reaching vulnerable groups through demand driven programs catherine gibbons may 26, 2004
TRANSCRIPT
Reaching Vulnerable Groups through Demand Driven Programs
Catherine Gibbons
May 26, 2004
Objective of Study
Gain a better understanding of what design features World Bank projects have used in order to ensure that vulnerable groups are able to benefit from programs using a demand-driven approach. Excluded ethnic groups, Disabled people, and War-affected populations
Provide practical advice to TTLs and partners interested in designing their projects so that they serve vulnerable groups.
Rationale for Study
Each of these three groups have special needs and are at risk of being marginalized in a demand-driven environment unless special features are incorporated into the CDD design that ensures their inclusion.
Methodology Used
Search of World Bank Project Database for projects that target one of the three vulnerable groups and that use a demand driven approach.
Desk review of PADs of relevant projects and ICRs and Evaluations, when available.
Write-up on key findings on cross-cutting themes
Projects Serving 3 Targeted Vulnerable Groups
Vulnerable Group
WB External Database
# Projects Analyzed
“Indigenous” 116 10
“Disability” 26 10
“Conflict” 174 10
Total 316 30
Geographic Breakdown
Number of World Bank Projects Serving Specific Vulnerable Groups
-
50
100
150
200
250
300
350
Africa ECA SAR LAC MENA EAP
Conflict
Disabled
Indigenous
Growth in # Projects Serving these Vulnerable Groups
Number of World Bank Projects Serving Vulnerable Groups over Time
-
50
100
150
200
1990 - 1994 1994 - 2000 2000 - 2004
Conflict
Disabled
Indigenous
Project Sample Analyzed Ethnic
GroupDisabled People
War-affected
Total
Africa 0 1 4 5
ECA 1 2 2 5
LAC 5 2 1 8
SAR 2 1 2 5
MENA 0 3 0 3
EAP 2 1 1 4
Total 10 10 10 30
Characteristics of Excluded Ethnic Groups
Likely to be geographically concentratedRemote rural communities far from municipal capitalsPoverty Rates well above averageHigher rates of illiteracy, particularly among womenLower school enrollmentHigh percent of low birth-weight childrenLack of secure access to arable land and water resources
Characteristics of War Affected Populations
Likely to be geographically concentratedLikely to include entire communitiesDestroyed or debilitated social infrastructure (Schools, Health Posts, Roads)Agriculture stalled, due to abandonment, mines, lack of access to inputs or markets; industry High unemployment, due to destruction or abandonment of industry and lack of skillsLoss of basic households assets (land, house, cooking utensils, clothes, tools, etc.
Characteristics of War Affected Populations (…cont’d)
Psychologically and physically traumatized populationDestroyed social fabric – lack of trust and cohesionHigh levels of poverty and extreme povertyChildren and youth who have lost several years of schoolingMalnourished and in poor health
Characteristics of Disabled People
Geographically dispersed
Only 7 – 10% of population
Limited access to education and health services
Limited income earning opportunities
Disability and poverty are linked
Social isolation due to stigma
Types of Interventions – Community Level
Socio-economic infrastructureSocial assistance projects (particularly for disabled)Productive activities (agriculture, micro-enterprise, etc.)Capacity-building for community-level associations (needs assessment, project identification, planning, implementation and management.)
Types of Interventions – Regional and Municipal
LevelsCapacity building for local government - Most important in Post-conflict context; least important for projects serving Excluded Ethnic GroupProjects serving multiple municipalities or districts Networks of disabled peer groups – to amplify voice (India)Strategic planning for ethnic group spread geographically across several municipalities and departments (Honduras and Ecuador)
Types of Interventions – National Level
Changing the constitution and making laws protecting the rights of indigenous groups to ancestral resources such as land, water, and cultural heritage sites (Ecuador, Philippines, Peru).Laws protecting the rights of the disabled.Legal assistance to indigenous to establish title to land.Empowerment of ethnic group through capacity building of ethnic association (Ecuador, Peru, and early Honduras).
Targeting Strategy for Disabled People
Communities with higher number of disabled targeted (Ukraine)Ensure needs assessment methodology includes mechanism to consult with disabled and other vulnerable groups in community.Bonus points for project serving disabled (Cambodia)Work through specialized NGOs who have established links with disabled populations (Honduras)Ear-mark funds at the municipal level for projects serving disabled and other vulnerable groups
Targeting Strategies Used for Ethnic Groups
Geographic targeting when ethnic group is geographically concentrated. (Mexico) Best when census data is broken down by ethnic group. Allocate funds accordingly.Poverty targeting is effective in serving ethnic groups since they tend to experience high levels of poverty and extreme poverty. Ideal if poverty data is broken down by ethnic group. (Bulgaria) If no data will need to use proxies for poverty.
Targeting Strategies Used – Ethnic Groups Proxy Indicators
Prioritize small communities (Mexico – communities with less than 5,000)Prioritize remote communities (Vietnam and Maharasthtra – India)Prioritize communities lacking basic socio-economic infrastructure by limiting sub-project menu.Prioritize communities using indicators such as literacy rates, school enrollment rates, and average distance to potable water supply.
Targeting Strategies Used – Ethnic Groups
Working through indigenous associations to identify beneficiary communities (Honduras)
Using tailored local language promotional campaign targeting minority communities (Chhattisgarh, India, the Philippines, Vietnam)
Earmarking funds for minority or mixed communities (Kosovo)
Targeting Strategies Used – Ethnic Groups
Capacity-building for minority communities to enhance their competitiveness in accessing municipal funding. (Honduras, Philippines)
Independent Verification and Grievance Mechanisms (Mexico – Federal verification; Vietnam – Special panel reviews commune plans; Philippines – grievance mechanism)
Targeting Strategies Used – War Affected
Geographic targeting of most affected areas. Selection criteria included: Security and accessibility Presence of local government authority and
willingness to participate Extent of war damage to community infrastructure Number of returning ex-combatants, IDPs, and
refugees Presence of lack of alternative sources of
financing
Targeting Strategies Used – War Affected
Poverty and Conflict Affected (Kosovo and Macedonia) - to ensure equity across regions
Allocations made to regions based upon following criteria:
Population size Level and intensity of poverty Unemployment rate Number of persons displaced from each region Number of damaged houses
Targeting Strategies Used – War Affected
Allocations within regions based upon following criteria:
State of physical and social infrastructure Presence of vulnerable or marginalized groups Presence of ethnically mixed communities Under-funded communities Community capacity to plan Community commitment level Level of interest of municipal government in
supporting recurrent costs
Targeting Strategies to Ensure Inclusion of Vulnerable Groups in
War Affected CommunitiesCommunity Clusters of 20 families to elect representative to Community Development Council and as framework for community-wide consultations (Afghanistan)Separate forum for women to express priorities (Afghanistan)At least half of the project applications must come from women’s groups (East Timor)Targeted social mobilization and communication campaigns to vulnerable groups (Rwanda)Increased block grant to communities that involved IDPs and returning refugees in project planning (Afghanistan)
Division of Labor – Community-based
Organizations (CBOs)Needs assessment, project identification and prioritization.Sub-project planning.Sub-project implementation (procurement, financial management, supervision)In-kind and cash contributions.Operation and maintenance of sub-project.In war-affected communities, role of CBO as mechanism for rebuilding social cohesion – old enemies plan a mutually beneficial activity
Role of Local Government – War Affected
Heavy emphasis on building a democratic, responsive and transparent local government through capacity-building in social mobilization, participatory needs assessment, local planning, budgeting, financial management, procurement, maintenance, etc. (Afghanistan, Rwanda, East Timor, Sierra Leone)Projects used as a vehicle to promote decentralization.
Role of Local Government – Ethnic Groups
In some cases totally by-passed given high degree of distrust between ethnic group and local government.
In a number of cases, ethnic group’s capacity is enhanced so it can later compete more effectively for funds available through local government.
Role of NGOs
NGOs as implementing agencies – Common for projects serving disabled people.NGOs as intermediaries between government and community organizations (Nicaragua – Ethnic Group; Angola – War Affected)NGOs as facilitators or stewards of the rules of the game – they disseminate the rules of the game (India – Tribal Groups)Most common role for all groups supplier of training and technical assistance.
Role of Minority Associations
Participate in project Advisory Committee (Majority of Projects)Assist with targeting and project promotion (Honduras)Contracted to assist communities to conduct participatory needs assessment and planning process.Serve as intermediaries between the program and the communities.Project builds capacity of ethnic association (Ecuador, Peru, and early phase Honduras)
Role of Minority Associations – (…
continued)Monitor project implementation at the community level (Peru and Honduras)
Develop strategic plans for ethnic group (Honduras)
Recommendations – For Projects Serving Disabled
Promote the formation of community-level peer networks to amplify voice through specialized NGOsDevelop community needs assessment module to hear needs of disabled and other vulnerable groups (elderly, orphans, women-headed households, HIV/AIDS affected households) at the community level Integrate the priority needs identified by vulnerable groups at the municipal levelSet aside funds at the municipal level for disabled and other vulnerable groups
Recommendations – For Projects Serving Excluded Ethnic Groups
Avoid targeting long-term – ultimate goal should to be assist ethnic minority communities to compete on a level playing field for available resources. Long-term targeting may result in marginalization.Build bridges to local government, ultimately, they will control the funds as decentralization trend proceeds.Involve ethnic associations in project design and oversight.Recognize that building the capacity of ethnic associations could have political overtones.
Recommendations – For Projects Serving War AffectedTarget the whole community all have been affected in one way or anotherUse the block grant approach and finance community plans, not just projectsPay extra attention to building representative community committees that involve all segments of the population – these are mechanisms for rebuilding social cohesion and preventing future conflictUse this program to promote decentralization and build a democratic form of local government from the bottom up
Recommendations – For Projects Serving War Affected
Give bonus points or extra money for projects that target particularly vulnerable members of the community (Afghanistan – higher per capita for communities concerned with vulnerable groups, IDPs, and returning refugees)Be patient – destroyed communities are not healed overnight.