Behavioral sciences to protect human capital investments during
and after the COVID-19 pandemic1
This version: 5 May 2020
The novel coronavirus (SARS-Cov-2, which causes COVID-19) presents multi-dimensional challenges for
countries as the effects of the virus, and the response efforts, intersect with other sectors and
development priorities. Impacts have been felt across sectors and globally, and there have been
immediate impacts on human capital attainment and investment.2 The COVID-19 response, in both the
immediate crisis period and the medium/long term, will demand changes in health and other behaviors
at the individual, group, and society levels to help mitigate these impacts and risks.
Behavioral science can provide insights into designing effective COVID-19 responses, as well as how to
sustain progress in other important areas when resources are focused primarily on urgent COVID-19
response and attention is limited. At the heart of addressing the COVID-19 health crisis, from immediate
response, to recovery and action on its impacts, lies large demand on behavior change, whether at the
individual, group or society level. While much of the immediate focus so far has been on social and
behavior change communications to manage infection rates, there are other areas of human capital
development and protection where insights and actions can benefit from behavioral science. This note is
intended to introduce a behavioral lens to health and nutrition, education, and social protection efforts
to reduce negative impacts on human capital accumulation (mainly health, nutrition and education), and
to enhance preparedness, response, and adaptation to COVID-19.
To protect human capital, three multi-faceted needs are at forefront:
Table 1. Needs and actors/groups for human capital protection in the face of a public health crisis
Need Key actor/group
Adapt and continue service delivery and quality (preventative Service providers
and remedial to the crisis, as well as ongoing services).
Maintain desirable behaviors and efforts towards human capital Communities and households
investments, while adapting to new behaviors related to COVID-
19 prevention and management.
Develop an enabling environment for human capital investments Communities
to continue.
1
This note has been developed by the Mind, Behavior, and Development Unit. Contacts on the content are Ana
Maria Munoz Boudet, Ellen Moscoe, and Julie Perng.
2
See Annex 1 for a theory of change of channels and impacts for the short and medium term.
There are three actors on human capital -service providers, communities and households- that will be
impacted by changes in the decision environment and by beliefs, information, and other forces that will
shape their knowledge, attitudes, and behaviors.3 Supporting them adequately in their efforts will reduce
the risk of the COVID-19 pandemic negatively affecting human capital investments, and reduce setbacks
on specific indicators. This note will highlight behavioral considerations relevant to human capital
protection in the face of COVID-19 for these three actors and their main needs (Table 1). Service providers,
are called to ensure safety and continuity of services, and to adapt to changes in human capital-related
programs such as health, nutrition and education services. These efforts can be hampered by required
adaptations in work processes and relations with beneficiaries and users, and by the crisis’ effects on re-
shifting priorities in the short term, and potential long-term impacts on human capital outcomes.
Communities need to utilize collective efforts to maintain health outcomes, foster social cohesion (combat
in-group/out-group bias), and coordinate on targeting and implementation of programs such as safety
nets, food distribution and others that might be designed to support those affected by the crisis.
Households, which include parents/caregivers and children, will focus their efforts to maintain individual
and family health and nutrition; adapt to changes in programs and services (e.g. becoming the
‘implementers’ of some of these programs as it is the case for education or early childhood development);
and respond to shocks to reduce negative impacts in health, nutrition and education outcomes. Cognitive
biases that affect interpretation of information and decision-making will particularly impact behaviors of
households, and should be considered in the design of communications, interventions, and programs.
Service delivery providers
Changes in human capital-related programs will require service providers to adapt to new delivery
mechanisms to ensure continuity in services, including rapid innovation, tools, and adapted processes
adoption. Service providers will be challenged to utilize new methods to do their work they might not be
prepared or equipped to (e.g. online teaching); they’ll also be asked to use new methods of
communications, reporting, and assessments; among other changes. In addition to adapting in their
specific sector and area of work, they also face the need to adopt and transmit communications and
information on broader programs (e.g. containment and prevention), and cover for sectors and services
that might have a more limited field presence. Supporting mechanisms for the adaptation, and
understanding barriers (mental models, mindsets, non-recognition of difficulties or lack of knowledge)
and addressing them adequately will help them with adaptation.
Service providers are the main channel to amplify and ensure knowledge and adoption of government
guidance; as well as of the adoption, use, and feedback on changes for their respect services by the
community. To succeed, they must be equipped with adequate communication tools, and to be able to
convey clear, simple and actionable messaging to the community. Simplified tools with clear priorities and
targets, constant check-ins and guidance, peer groups organization, and ‘unloading’ (stress, challenges
under new models, etc.) moments are among the tools to support service providers while balancing the
demands they might be face. In addition to channeling information, service providers can serve to model
desired behaviors (from prescribed ones such as handwashing to dealing with longer-term barriers, such
as uncertainty about the future) on an ongoing basis.
3
See Annex 2 for a summary of biases and solutions.
Critical trainings for all service providers who are interacting with beneficiaries and learning and
utilizing new methodologies, tools, and processes (such as online teaching, new methods of
communications and assessments, and working with limited resources) on a wider array of issues
associated with COVID-19 impacts will be required. In addition to trainings with clear background
explanations on each recommended communication modality or new processes, trainings may will need
to include additional topics such as mental health, self-efficacy and how to deal with uncertainty, and
basic information on the entire set of services available to a household (including those from different
sectors), and how to provide feedback, track and/or escalate issues and cases, including those outside of
their specific sector (e.g. health issues when discussing education). Communications and support for
service providers are as central as it is to households.
To tackle potential surge in demand and low cognitive bandwidth for processing new information,
solutions such as changing the choice architecture and automation in case management and other
processes or systems could be helpful. Service providers could use more automated systems; receive or
create Q&A and scripts to assist in giving guidance, reminders; leverage tablets and other IT-related
solutions for record-keeping; and more. Other technological solutions such as AI chatbots or messaging
could be used to both collect feedback and deliver support on focused issues such as mental health.
Strategies on how to implement salient solutions for them as well as their beneficiaries could be of strong
value (e.g. paint, handprints, soap on a rope, and visible sanitizers could provide reminders on sanitation).
Additionally, early warning systems in place for other disasters could be leveraged by service providers,
and automated targeting mechanisms could be developed, with increased transparency of targeting
efforts that reduce burden for service providers while increasing community compliance and take-up.4
To help encourage service providers, policymakers need to design recognition systems, such as social
recognition programs that can increase motivation and job satisfaction as well as to encourage service
providers to exercise agency, whether in finding ways to keep and organize different modalities of
community engagement, or to propose their own innovative solutions to respond to the needs in the
context of the communities they serve, can act as motivators. Incentives towards innovations that
combine recognition of adherence to required behaviors are key to keep engagement and motivation for
service delivery, as long as there is a clear focus on the desired objectives set for their work, and there
should be acknowledgment of their situational challenges (e.g. establishing specific ‘goals’ such as
ensuring that children that have been under monitoring for poor growth do not experience setbacks,
promoting distance learning targets for at-risk students, and others).
Communities
In order to maintain health outcomes in the face of COVID-19, communities can support their members’
compliance with health protocols and utilize healthcare services as directed. This may require
maintaining and ensuring community awareness of COVID-19 impacts and mitigation strategies, and
reinforcing linkages between the community and the health system. Community leaders and groups
should be leveraged by local and central governments, as well as take independent action to align
messages and communications around COVID-19, identify and highlight trusted sources, and reduce
4
Halter, M. V., De Arruda, M. C. C., & Halter, R. B. (2009). Transparency to reduce corruption? Journal of Business
Ethics, 84(3), 373. Yoeli, E., & Rand, D. G. (2020, April 17). A checklist for prosocial messaging campaigns such as
COVID-19 prevention appeals. https://doi.org/10.31234/osf.io/rg2x9
spread of conflicting information. In addition, communities may need to coordinate on equitable, conflict-
reducing actions related to shared resources (e.g. water), as well as in the distribution of supplies, food,
time for community-related tasks, and other support. Engaging communities in positive efforts for
community wellbeing can serve as a tool for maintaining community cohesion, particularly when
highlighting actions that can be taken to protect own members.
Existing community-based efforts, such as community-driven development (CDD) programs, self-help
groups, and other community-level infrastructure can be leveraged to deliver services and information,
as well as collect feedback and data. For example, the Afghan government is utilizing facilitators from its
national CDD project to communicate about the virus, and in India, self-help groups have been mobilized
around COVID-19 response. Leaders such as church and local government authorities and community
volunteers and facilitators could be channels to mobilize communities and share information not only on
the virus, but also on programs and services; they can also channel feedback and information to
authorities. Additionally, crowdsourcing information to solve health problems can help in diagnostics and
surveillance.5
Focusing on social cohesion will help strengthen desirable social norms around new behaviors, and can
also combat fragmentation and support services and benefits distribution. Public campaigns, which are
one of the main information tools around COVID-19, should be designed based on context and content.
Communications may cover social unacceptability of undesirable behaviors, encouragement to develop
action plans, showcasing of positive behaviors (e.g. positive ways in which communities or societies are
acting), or messaging on altruistic behaviors (e.g. volunteering or donating in the public interest) to be
followed. These campaigns will gain effectiveness when they clearly identify community and group
membership with positive aspects of the desired action change, utilize strong visual cues when feasible,
and provide up-to-date information.6 They could also be combined with formally developed policies to
enforce new norms and improve coordination.7 Using communities to support targeting of benefits and
services, by mobilizing community cohesion, can aid with allocations of the government support to those
more in needs or add vulnerability variables and insights from the communities.
Households (parents, caregivers, and children)
Households’ main efforts of complying with recommended behaviors should be aided by clear and
directed communications and tools. Recommendations for new behaviors for all household members are
comprehensive (e.g. increased and adequate hand washing, social distancing, home-schooling, nutrition,
early childhood development-focused activities, and access and use of education and health services in a
new format or under new requirements). With regards to preventative behaviors, intervention
5
For example, a mobile surveillance app was utilized in Sri Lanka (with usage increasing slowly but with positive
feedback) to help track potential dengue outbreaks and provide targeted alerts and information. (Source: Wazny,
K. (2018). Applications of crowdsourcing in health: an overview. Journal of global health, 8(1).)
6
For example, an effective intervention on increasing vaccination adherence used social signaling (colored
bracelets) to indicate full vaccination. (Kremer, M., Rao, G., & Schilbach, F. (2019). Behavioral development
economics. In Handbook of Behavioral Economics: Applications and Foundations 1 (Vol. 2, pp. 345-458). North-
Holland.)
7
Rustagi, D., Engel, S., & Kosfeld, M. (2010). Conditional cooperation and costly monitoring explain success in
forest commons management. Science, 330(6006), 961-965.
effectiveness will be aided by adequate communications (clear, directed, simple and purposive). It is
critical to communicate the gains from regular engagement in preventative behaviors such as
handwashing and maintain nutrition standards and practices. Aside from communication efforts directed
to households, the creation of spaces for individuals to act with agency in areas under their control can
generate ownership. For example, they could interact with feedback systems, or engage in social
recognition tools such as video or photo competitions in multimedia platforms, where the emphasis on
pro-sociality and sustained action by individuals is highlighted and potentially incentivized.8 Social and
behavior change and public awareness communications campaigns on COVID-19 and its implications need
also to ensure that all household members, including children, are targeted so that intra-household
accountability increases.
Similar principles apply for supporting parents, caregivers, and children in adopting new roles and re-
formulation of programs. User interface of learning platforms, application processes and forms to receive
social assistance, food support or others, should be designed with intuition and simplicity in mind. If
feasible, there should be hands-on support for some groups of the population that might not be able to
rely on internet or other tools (via text or voice messaging, assisted voice systems, or other personal
communication tools). All household members must be provided with information that is clear, directed,
and actionable. In addition, for difficult tasks or adoption of programs or policies, small financial or in-kind
incentives or vouchers could be awarded to close the intention to action gap.
Children should also be included as actors and encouraged and supported to maintain connections with
education systems to help protect their human capital. Relevant activities include maintaining
engagement in the face of non-traditional learning and interruptions to attention. Setting up regular
routines can aid to reduce mental health impacts (anxiety, learned helplessness, hassle, apathy). In order
to increase engagement with education at home, lessons on self-regulation strategies such as goal setting
and planning, and psychosocial support can help to keep engagement and motivation. In addition, timely
reminders can help students keep in mind important deadlines and milestones.9
In sum, one of the tools to support human capital development in the face of the COVID-19 pandemic
is the use of behavioral sciences in the development of programs, policies, communications. By
understanding the contextual needs and behavioral impacts of the crisis, and utilizing behavioral
approaches, policymakers and teams can support the health and educational needs of individuals.
For more information on this topic, please see the World Bank Group Policy Response to COVID-19, and
the Human Development-led presentation on Protecting Human Capital During Pandemics.
8
For example, a contest for sharing isolation activities was conducted on social media in Italy. On communication
principles, see Yoeli, E., & Rand, D. G. (2020, April 17). A checklist for prosocial messaging campaigns such as
COVID-19 prevention appeals. https://doi.org/10.31234/osf.io/rg2x9
9
Ross, R., White, S., Wright, J., & Knapp, L. (2013, May). Using behavioral economics for postsecondary success.
In Ideas (Vol. 42).
Annex 1: Theory of change
IMPACT
Prevent setbacks and continue strengthening human capital (survival; expected years of
learning-adjusted school; health and nutrition) in the context of local and national systems for
public health and social protection preparedness, response, and adaptation
MEDIUM-TERM
IMPACTS
Reduced risk of COVID-19 Reduced setbacks of COVID-
pandemic on human capital 19 on human capital and
investments programs
• Coordination of prevention of COVID-19 response and spread: Emphasis on communications,
mental health and remedial actions
SHORT-TERM
• Prevent / limit COVID-19 transmission through containment strategies: Emphasis on
RESULTS
communications and reduction of unintended impacts on human capital investments
• Community engagement: Emphasis on maintaining connections and processes, ensuring safety
and continuity, and risk communication
• Household awareness and actions on human capital investments
Supply and quality of services: Increasing utilization and Enabling environment:
INPUTS AND OUTPUTS
Focus on households and demand creation: Framing, information
service providers’ mental Focus on households and service access and quality of
models, social norms, and providers’ ability to process information to households
frameworks to reduce information, norms related to (caregivers), service
negative effects on human human capital, health, social providers, policymakers.
capital. protection and jobs, and more.
Behavioral considerations (see Annex 2 for more information).
A public health crisis is expected to impact human capital, particularly in countries with low
resilience and development; this shock lead to economic burden for those without access to
childcare, food, and consistent educational/health systems, and who face rising prices, loss of
income, school closures, and unexpected medical costs.
Annex 2: Behavioral biases and key takeaways for interventions during COVID-19
How biases impact decision- Examples of relevant biases Potential high-level behavioral
making approaches
Interpretation of information: Availability bias: Continued Use rapid assessments to
Cognitive processes that impact the exposure to negative news could determine key behaviors that are
ability to acquire and interpret new lead people to give more weight to impacted by cognitive biases.
information can be of heightened this negative information. Modify interventions in order to
importance due to the need to Over/underestimation of small account for these and ensure
quickly change knowledge and probabilities: People may continuous monitoring and
behavior in response to the misunderstand the magnitudes of evaluation on the behavioral
pandemic. small probabilities, leading to poor responses throughout the short-
decision-making. and medium-term.
Cognition and decision-making: In Limited attention: People may Determine key preliminary
a fast-changing and complex suffer from information overload if behaviors and impacts from the
decision environment, cognitive the messages or instructions they pandemic that are impacted by
biases can impact decisions directly receive are vague or differing and cognitive biases and leverage
related to the pandemic and also may not have sufficient attention behavioral insights to modify
unrelated decisions that may be to devote to optimal decision- interventions in order to maximize
impaired. making so may rely on heuristics usage and impact.
for important decisions.
Develop communications
Mental health: An important
strategies with attention to
health outcome in its own right,
framing, reducing cognitive load,
worsened mental health (including
and considering behavioral
stress, depression, anxiety, or
responses when choosing to
other disorders) can further impact
whom, when, and how to
individuals by impairing their focus
communicate information.
and decision-making.
Social norms and social networks: Social norms: Norms determine Use rapid assessments to
Behaviors are likely to be socially acceptable/desirable determine key actors and norms
influenced by perceived (pre- behavior and are of heightened that may interact with human
existing or new) moral, social, and importance during a crisis where capital development in the face of
gender norms. The management of compliance with health the pandemic. Develop
the pandemic and associated recommendations is critical. communications strategies that
distress can heighten the role of In-group/out-group bias: Threats leverage social norms and use
social networks in polarizing heighten identification with one’s social networks to increase social
responses. “in-group.” Distress, political cohesion.
polarization, and misinformation
may lead to lower social trust and
further exclude those perceived to
be the out-group.