PAGE 1: COVER
STRATEGIC RCCE PLANNING: THE 5-STEP MODEL
From Reactive to Strategic: A Practical Framework for Kampala
KCCA RCCE Learning Platform | Module 2
PAGE 2: INTRODUCTION – WHY STRATEGIC PLANNING?
The Problem with Reactive RCCE
Most RCCE in emergency settings is reactive—responding to crises as they unfold rather than preparing in advance. Reactive RCCE is characterized by:
Crisis-triggered activation
Generic, one-size-fits-all messages
One-way information delivery
No baseline data for measuring change
Ad hoc, uncoordinated partnerships
Rumors spreading faster than official information
The evidence is clear: Reactive RCCE is less effective, more costly, and often fails to protect the most vulnerable populations.
The Alternative: Strategic RCCE
Strategic RCCE inverts this approach. It focuses on:
Preparedness before crisis
Audience-specific communication
Two-way engagement and dialogue
Measurable objectives and indicators
Coordinated partnerships with clear roles
Proactive rumor prevention and response
The 2025 KCCA Simulation demonstrated that divisions with stronger pre-crisis planning achieved faster activation times (Kawempe: 28 minutes vs. Rubaga: 45 minutes) and higher message retention (Nakawa: 85% vs. ad hoc approaches: 60%).
Strategic planning is how KCCA will achieve health security for Kampala’s 1.88 million residents.
PAGE 3: THE 5-STEP RCCE PLANNING MODEL
Overview
The 5-Step RCCE Planning Model provides a systematic approach to designing effective risk communication and community engagement interventions.
| Step | Focus | Key Question | Primary Tool |
| 1 | Situation Analysis | What’s happening? | 5WH Framework |
| 2 | Audience Analysis | Who needs to know/act? | KAB Framework |
| 3 | Message Development | What should we say? | Message Design Canvas |
| 4 | Channel & Partner Selection | How do we reach them? | Stakeholder Mapping |
| 5 | Coordination & MEL | How do we work together and know it worked? | Coordination Plan & Indicators |
The Logic:
Steps 1-2 are ANALYTICAL: Understanding the situation and audiences
Steps 3-4 are CREATIVE: Designing messages and selecting channels
Step 5 is OPERATIONAL: Coordinating action and measuring results
Time Investment:
In a real emergency, you may have only hours. But investing even 2-3 hours in systematic planning dramatically improves outcomes compared to ad hoc response.
PAGE 4: STEP 1 — SITUATION ANALYSIS (5WH FRAMEWORK)
Purpose: Understand the nature, scope, and dynamics of the health emergency or risk
The 5WH Questions:
| Question | What to Identify | Information Sources |
| WHAT? | Nature of the health risk/emergency | Surveillance data, lab results, clinical reports |
| WHERE? | Geographic scope and boundaries | GIS mapping, health facility reports, LC reports |
| WHEN? | Timeline, duration, seasonality | Epidemiological curves, historical data |
| WHO? | Affected populations and their characteristics | Census data, vulnerability assessments, community reports |
| WHY? | Root causes and contributing factors | Rapid assessment, expert analysis |
| HOW? | Current response capacity and gaps | Capacity assessment, resource inventory |
Example: 2019 Kampala Floods
| Question | Situation Analysis |
| WHAT? | Flash flooding from heavy rains and drainage overflow |
| WHERE? | Bwaise, Kisenyi, Katwe, Nalukolongo (low-lying wetland areas) |
| WHEN? | April-May rainy season; lasted 3 weeks |
| WHO? | 10,000 displaced; 200,000 affected; most vulnerable: elderly, disabled, infants |
| WHY? | Heavy rains + blocked drainage + wetland encroachment + inadequate infrastructure |
| HOW? | KCCA PHEOC activated; Red Cross shelters opened; police evacuations; radio alerts |
Key Insight: Situation analysis should be completed BEFORE crisis whenever possible. This enables preparedness planning for predictable events (rainy season floods, disease outbreaks in endemic areas).
PAGE 5: STEP 2 — AUDIENCE ANALYSIS (KAB FRAMEWORK)
Purpose: Understand what target audiences know, believe, and do—so messages can address actual barriers to protective behavior
The KAB Framework:
| Domain | Key Questions | Why It Matters |
| KNOWLEDGE | What do they currently know? What are gaps? What misinformation exists? | Messages must fill knowledge gaps without being condescending |
| ATTITUDE | What do they believe/feel? How do they perceive risk? Do they trust authorities? What cultural beliefs affect behavior? | Messages must address beliefs and build trust |
| BEHAVIOR | What are they currently doing? What should they do? What barriers prevent behavior change? | Messages must provide clear, actionable steps that overcome barriers |
Example: Handwashing in Katwe Market
| Domain | Analysis |
| K | Many vendors don’t know cholera spreads through fecal-oral route; believe it’s caused by “bad water” |
| A | Believe water scarcity is the problem, not handwashing; fear customers will think they’re dirty if they wash hands publicly |
| B | Currently: wipe hands on cloth. Should: wash with soap after toilet, before handling food. Barrier: No handwashing station; soap costs money; handwashing takes time away from customers |
RCCE Implication:
Instead of message: “Wash your hands to prevent cholera” (doesn’t address barriers)
Better message: “Free handwashing station at market entrance. 20 seconds of handwashing protects your customers AND your business. Clean vendors attract more customers.”
This message addresses:
Knowledge gap (handwashing prevents cholera)
Attitude barrier (positions handwashing as business advantage, not sign of being “dirty”)
Behavior barrier (provides free station, emphasizes speed)
PAGE 6: STEP 3 — MESSAGE DEVELOPMENT
Purpose: Design messages that motivate protective behavior by addressing knowledge gaps, attitude barriers, and behavioral facilitators
7 Characteristics of Effective Messages:
Audience-specific: Tailored to specific group, not generic
Clear & simple: Plain language, short sentences, no jargon
Actionable: Tells people exactly what to DO
Relevant: Connects to audience’s actual life and concerns
Credible: Comes from trusted source
Culturally appropriate: Respects local norms and values
Empowering & positive: Focuses on what people CAN do, not just fear
Message Structure:
Every effective message should include:
WHAT is the risk/situation
WHY it matters to this audience
WHAT TO DO (specific action)
WHERE/WHEN/HOW to do it
WHO to contact for help
Example:
Generic (ineffective): “Practice good hygiene to prevent disease.”
Audience-specific (effective): “Market vendors: Wash hands with soap for 20 seconds after using the toilet and before touching food. Free handwashing station at market gate C. Protect your customers—and your business.”
[Note: Detailed message design is covered in Module 3. This section provides overview for planning purposes.]
PAGE 7: STEP 4 — CHANNEL & PARTNER SELECTION
Purpose: Identify the most effective channels to reach target audiences AND the partners needed for coordination
Channel Selection Criteria (6 As):
| Criterion | Question |
| Availability | Is this channel available in this location? |
| Accessibility | Can the target audience access it? (cost, technology, literacy) |
| Acceptability | Is it culturally appropriate and trusted? |
| Affordability | Can the audience afford to use it? Can we afford to use it? |
| Actionability | Does it enable the desired action? |
| Accountability | Can we track reach and impact? |
Stakeholder Mapping Tools:
Tool 1: Power-Interest Matrix
| High Interest | Low Interest | |
| High Power | Key players—manage closely (KCCA leadership, MOH, major partners) | Keep satisfied (Parliament, donors) |
| Low Power | Keep informed (community groups, CBOs) | Monitor (general public) |
Tool 2: Concentric Circle Model
Inner circle: Core response team (daily coordination)
Middle circle: Key partners (regular engagement)
Outer circle: Broader stakeholders (periodic updates)
PAGE 8: STEP 5 — COORDINATION & MEL
Purpose: Establish clear coordination mechanisms and monitoring systems
Coordination Design Questions:
Who leads? (Incident commander, RCCE focal point)
Who meets? (Which stakeholders)
How often? (Daily during crisis, weekly during preparedness)
How are decisions made? (Consensus, hierarchical, delegated)
How is information shared? (WhatsApp, email, meetings, dashboard)
What are roles? (RACI matrix: Responsible, Accountable, Consulted, Informed)
MEL Framework:
| Level | Definition | Example |
| Input | Resources invested | Budget, staff time, airtime, materials |
| Activity | Actions taken | Radio spots, community meetings, SMS alerts |
| Output | Direct products | 10,000 people reached; 20 meetings held |
| Outcome | Behavior/knowledge change | 70% know evacuation routes |
| Impact | Long-term effect | Reduced deaths/injuries |
SMART Indicators:
Every objective needs a SMART indicator:
Specific: What exactly are you measuring?
Measurable: Can you count/quantify it?
Achievable: Is the target realistic?
Relevant: Does it matter for your goal?
Time-bound: By when?
Example:
Objective: Increase community knowledge of evacuation routes
SMART Indicator: Percentage of Bwaise residents who can name at least one designated evacuation shelter increases from 30% to 70% within 2 weeks (measured via rapid household survey)
EMBEDDED QUIZ (10 Questions)
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