencies have YouTube Channels, which have videos that are
either too long or poorly produced. Content uploaded to social media platforms comprised mainly the
activities of the Cabinet or Principal Secretary, calendar of events, vacancies or tender announcements.
Further, most of the social media platforms do not have interactive content. The events, their outcomes
or benefit for Kenyans are not explained. Many of the updates on social media read like advertisement
banners, with little information for the target stakeholders, including media. Overall, the social media
platforms of state agencies have more followers and reach bigger audiences than those of their parent
ministries.
Chapter
g) Email communication
Chapter Five
The task force established that most official government emails were unreliable, leading to many
public servants using private email addresses such as Gmail and Yahoo. The use of private email
addresses for official communication compromises the Government’s brand image and security. This
undermines the credibility of official government communication.
h) Government publications
The government Advertising Agency publishes My Gov weekly newspaper whose mission is to
articulate the Government’s development agenda and procurement opportunities. The government
Chapter Six
Printers publishes the Weekly Kenya Gazette, the official publication for general public information, and
prints classified documents, revenue forms, annual, recurrent and special reports and legislation.
Since the publication of the first issue on 15 November 1899 (when the seat of government was in
Mombasa), the Kenya Gazette has been published regularly to date. The printing and issuance of the
Gazette is founded on the Constitution of Kenya, 2010, Articles 35(3), and on the Section 23 of County
governments Act, 2012. While initially the copies were bought at the Government Printer Bookshop,
now they are available electronically online from http://kenyalaw.org/kenya_gazette/.
i) Face-to-face platforms
The government uses face-to-face platforms such as barazas (community meetings) and stakeholder
forums in town halls to engage citizens on various issues that affect them. The government also
communicates with its citizens through speeches during national holidays and other public occasions
presided over by the President or representatives. The task force noted the knowledge gaps at the
grassroots – at ward and location levels in spite of the existence of several bodies and initiatives
such Pasha (a programme run by ICT Authority), Information Resource Centre (run by ICT Ministry),
Constituency Innovation Hubs (run by ICT ministry), Youth Empowerment (run by Ministry of Public
Service ) and Rural Resource Centres (run by Treasury).
j) Executive orders and pronouncements

The Executive Office of the President issues Executive Orders from time to time and announcements
on matters of national importance.
External communication - international practice
Upon comparative consideration of the practice in other jurisdictions, the task force recommends that a
multi-media approach be employed using several platforms and channels to disseminate government
information and engage stakeholders.
In the UK, USA and South Africa, most government websites are up-to-date, user-friendly and interactive.
In the UK, the Government supports the British Broadcasting Corporation (BBC), a public broadcasting
system that is financed primarily through annual television licensing fees. These are paid by those who
own TV sets, or who watch live television transmissions on mobile phones and computers. Supplementary
funding comes from income generated by its commercial subsidiaries.

The BBC has an array of TV services on its menu, namely: regional TV programmes, an Internet TV service,
ten national radio stations, 40 local radio stations and an extensive website. Under its charter, the BBC may
not advertise or broadcast sponsored programmes. It is required to refrain from broadcasting any opinion
of its own on current affairs and matters of public policy, and to be impartial in its treatment of controversy.
In South Africa, the Government has established multipurpose community centres where information
is easily accessible. The government engages stakeholders through public participation forums (called
Izimbizos) involving top government officials and leaders. Rwanda has a similar model.
South Africa has a directorate of Electronic Information Resources (EIR) whose functions include; updating,
maintaining and improving the central government’s website and those of other government ministries/
departments.
International communication - current practice in Kenya
The Government needs to communicate with the international community in a professional and consistent
manner. Sustained communication will foster the national brand and strengthen its profile globally. Kenya’s
external image is critical to its socio-economic wellbeing. Visitors and investors seek a conducive and secure
environment. In the Internet age, this information should be readily accessible or when sought quickly
availed.

The Government must strive to provide a network throughout the country that offers key information not just
to its own citizens, but to interested parties abroad as well. This should in turn connect to the international
networks that provide support and linkages to the country, so that the entire country’s information system
operates seamlessly. But most important is the information that is disseminated by the mass media, which
the Government must strive to ensure is accurate and portrays the right image of the country.
International communication - international practice
The UK government has consolidated all its online entities into one website https://www.gov.uk that
boldly proclaims 25 ministerial departments, 405 other agencies and public bodies. This makes searching
for information seamless between government and its entities.
In the UK, the concept of ‘public diplomacy’ is used to advance British interests through an integrated
programme led by the Foreign and Commonwealth Office, but involving other departments and institutions:
visits and exchanges, scholarships, the BBC World Service, the news and information arm of the Government,
as well as trade promotion and information services. The advantage of these approaches is that they explicitly
target key groups such as commerce and industry support communities or exiles, as part of foreign policy
activity.
From the foregoing, the task force makes the following recommendations on internal and external
communication.
Chapter
External Communication Platforms

Chapter Five
a) Revamp MyGov: The newspaper should be re-named Huduma News/Leo to signify that it is a
platform where citizens can find credible, up-to-date information about government services. The
title Huduma News resonates well as a source of news for a government that is orientated towards
enhancing service delivery. It should be re-designed and its distribution enhanced as a free print
and e-paper, on Braille format, as a Mobile App and made available on all government websites. The
print Huduma News should be distributed countywide through the Government machinery,
including Postal Corporation, Huduma Centres and through the National government Administration
Chapter Six
Organisation offices in counties and sub counties.

b) Consolidate the bodies that produce government publications: The Government Advertising
Agency (GAA) should be renamed the Government Publications Agency (GPA), and charged with
producing all government publications, except the Kenya Gazette. These will include Huduma News
and the Kenya Year-Book Board.
c) Re-design the Kenya Gazette: The Kenya Gazette should be re-designed and made more appealing,
and circulated as an insert in Huduma News. It should continue to be accessed at the Government
Printer Bookshop and be circulated electronically.
d) Prioritise face-to-face forums: The task force noted existence of knowledge gaps among citizens
at the grassroots in spite of the existence of several bodies and initiatives such Pasha (run by ICTA),
Information Resource Centre (run by MoICT), Constituency Innovation Hubs (run by MoICT), Youth
Empowerment (run by MoPS), Rural Resource Centres (run by Treasury). The government should
therefore put more emphasis on the use of face-to-face communication platforms such as barazas
and stakeholder meetings during public participation forums. The resource centres will be a
distribution point for circulars, executive orders, presidential speeches and pronouncements, as well
as government advertisements in various media. The centres will also be custodians of documents
and information from county government, judiciary, parliament and independent offices.
e) Consolidate information and decentralise resource centres: The government should set up a
citizen service/call centre in every Huduma Centre country-wide, where citizens can get information
about any government service. The call centres should be automated and run professionally. They
will be the primary source of government information. They should be well resourced with free wi-fi,
modern communication tools for the public to access and use including people living with disabilities.
Staff running the resource centres should be trained on strategic and effective communication skills
to serve as the focal point of government communication at the grassroots level.
Further, the Government should establish or strengthen multipurpose community centres

where government information can easily be accessed as the grassroots. It is also recommended
that existing government agencies like the KNLS, KNBS and National Archives be a point where
government information such as circulars, executive orders, presidential speeches, pronouncements
and government advertisements in various media are distributed. There is a need to exploit synergy
within existing government infrastructure like the Postal Corporation of Kenya, Kenya Tourism Board,
Brand Kenya, universities, sports federations, the Ministry of Foreign Affairs and Ministry of Trade to
distribute government communication e.g. MyGov, Kenya Gazette, The Year-Book Board, etc.

f) Digital platforms
1) Establish a central digital portal for all public documents. The government should create a
Digital Communication Division that determines government online communication and
creates content. The division should be resourced with well-trained digital communication
staff and carry out real-time online interaction.
2) The MyGov portal (www.mygov.go.ke) should be restructured and redesigned to be the

one-stop-shop information on Kenya linked to all government websites and Huduma
Kenya website (www.hudumakenya.go.ke)
3) Develop a social media policy for the entire government.
4) Most government websites should be redesigned to make them current, user friendly and
interactive.
5) All government bodies should have robust social media particularly Facebook, Twitter, and
YouTube channels to engage with their target stakeholders. The content should be relevant
to citizens’ information needs, not just reports about the activities of government officials.
6) All government bodies and officers should be required to use the official government
domain name .ke email and not private email addresses such as Gmail and Yahoo for official
communication.
7) A central digital media-monitoring unit should be established, to be used by all government

MDAs.
8) Set up a bulk SMS service in collaboration with the telecommunication operators

administered by the Government Communication Service for transmitting public policy
and information.
9) Conclude the last-mile connectivity project/national fibre optic programme.
10) Explore public private partnerships to facilitate systems and tools, for example, partnerships
with technology or service providers like Facebook and Google to enable free Wi-Fi for
grassroot government offices
g) International communication
Deploy a qualified and experienced press/communications attaché to the foreign service to help
articulate Kenya’s development agenda and manage the country’s image in diplomatic missions.
This should be done particularly at stations that demand a lot of press like the AU, or major UN
centres such as New York, Geneva, and Vienna.
h) Internal communication platforms
• The Kenya Government Public Communication Policy proposed in Section 2.2.4 should provide
a clear framework on the rules, policies and procedures that govern communication across
MDAs.
Chapter
• All government entities should be required to develop their own internal communication
Chapter Five
strategies and annual plans that are aligned to the overall government policy.
• The proposed Government Communication Service (GCS) should hold an Industry Conference
or meeting on an annual basis to reflect on its experiences and share ideas to improve service to
the citizens. It should involve government communication officers in the various government
entities with a view to sharing information and harmonising communication across MDAs.
• GCS should conduct audience research to determine media consumption patterns to inform
Chapter Six
decision making in communicating policies and other initiatives by the Government.
• Each government entity should have an intranet that facilitates open communication and
sharing information among its employees, including top leadership. The intranet should be the
one-stop-shop for government policies, programmes and plans and be updated on a regular
basis, preferably weekly.
• Heads of communication departments in government entities should be part of key decision-

making organs so as to facilitate accurate upward and downward information flow.
• Government entities should hold regular, preferably quarterly, general staff meetings within
relevant divisions so as to create platforms for sharing information.
• Government entities should incorporate social media platforms in sharing relevant information
among employees.

Chapter Fiv
Chapter Six
Chapter Six
An Agenda for Action by Government, Parliament and Citizens
“Staffing levels must be improved. Right now the Department of

Information is running at half capacity. We must implement new
schemes of service to accommodate specialised areas such as
editors and graphic designers”
Acting Director of Information
“As a country, we are yet to find the appropriate model of

communication with the youth”
Member of the National Assembly ICT Committee
This report provides a roadmap for sharing information with the public. It provides a practical way in
which the Government can showcase its social, economic and political programmes. The new constitution
entrenches access to information as a basic human right for all citizens.
The implementation of the recommendations in this report is a collective responsibility of all government
institutions coordinated by the Ministry of Information, Communications and Technology. Some of the
changes proposed require government-wide action by different ministries, county governments and SAGAs.
The report should be reviewed after every three years to ensure continuous improvement on government
information and communication.
Implementation should be monitored to ensure the concerned actors discharge their roles and responsibilities
as spelt out below.
A. Executive arm of government

i. The Government should establish a Government Communications Service (GCS) under the
Ministry of Information, Communication and Technology through an Executive Order for synergy
and better coordination of government communication. The GCS will comprise the current Office
of government Spokesperson, Department of Public Communications, Directorate of Information,
government Advertising Agency, Kenya News Agency, Directorate of Film Services. GCS should
be facilitated with an ample budget and accorded financial autonomy to discharge its mandate
effectively.
ii. Initiate a culture change programme to align public sector communicators with the public
expectations and dynamisms and retrain officers to fit in the new dispensation.
iii. Merge and consolidate government publications (Kenya Yearbook and My Gov) under one roof.
a. Rebrand My Gov to Huduma News and distribute it for free.
b. Deploy communication specialists at senior director level and raise their profile in
government departments to the rank of other technical officers
iv. Establish a Communication Advisory Committee to monitor the implementation of
recommendations and advice government on any challenges that may arise in the course of
implementation of this report. It will also be the advisory body to the GCS.
v. Formulate/review legal and policy frameworks to ensure effective public communications and
access to information by all. This will include enacting, reviewing or implementing the following
laws and policies discussed earlier:
vi. Enact a Persons with Disabilities law to ensure access of information for people living with
disabilities.
vii. Enact a Kenya Film Bill to merge the KFCB and KFC through an omnibus bill, and set up the Kenya
Film School.
viii. Legislate of Public Relations and Communication Management Act.
ix. Review the Public Archives, Records and Documentation Act.
x. Enact a Languages of Kenya Act and establish a National Language Policy
xi. Develop a Public Relations and Communication Management Policy
xii. Develop a National Public Communication Policy and Strategy
xiii. Develop E-government policy
xiv. Develop Public Service (Values and Principles) Regulations
xv. Develop Access to Information Regulations
xvi. Review Kenya Information Communications (Broadcasting) Regulations
xvii. Review the Media Council Act
xviii. Review the Public Order Act
xix. Review the Kenya Information and Communication Act
xx. Review the Access to Information Act
xxi. Review the Official Secrets Act
xxii. Review the Prevention of Terrorism Act
xxiii. Review the Computer Misuse and Cyber Crimes Act
xxiv. Review the National Assembly Powers and Privileges Act
xxv. Review the Preservation of Public Security Act, Cap 57
xxvi. Review Records Disposal Act, Cap 14
xxvii. Review Executive Order No 1 of 2019.

Chapter Fiv
B. Kenya Broadcasting Corporation
Chapter Six
Restructure and rebrand as a public broadcaster. With proper funding, competitively gather, process
and disseminate news and information about Government policies, projects and programmes and
promote public interest and national development agenda. This will be predicated on the review of
the KBC Act and funding from the Exchequer.
C. Parliament
ICT Committee to liaise with the Communications Advisory Committee and the State Law
Office to review, repeal and formulate laws and regulations relevant to public information and
communication and to align with the Constitution. Subsequently, ensure implementation of this
report.
D. Non-State Actors
Civil society, religious organizations, labour unions the academia, media, youth and women caucus
to engage, lobby and participate in implementation and ensure implementation is in compliance
with the Constitution of Kenya, i.e: Articles 1(2), 10(2), 35, 69(1)(d), 118, 174(c) and (d), 184(1)(c),
196,201(a) and 232(1)(d). Organise, prepare and submit memoranda during the law review and
enactment phase and monitor and evaluate the performance/implementation.
E. Citizens (Waananchi)
Participate in the review and formulation of the laws and provide feedback to service delivery and
public communications; hold public officers and leaders to account on expeditious response to
citizen suggestions and handling of complaints; and seek information from state actors.
F. Public Servants/State Officers

Public servants charged with the various duties should perform their roles as required of their
employment as part of the public sector performance management system of staff appraisals.
The outputs and impact of their performance on programmes, services and initiatives should be
assessed through environmental, feedback, analysis, media monitoring and opinion research which
shall identify and track the impact of public communication on how government is perceived.
Conclusion
This report is anchored on views from stakeholders, key constitutional provisions and the evolution of
global information and communications. It aims to enhance the performance of National Government as
it executes its mandate through public communications in the post CoK 2010 era. It is intended to foster
public confidence and trust in government and project a positive image of the country.
The recommendations are designed to standardise government public communications by reorganising

the structures, processes and procedures for sharing information and engaging the public. This report
also addresses the need for better data management, harmonisation of terms of service for government
communication staff and integration of new communication tools in communicating the Government’s
agenda. The expected transformation is pegged on culture change and harmonisation of policies and laws
to ensure the ideals of democracy espoused by the Constitution are upheld by the Government, its agencies,
civil society and citizens.
References
Legal and Policy Instruments Preservation of Public Security Act, Cap 57
Access to Information Act, 2016 Prevention of Terrorism Act
Books and Newspapers Act Public Order Act.
(Broadcasting) Regulations 2009 Public Archives, Records and Documentation

Bill
Computer Misuse and Cyber Crimes Act, 2018
Public Service (Values and Principles) Act
Constitution of Kenya 2010. Government
Printer, Nairobi. People Living with Disabilities, Bill
Copyright (Amendment) Bill, 2017 Records Disposal Act, Cap 14
Copyright Act (2001) The National Assembly Powers and Privileges

Act
Evidence Act
The Official Secrets Act
Executive Order No 1 of 2019.
Case Law
International Treaty Examination of the
Marrakesh Treaty to Facilitate Access to Speaker of the Senate v AG [2013] eKLR.
Published Works for Persons Who Are Blind,
Visually Impaired, or Otherwise Print Disabled Secondary Sources
Report of the Commerce Committee (New
Zealand). https://www.parliament.nz/ Daniëlle van den Akker, (2011). Creation of
resource/en-NZ/SCR_74562/51f51fb80a23c95 Umbrella Nation Branding Strategy.
c8c9719a25f31cfc49f42f127 (Last Accessed on
Kenya National Population Census Report,
11th November 2019).
(2009). Available http://www.knbs.or.ke/
Institute of Public Relations and Census%20Results/Presentation%20by%20
Communication Management Bill, 2019 Minister%20for%20Planning%20revised.pdf
(Last accessed on 10th November 2019).
Kenya Broadcasting Corporation Act
National Coordinating Agency for Population
Kenya Information and Communication Act and Development (2008). Kenya National
(KISA) (2009) as amended in 2013 Survey for Persons with Disabilities –
Preliminary Report.
Kenya Film and Stage Plays Act
The Edelman Trust Barometer 2019.
Languages of Kenya, Bill 2015
Marrakesh Treaty to Facilitate Access to

Published Works to Visually Impaired Persons
and Persons with Print Disabilities (2013).
Media Council of Kenya Act, 2013.
National Public Communication Policy and

Strategy (2006)

Annex One: Summary of recommendations
IMPLEMENTATION MILESTONE PROGRESS INDICATOR
1 REVIEW LAWS AND POLICIES TO REMOVE CONTRADICTIONS
Review of fourteen (14) statutes to align with Number of statutes reviewed
the Constitution
Enactment of four (4) bills to enhance Number of bills enacted into law
government communication
Formulation of nine (9) policies and regulations Number of policies and regulations formulated
Education and awareness campaign on Access Baseline survey on awareness of Act

to Information act Campaign programme on access to Information
Act
Number of awareness campaigns and education
sessions
Summative evaluation of awareness of Access to
Information Act
Development and implementation of legal Legal framework passed
framework for merging GAA, KYEB and KNA Merger of GAA and KYEB
2 DEVELOP STRATEGIC COMMUNICATION WITH A CITIZEN FOCUS
Develop and implement a Public Public Communication Policy
Communication Policy
Develop Communication Strategy and Government Communication Plan Strategy
Communication Plan for Government
Each government entity to develop a Communication strategy
communication strategy and annual and annual communication plans
communication plan
MDAs to develop policy-based public Policy-based public education campaigns by
education campaigns for major government MDAs
projects and programmes
Establish a performance monitoring and Performance monitoring and evaluation
evaluation framework and teams to track framework and teams
implementation of communication strategies
and plans
Initiate annual government communicators’ Annual government communicators’
consultative forum and media summit consultative forum and media sector summit
3 REINVIGORATE GOVERNMENT COMMUNICATION WORKFORCE
Conduct a skills audit of current government Skills audit report
communication officers
Develop a Continuing Professional CPD Curriculum
Development (CPD) curriculum for Circular to KSG
government communicators and issue a Number of communications programmes
circular directing Kenya School of Government offered by KSG
(KSG) to offer the CPD curriculum
Fill vacant positions in accordance with the Number of vacant positions filled
approved staff establishment after audit
Issue circular (by the Head of Public Service) Circular issued
requiring heads of communication in Number of entities implementing the circular
government entities to report directly to the
accounting officers
Embed communication advisors and Number of communication advisors/consultants
consultants with the substantive heads of working closely with respective heads of
communication departments in government communication units
entities for better coordination and synergy
Implement mentorship and internship Number of internships offered by government
programmes for upcoming government entities
communicators
4 CREATE COMMUNICATION STRUCTURES AND SYSTEMS
Re-organise government public Re-organisation of the government
communications architecture by creating the communication function
GCS
Issue a circular or an executive order Circular/executive order issued
establishing GCS domiciled in MoICT, create GCIS established
the position of Director General and align DPC, Position of DG created
GAA & DI to this structure DPC, GAA & DI officers relocated to GCIS
Create three (3) directorate within GCIS at the Directorate of communication and citizen
position of Senior Director as specified in Task engagement created
force Report Directorate of content and publications created
Directorate of digital media created
Merge the current position PCOs and Scrap PCOs & IOs and create Communication
IOs to create the Position of Government Officer posts to director level
Communication officer who will be deployed
to state departments, national Government
administrative organs (NGAO) within counties
and sub counties. The head of communication
in State departments be at director level and
member of decision-making organs
5 BUILD EFFECTIVE COMMUNICATION PLATFORMS
Establish an intranet in each government entity No. of government entities with intranet
to facilitate internal communication
Government entities to hold regular general No. of meetings held
staff meetings within relevant divisions to
create platforms for engagement

Restructure and fund KBC as the foremost Steps taken to revamp KBC
government communication channel
Revamp the publication and distribution of Steps taken to revamp MyGov publication
MyGov and rename it Huduma News
Consolidate bodies (GAA & KYEB) that produce Consolidation of GAA and KYEB
government publications with the exception of
the Kenya Gazette
Redesign the Kenya Gazette to make it A re-designed Kenya Gazette
appealing and circulate it as an insert in Regular insert of Kenya Gazette in Huduma News
Huduma News (Now MyGov)
Enhance face-to-face forums with public/ Enhanced face-to-face forums with stakeholders
stakeholders as specified in Task force report
Establish a central online (portal) repository of Central online portal
all public documents
Create a digital communication division and Digital communication division
staff it with professional personnel to run a
central social media monitoring unit
Revamp MyGov online portal as specified in Revamped Huduma News (MyGov) online portal
this report
Develop a social media policy Social media policy
Re-design government websites to make them Redesigned government website

user friendly and interactive
All government entities to create, verify and Number of government entities with social
maintain interactive social media platforms media platforms
(Facebook, Twitter & YouTube)
Establish a reliable email system and engage a Reliable government email systems
reliable service provider to ensure 99% up time Number of government entities implementing
to avoid the use of private email addresses for 100% use of government email systems among
official purposes employees
Establish a bulk SMS service based at the Active bulk SMS service
GCS for swift communication of government
information
Finalize the last mile connectivity project/ National coverage by electricity and fiber optic
national fiber optic programmes cable
Annex Two: Implementation Matrix
S/N Issue Recommendation Responsibility Timeframe
1 Policies, Review the following statutes to align with the MoICT/OP/ Immediate
legal and Constitution: AG/ National
regulatory • Official Secrets Act, Section 3 Assembly/ MoCS
environment • The Prevention of Terrorism Act
Sections.19, 27, & 29.
• Preservation of Public Security Act, Cap
57;
• Records Disposal Act,
• KBC Act
• KICA
• Media Council Act
• Public Order Act
• Computer Misuse and Cybercrimes Act
• Film & Stage Plays Act
• National Assembly (Powers and
Privileges) Act (1998)
• Evidence Act, Section 131
• Access to Information Act
• Public Archives, Records and
Documentation Act.
• Preservation of Public Security Act
Enact the following Bills MoICT/MoCS/ Immediate
a) Persons with Disabilities Bill MoPS
b) Languages of Kenya Bill National
c) Public Relations and Assembly
Communication Bill
d) Omnibus Kenya Film Bill to
consolidate legislation in the
film industry.
Formulate the following policies and regulations MoICT/PSC/ Immediate
a) National government MOSC
b) e-government Policy
c) Public Service (Values &
Principles) Regulations
d) Access to Information Act
Regulations
e) government Communication
Strategy
f) National Film Policy
g) Public Relations and
h) National Language Policy
i) Review National ICT Policy
(2006)

Roll out an education and awareness CAJ/MoICT Immediate
campaign for journalists and general public
on the Access to Information Act
Provide a legal framework for merging of MoICT/AG Immediate
government Advertising Agency (GAA) and
the Kenya Yearbook Editorial Board.
2 Strategic Conduct an audit of the current public MoICT Immediate
Communication communicators to identify skills gaps to be
and Citizen filled
Focus
Fill the vacant positions in accordance with MoICT/PSC Short term
the approved establishment to ensure
there are adequate skilled government
communicators
Ensure every state department has a director MoICT Immediate
of communication supported by a multi-
skilled team
Deploy government communicators to MoICT Immediate
support regional commissioners, county
commissioners and assistant commissioners
Regularise the position of head of All SAGAs Immediate
communication in government agencies/
parastatals to be the same level as the heads
of divisions that report to the CEO
Align communication advisors/ All Immediate
consultants with the substantive heads of Ministries
communication for better coordination and
synergy
3 Capacity Formalise Continuing Professional All MDAs Immediate
Building Development Training programmes for
communication work force in conjunction
with industry players including PRSK
Public communication officers be required All MDAs Immediate
to complete at least five days of CPD training
each year as per the approved curriculum
Implement a mentorship and internship All MDAs Immediate
programme for public communicator
Implement a government wide culture and All MDAs immediate
mindset change programme to help public
officers become more robust and disciplined
including in time management, service
delivery and responding to citizen requests.
4 Communication Delink government communication from Head of Short term
structures and telecommunications and ICT, and prioritise Public
systems its activities Service/
MoICT
Establish the the GCIS domiciled in MoICT Head of Short term
in charge of all government communication Public
within the country and abroad. Staff Service/
under the DPC and DI to be aligned to this MoICT
structure.
Create the position of Director General Head of Short term
(DG) to head the GCIS, who will be the Public
Government Spokesperson Service/PSC
Establish a National Government MOICT/ MoE Short term
Communication Training Centre for
continuous learning and development
of communication staff in line with the
changing dynamics.
Direct heads of communication in ministries All MDAs Immediate
and state departments to report to the
Principal Secretary/accounting officer and
formalize their membership in the senior
management committee
Merge the current positions of Public Head of Immediate
Communication Officers (PCOs) and Public Service
Information Officers (IOs) to create the /MoICT
position of Communications Officer to be
deployed in State departments, county
offices and missions abroad.
The Kenya government Public All MDAs Short term
Communication Policy proposed in Section
2.2.4 should provide a clear framework
on the rules, policies and procedures that
govern communication across government.
All government entities be required to
develop their own internal communication
policies, strategies and annual plans that
are aligned to the overall government
The Government Communications and GCIS Short term
Information Service (GCIS) proposed
in Section 2.2.4 should hold regular
(annual) consultative meetings on
government communications, media sector
and champion the growth of the information
and communication sector across
government and nationally.

Each government entity to have an intranet All MDAs Short term
that facilitates open communication and
sharing information among its employees,
including the top leadership. The
intranet should be the one-stop-shop for
government policies, programmes and plans
and be updated on a regular basis (preferably
weekly)
Incorporate heads of communication All MDAs Immediate
departments in government entities to key
decision-making organs to facilitate accurate
upward and downward information flow
Government entities to incorporate All MDAs Immediate
social media platforms in sharing relevant
information among employees.
5 Revamp Fully fund KBC’s public broadcasting MoICT/ Short term
KBC, make it functions and authorise it to enter PPPs for National
Government other revenue sources Treasury
channel of
Oblige BC to dedicate time to broadcast KBC/ All Immediate
communication
public interest information by government MDAs
and set up platforms for agencies to engage
with stakeholders on service delivery, policy
and socio economic development agenda.
6 Revamp MyGov Rebrand as Huduma News to signify that MoICT Immediate
it is a platform for publishing government
services where citizens can find credible,
up-to-date information about government
services. To be distributed through the
government administrative structures
and accessed at Huduma Centres and
administration centres in counties and sub
counties. To be published in print and an
e-version, Braille, on Mobile App and lodged
with all MDAs websites
7 Consolidate Rename the Government Advertising MoICT Short term
the bodies Agency (GAA) as the “Government
that produce Publications Agency (GPA) and merge all
government agencies producing different government
Publications publications, other than the Kenya Gazette,
under it. These will include Huduma News,
the Kenya Year Book and the Directorate of
Information (KNA)
Re-design and revitalise Kenya Gazette - The AG/MoICT/ Short term
Kenya Gazette to be re-designed to make it Ministry of
more appealing and be circulated as an insert Interior and
in Huduma News, in addition to being available Co-ordination
at the Government Printer Bookshop, and of National
electronically on the Parliamentary and Kenya Government
Law Report websites, and the proposed one-
stop Kenya Government information portal
Prioritise the use of face-to-face communication All MDAs Immediate
platforms such as barazas and stakeholder
meetings and public participation forums
Consolidate and decentralise information MoICT/ MPS Short term
resource centres. Establish a citizen service/call
centre in every Huduma Centre countrywide
Establish or strengthen multipurpose MoICT Long Term
community centres where government
information can easily be accessed at the
grassroot level.
All existing government agencies like Head of Immediate
the KNLS, KNBS and National Archives to Public Service
collaborate on their documentation services
to ensure government information such
as circulars, executive orders, presidential
speeches, pronouncements and government
advertisements in various media can be
accessed
Exploit synergy within existing government Head of Public Immediate
infrastructure like the Postal Corporation Services
of Kenya, Kenya Tourism Board, Brand Ke,
Universities, Sports Federations, the Ministry
of Foreign Affairs and Ministry of Trade to
distribute government communication e.g.
MyGov, Kenya Gazette, The Kenya Yearbook, etc.
8 Online Establish a comprehensive online portal of all MoICT Immediate

(Digital) public documents (see below) maintained by
Platforms the Digital Communication Division under the
aegis of the GCIS that coordinates government
online communication and content creation.
Division will also carry out digital media-
monitoring for all government MDAs and
operate a Bulk SMS Service for communicating
urgent government information..

Revamp MyGov online platform (www. MoICT Immediate
mygov.go.ke) and transform it into a
one-stop repository of all government
information with links to all websites
and Huduma Kenya website (www.
hudumakenya.go.ke
Develop the government social media MoICT Immediate
policy
Direct all government bodies to All MDAs Immediate
maintain robust social media particularly
Facebook, Twitter, WhatsApp and
YouTube Channels with content that is
relevant to citizens and not just replete
with activities of senior government
officials
All government bodies to establish All MDAs Immediate
reliable email services and all officers to
use assigned email addresses for official
communication and not private Gmail
and Yahoo accounts
Finalise the last-mile connectivity MoICT Short term
project/national fibre optic programme
to ensure connectivity
Exploit Public Private Partnerships to MoICT/ KEPSA Long term
facilitate systems and tools for free Wi-
Fi for grassroot government offices,
including the chief’s office
9 International Develop clear messaging on Kenya’s Ministry of Immediate
Communication brand identity and development Foreign Affairs
agenda in terms Kenyans are familiar
with, such as Big4Agenda, Vision2030
Develop a “public diplomacy” approach Ministry of Immediate

where all relevant entities feed into the Foreign Affairs
system and provide both information
and services on point.
10 Culture and Orientate public service to be PSC/MPS Immediate

Mindset Change communicative, participative,
transparent and accountable to the
citizens to promote trust in government
Annex Three: Constitutional, Statutory and Policy
Provisions on Access to Information
IMPLICATIONS FOR PUBLIC

ARTICLE THEME
COMMUNICATION DELIVERY
10 of CoK National values to be Basis and goals for service delivery
reflected in all activities of
government
27 of CoK Equality and freedom from Public services shall be delivered in an
discrimination equitable and non-discriminatory manner
31 of CoK Privacy of every person In delivering public services, information
collected from citizens must be protected
and not divulged in a harmful and unlawful
manner.
32 (3) of CoK Freedom of conscience, No one may be denied access to public
religion, belief and opinion services on account of their beliefs or religion
33 (1,a) and 35 Freedom of expression and Citizens have a right to access information
of CoK access to information used to deliver public services.
47 of CoK Fair Administrative Action Citizens have the right to fair administrative
action that is expeditious, efficient, lawful,
reasonable and procedurally fair. It obliges
public officers to adhere to these principles
when taking administrative action.
53, 54, 55, 56, Specific application of the Lays the basis for affirmative action, where
and 57 of CoK Bill of Rights to children, required, in the delivery of public services for
persons with disabilities, these groups of the citizenry.
youth, minorities, marginalised
groups and older members of
society
73 to 80 of CoK Leadership and integrity of Framework for personal and public behaviour
public servants and action by public servants in delivering
public services – bring honour to the nation;
promote confidence in public service
232 (f) of CoK Values and Principles of Transparency and provision to the public
Public Service of timely, accurate information by public
servants as and when required to do so.

STATUTE/POLICY PUBLIC COMMUNICATION & INFORMATION PURPOSE
Access to Information Operationalises Article 35 of the Constitution that grants every citizen
Act the right to access information held by the State or any other person
that is required for the exercise or protection of any right or fundamental
freedom; and the right to the correction or deletion of untrue or misleading
information on any person, and compels the State to publish and publicise
any important information affecting the nation. This Act confers on the
Commission on Administrative Justice (CAJ) the oversight and enforcement
functions.
Media Council Act The Act gives effect to Article 34(5) of the Constitution and establishes
the Media Council of Kenya and the Complaints Commission under it
for self-regulation. It does not provide for collaboration on Public Service
Announcements between the state and media enterprises.
Kenya Information The Act establishes the Communications Authority of Kenya and outlines the
and Communication general regulations for telecommunication services in Kenya.
Act 2013
Kenya Broadcasting Establishes the Kenya Broadcasting Corporation to assume the government
Corporation Act functions of producing and broadcasting programmes. The Act does not
provide for funding mechanisms for public broadcasting and KBC is expected
to compete commercially.
Films and Stage Plays The Act provides mechanisms for controls in the making and exhibition of
Act films, licensing of stage plays, theatres and cinemas.
County government Provides for county governments’ powers, functions and responsibilities to
Act deliver services including access to information, data, documents and other
information relevant to policy formulation and implementation in pursuit of
citizen participation in management of the county government. Part IX deals
with Public Communication and Access to Information.
Commission on Establishes the Commission on Administrative Justice (CAJ) with a mandate,
Administrative inter-alia, to investigate any conduct in state affairs or any act or omission in
Justice Act public administration in any sphere of government and complaints of abuse
of power, unfair treatment, manifest injustice or unlawful, oppressive, unfair or
unresponsive official conduct.
Public Service (Values The Act outlines values and principles of Public Service. Section 8 outlines
and Principles) Act the need for transparency and providing the public with timely and accurate
(No. 1A of 2015) information
Executive Order No. 1 Establishes four committees as follows;
of 2019 1. i. Implementation and Communication Cabinet Committee,
2. ii. National Development Implementation Technical Committee,
3. iii. Regional Development Implementation Co-ordination
committees, and iv. County Development Implementation Co-
ordination committees.
Legal notice No. 38 of The Legal Notice created the Brand Kenya Board to integrate the coordinating
2008. mechanisms and communication for building and enhancing the country’s
image, national identity and managing its international reputation as well as
rallying citizens together for greater social harmony and cohesiveness.
Legal Notice No. 172 and The Legal Notice established the National Council for Population and
152 Development (NCPD) to research and analyze population issues and
develop policies relating to population.
Legal Notice No. 187 of The Kenya Yearbook order, 2007 mandates the Kenya Year-Book Board to
2007 facilitate compilation and publication of the Kenya Year-Book.
Legal Notice No 147 of The Notice establishes the Kenya Film Commission (KFC) as a State
2015. Corporation with the mandate to develop, promote and market the film
Industry locally and internationally.
Legal Notice No 110 of 9th The Legal Notice revoked the Brand Kenya Board (BKB) and Export
August 2019 Promotion Council (EPC) and formed a new entity called Kenya Export
Promotion and Branding Agency (Brand.KE). The new organization is
expected to be an integrated one-stop-shop for all export promotions and
nation branding activities locally and internationally.

Annex Four: Major international treaties on transparency
and accountability in governance to which Kenya is a
signatory
Treaty Purpose
1 The Universal Declaration of Article 19 states that ‘Everyone has the right to freedom of
Human Rights (UDHR) opinion and expression; this right includes freedom to hold
opinions without interference and to seek, receive and impart
information and ideas through any media and regardless of
frontiers’
2 The International Covenant Article 19 provides that, ‘Everyone shall have the right to freedom
on Civil and Political Rights of expression; this right shall include freedom to seek, receive
(ICCPR) and impart information and ideas of all kinds, regardless of
frontiers, either orally, in writing or in print, in the form of art, or
through any other media of his choice.’
3 The African Charter on Article 9 provides that ‘every individual shall have the right to
Human and Peoples Rights receive information.’
Annex Five: List of stakeholders who submitted views
and proposals
S/No. Category Stakeholder

MOICT • Cabinet Secretary, PS and IS
State corporations • Brand Kenya
• ICTA
• KFCB
• KFC
• National Youth Council
• NCPD
• Government Printer
• ACA (Anti-Counterfeit Authority)
• Kenya National Archives
• Kenya Year Book Editorial Board
• Kenya National Library Services
• Kenya National Bureau of Statistics
• Kenya Tourism Board
• Kenya Broadcasting Corporation
• Huduma Centers
Departments • Department of Public Communications (DPC)
• government Advertising Agency (GAA)
• Directorate of Information
• Directorate of ICT
• Presidential Strategic Communication Unit
• National government Communication Centre
• Government Printer
Unions/organised • KAM
professional societies • KNUT
• KNUNs
• Kenya Editors Guild /
Kenya Media Sector Working Group
• COTU
• KEPSA
• East African Farmers Federation
• PRSK
• FKE
• ICPAK
Commissions and specialist • CAJ
agencies • SCAC
• PSC
• EACC
• KNCHR
• Article 19
• Katiba Institute
• National Aids Control Council

• National Council for Persons with Disabilities
• National Assembly ICT committee
• Senate ICT committee
• Judiciary directorate of communication
• Inter Religious Council of Kenya (IRCK)
• Council of Governors
• Huduma Centres
Written • EP
submissions & • Ethical Governance Watch
policy documents • Inter-religious Council
• National Aids Council report
• Impact Africa
• Association of Public Relations and Communication Firms
(APReCom).
• Canadian Community Policy
• CMIL-Kenya
• KNLS- Kenya National Library Services
• Kenya Tourist Board (KTB)
• Report of the Presidential Task force on Parastatal Reforms
• Kenya Industrial Property Institute (KIPI)
• KIPI Career guidelines for Corporate Communications
• KIPI organizational structure
• Structure of PC units in Ministries
• Public Communications Strategy
• Executive Order on the Framework for Coordination and
Implementation of National government Development
Programme & Projects
• PSC HR policies
• Public Officer Ethics Act
• Access to Information Act
• Brand Kenya Final Report
• Various statutes (Official Secrets Act, Computer Misuse and
Cybercrimes At, etc)
• Revised Scheme of Service for Information Officers
• Marrakech Treaty (on PWDS)
• Water Resource Management Authority
Individual oral • Leonard Kimutai
Submissions/Expert • Edwin Musonye
opinions • Jeremy Ng’ang’a
• Secretary, Administration, Min of ICT
• Kentice Tikolo, Impact Africa
• Dr Rhoydah Nyambane, Moi University
• Dr James Oranga, UoN,
• Dr Wilfred Marube, PRSK
• Government Spokesperson Col (rtd) Oguna
• Government Spokesperson Eric Kiraithe
• Meru County Commissioner
• County Commissioner, Kisumu
• County Commissioner, Turkana
• Regional Commissioner, Coast
• County Commissioner, Mombasa
• Robert A Jensen – Strat3 LLC, USA
Public Stakeholder • Nairobi
Engagements • Kisumu
• Mombasa
• Meru
• Garissa
• Lodwar

Annex 6: Gazette Notice Establishing The Task Force
Annex Seven: Advert Inviting Stakeholders
to Submit Views
MINISTRY OF INFORMATION,
COMMUNICATIONS AND TECHNOLOGY
State Department Of Broadcasting And
Telecommunication
TASKFORCE ON THE IMPROVEMENT OF GOVERNMENT INFORMATION AND PUBLIC

COMMUNICATIONS FUNCTIONS TO ALIGN THEM WITH EMERGING PUBLIC SECTOR
DYNAMICS AND EXPECTATIONS
PUBLIC NOTICE
Following the gazettement of the taskforce to advise the government on the improvement of
government information and public communication functions (Gazette Notice No 354 of 18th
January 2019), the task force wishes to inform the general public that:
1. Its secretariat is located at the Ministry of Information, Communication and Technology, 10th
Floor, Teleposta Towers, Kenyatta Avenue, Nairobi.
2. A schedule of public hearings will be published soon.
3. In the meantime, the taskforce will be receiving views from the public through written memo-
randa from 15th March to 15th April of 2019.
4. The taskforce is, therefore, inviting views on:
a. The kind of information you need from the government and whether you are getting it,
b. Challenges faced in accessing government information,
c. Where and how government information should be provided,
d. The format of the information and channels of communication,
e. How the government can improve its engagement with the public, and
f. Any recommendations on improving government communication and information.
All submissions and documents should be sent to:

THE CHAIRMAN
TASKFORCE FOR THE IMPROVEMENT OF GOVERNMENT INFORMATION
AND PUBLIC COMMUNICATIONS
10TH FLOOR TELEPOSTA TOWERS
P O Box 30025-00100 NAIROBI
Emails may be sent to: taskforce@information.go.ke and informationtaskforce1@gmail.com
MINISTRY OF INFORMATION,
COMMUNICATIONS AND TECHNOLOGY
REPUBLIC OF KENYA
TASKFORCE ON THE IMPROVEMENT OF GOVERNMENT

INFORMATION AND PUBLIC COMMUNICATIONS FUNCTIONS
TO ALIGN THEM WITH EMERGING PUBLIC SECTOR
DYNAMICS AND EXPECTATIONS
PUBLIC NOTICE
The taskforce on government information and public communications (see Gazette Notice No 354 of 18th Janu-
ary 2019) is collecting views from the public on but not limited to the following issues;
a. The kind of information you need from the government and whether you are getting it,
b. Challenges faced in accessing government information,
c. Where and how government information should be provided,
d. The format of the information and channels of communication,
e. How the government can improve its engagement with the public, and
f. Any recommendations on improving government communication and information generally.
In view of the above, the Taskforce wishes to inform interested institutions, organizations and members of
the public that the Taskforce has scheduled the second phase of county stakeholders’ engagement as follows:
S/N Name of Facility Date Time

the County
1 Lodwar SEAAMO Hotel 2nd July, 2019 9: 00 AM
2 Meru Paramount Hotel 3rd July, 2019 9:00 AM
3 Garissa Government House 3rd July, 2019 9:00 AM
4 Nairobi KICC Taifa Hall 4th July, 2019 9: 00 AM
For more information on the Venue, kindly contact the Office of County Commissioner
You may also send your written submissions to informationtaskforce1@gmail.com.
THE CHAIRMAN
TASKFORCE FOR THE IMPROVEMENT OF GOVERNMENT INFORMATION
AND PUBLIC COMMUNICATIONS
10TH FLOOR TELEPOSTA TOWERS
P O Box 30025-00100 NAIROBI
Annex Eight: Sample Invitation Letter to Stakeholders
REPUBLIC OF KENYA
MINISTRY OF INFORMATION, COMMUNICATION AND TECHNOLOGY

State Department for Broadcasting and Telecommunications
Taskforce for Improvement of Government Information and Public Communications Functions
From the Desk of the Chairman

Telephone: Telposta Towers
Website: P.O. Box 30025-00100
Email: taskforce@information.go.ke Nairobi
When replying please quote KENYA
Ref: MICT/CONF/16/03(2)
15th March 2019

The Director
NGCC
KICC
Dear Ms Wangui Muchiri
REF: MEETING WITH TASKFORCE FOR IMPROVEMENT OF GOVERNMENT

INFORMATION AND COMMUNICATIONS
As you may be aware the government gazetted a taskforce on 19th January 2019 to
look into the state of government information and public communications functions
with a view to aligning them with emerging public sector dynamics and expectations.
The terms of reference of the TF include:
 Review of the current structures of communication and staffing levels

 Review of existing policies and legislation and recommending how to revamp
and strengthen the institutional and operational base of public communication
and information functions at ministries/departments/agencies and counties.
 Recommendation on how to facilitate public communications and information
cohesiveness across government
The taskforces has embarked on its work and, as a first step, is engaging relevant
government officials and departments charged with communication to gather their
views on the status quo.
Towards this end, the taskforce is kindly seeking a meeting with you and your senior
staff on Tuesday, 26th March 2019, in the boardroom at Telposta Towers on 11th floor
at 2pm.
The task force will be seeking your views on;
1. The current practice/state/structure of NGCC and its public communication

functions and how it relates with other govt depts
2. Challenges being experienced
3. Recommendations for effective public communications
4. Any other observations
We look forward to your presentation.
Kindly confirm your availability and share any other perspectives you may have on the
same with the undersigned.
Sincerely,
David Makali
CHAIRMAN

Annex Nine: In Pictures - Task Force Engagement With Stakeholders
Pictures - continued

REPUBLIC OF KENYA
WINNING PUBLIC TRUST

Report of the Task Force on the Improvement of Government
Information and Public Communications
December 2019
Ministry of Information,
Communications & Technology,
10th Floor, Teleposta Towers,
P.O. Box 30025-00100 Nairobi.
Email: info@ict.go.ke

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2 WINNING PUBLIC TRUST

Members of the Task Force 9

Methodology and Scope of Work 11

Introduction The Context of Government Communication 24

Chapter One The Culture and Mindset of Government Communication 27

Chapter Two Constitutional and Legal Context of Public Communications and 36

Why enabling policies and laws matter

Chapter Three Developing a Skilled Public Communication Workforce 47

Key citizen concerns

Chapter Four The Culture and Practice of Government Communication 52

Challenges facing current government practice

Why communication platforms matter

Chapter Six An Agenda for Action by Government, Parliament and Citizens 69

Annex One: Matrix on recommendations of the task force 73

Annex Two: Implementation Matrix 76

Annex Three: Constitutional, Statutory and Policy Provisions on Access to 82

Annex Four: Major international treaties on transparency and accountability 85

Annex Five: List of stakeholders who submitted views and proposals 86

Annex Six: Gazette notice establishing the task force 89

Annex Seven: Advert inviting stakeholders to submit their views 91

Annex Eight: Sample invitation letter to stakeholders 92

Annex Nine: In pictures: task force engagement with stakeholders 93

4 WINNING PUBLIC TRUST

Mr. Joe Mucheru, EGH

6 WINNING PUBLIC TRUST

8 WINNING PUBLIC TRUST

Chairman David Makali

Members Abraham Mulwo (Dr)

Joint Secretaries Kennedy Buhere

Admin Benadette Owade

4. Explore modalities and generate proposals on how public communications and

5. Identify and make recommendations on how to facilitate public communication and

10 WINNING PUBLIC TRUST

12 WINNING PUBLIC TRUST

Declining trust in public communication and institutions

1. Lack of a coherent, overarching government communication strategy

“Open citizen engagement and building trust should

3. Underlying mindset of government communication is out of step with the times

1 The Edelman Trust Barometer 2019

6. Contradictory laws on public information; progressive ones yet to be operationalised

14 WINNING PUBLIC TRUST

7. Public communications under-resourced

10. Poor information and documentation/archival system

12. Inordinate preoccupation with politics and politicisation of service delivery

16 WINNING PUBLIC TRUST

14. Low rating of state media

5 Kenya National Population Census Report, 2009. Available on http://www.knbs.or.ke/Census%20Results/Presentation%20by%20Minister%20

Summary of Key Recommendations

2. Operationalise laws that support access to public information and communication

18 WINNING PUBLIC TRUST

3. Develop and implement a coherent public communication policy and plan

4. Strengthen and build the capacity of the government communication workforce

5. Initiate a programme to transform the public communication mindset from a government-

6. Separate information and public communication functions from ICT

7. Reorganise government public communications architecture by creating a national Government

20 WINNING PUBLIC TRUST

8. Update communication platforms and efficiently leverage digital media

9. Effectively manage government’s online presence

11. Address barriers to information faced by persons with disability

13. Proactively use community media and public communication platforms

14. Depoliticise government policy

22 WINNING PUBLIC TRUST

High cell phone and Internet penetration