Ethnic Minorities and CDD

1
Ethnic Minorities and CDD

• Designing CDD programs so that they benefit
  ethnic minority populations

2
Objective of Study

• Gain a better understanding of what design
  features World Bank projects have used in order
  to ensure that ethnic minority populations are
  empowered and able to benefit from programs using
  a demand-driven approach.
• Provide practical advice to TTLs interested in
  designing their projects so that they serve
  ethnic minorities.
  

3
Link to Other Research

• A similar analysis is underway of demand-driven
  programs that serve Disabled People and
  War-affected Populations (Ex-combatants and
  internally displaced people and refugees
  returning to their place of origin)
• 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.

4
Dates of 2 Other BBLs

• CDD and Disabled People May 18
• CDD and War-affected Populations June 1

5
Methodology Used

• Search of World Bank Project Database for
  projects that target ethnic minorities and
  include one or more CDD components.
  
• Desk review of PADs of 10 relelvant project and
  ICRs and Evaluations, when available.
  
• Write-up on key findings on cross-cutting themes

6
Cross-cutting Themes

• Vulnerabilities of Targeted Group
• Types of Interventions
• Targeting Strategies Used
• Division of Labor (Central Government, Local
  Government, NGOs, Associations, and CBOs)
  
• Empowerment

7
Projects Serving Indigenous Groups

• The World Bank database captures projects that
  serve beneficiaries that fit the Banks
  definition of indigenous as outlined below.
  
• The World Bank defined the term Indigenous
  Peoples in 1982 as tribal groups who lived in
  isolation and were at risk of acculturation.
  
• In 1987 the definition of was revised to groups
  with socio-cultural systems, modes of production,
  and forms of ecological adaptation, different
  from those of the dominant group.

8
Overview of Projects Serving Indigenous since
1984

• Total of 116 projects
• Geographic Breakdown
• Latin America 70
• Asia 24
• Africa 4
• Europe 1
• Middle East 1

9
Overview of Projects Serving Indigenous
(contd)

• Sector Breakdown
• Natural Resource Management 28
• Education 14
• Rural Development 11
• Social Funds 7
• Other Social Protection 4

10
Growth in Projects Serving Indigenous
Populations
11
Projects serving Other Ethnic Groups

• The Banks Database is less successful in
  capturing ethnic groups that do not fit into the
  indigenous definition.
  
• For this reason, only one project serving
  non-indigenous ethnic groups was included in the
  sample the Bulgarian Social Fund, which serves
  the ethnic Turk and Roma peoples was included.

12
Project Sample Analyzed
13
Characteristics of Ethnic Minorities Served

• Geographically concentrated
• Remote rural communities far from municipal
  capitals
  
• Poverty Rates well above average, for example
• Ecuador 86 indigenous overall populations
  
• Bulgaria Roma ten times more likely to be poor
  than the ethnic Bulgarians.
  

14
Characteristics of Ethnic Minorities Served

• Higher rates of illiteracy, particularly among
  women
  
• Lower school enrollment
• High percent of low birth-weight children
• Lack of secure access to arable land and water
  resources

15
Types of Interventions Community Level

• Socio-economic infrastructure
• Social assistance projects
• Productive activities (agriculture,
  micro-enterprise, etc.)
  
• Capacity-building for community-level
  associations (needs assessment, project
  identification, planning, implementation and
  management.)

16
Types of Interventions Regional and Municipal
Levels

• Rural road and water projects serving multiple
  municipalities or districts (e.g. Vietnam)
  
• Strategic planning for ethnic group spread
  geographically across several municipalities and
  departments (Honduras and Ecuador)
  
• Capacity building for local government to be more
  responsive to demand from minority communities
  (Chattisgarh, India)
  

17
Types of Interventions National Level

• Changing the constitution and making laws
  protecting indigenous rights to ancestral
  resources such as land, water, and cultural
  heritage sites (Ecuador, Philippines, Peru).
• Legal assistance to indigenous to establish title
  to land.
  
• Empowerment of ethnic group through capacity
  building of ethnic association (Ecuador, Peru,
  and early Honduras).

18
Targeting Strategies Used

• 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.

19
Targeting Strategies Used 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.

20
Targeting Strategies Used

• Working through indigenous associations to
  identify beneficiary communities (Honduras)
  
• Using tailored local language promotional
  campaign targeting minority communities
  (Chhattisgarh, India, the Philippines, Vietnam)

21
Targeting Strategies Used

• 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)

22
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.

23
Links with Local Government

• By-pass local government (Ecuador and Peru and
  Honduras Early phase)
  
• Prepare ethnic communities to compete for local
  government funds (Honduras New Phase
  Nicaragua)
  
• Special rules for ethnic communities in competing
  for local government funding (e.g. India
  clusters of 30 50 tribal households may compete
  for funds separate from village they belong to.)
• Minimal changes to local planning process to
  accommodate ethnic minority communities (Vietnam)

24
Role of Central Government

• Minimal for cases where project targets a
  specific state or region (India and Philippines)
  
• Oversight role to ensure that funds are
  distributed to ethnic minority communities with
  rewards for compliance (Mexico)
  
• Establish constitutional protection for ethnic
  minorities (Ecuador, Philippines, Peru)
  
• Create national level government institution to
  orient, coordinate, and articulate policies and
  multi-sector actions for the development of
  indigenous minorities (CODENPE and CODAE in
  Ecuador SETAI in Peru).

25
Role of Central Government

• Create a national-level Consultative or Advisory
  Committee for project, which often includes
  representatives of the main ethnic associations
  (e.g. Multi-sectoral Commission for Indigenous
  Affairs (CAI) in Peru Committee of Ethnic
  Minorities and Mountainous Areas in Vietnam).

26
Role of NGOs

• Most common role supplier of training and
  technical assistance to ethnic communities and,
  in some cases, to ethnic associations and
  municipalities.
• NGOs as intermediaries between government and
  community organizations (Nicaragua)
  
• NGOs as facilitators or stewards of the rules of
  the game they disseminate the rules of the game
  (India)
  
• NGOs assist with monitoring and evaluation
  (Vietnam)

27
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)

28
Role of Minority Associations (continued)

• Monitor project implementation at the community
  level (Peru and Honduras)
  
• Develop strategic plans for ethnic group
  (Honduras)
  

29
How do these projects Empower Ethnic Minority
Communities?

• Secures their access to key resources land and
  water.
  
• Gives them access to community assets schools,
  health posts, water points that will improve
  their future prospects.
  
• Gives them access to income generating
  opportunities.
  
• Builds their capacity to compete for municipal
  level funding.
  
• In a minority of cases, builds the capacity of an
  ethnic association (politically sensitive issue)
  
  

30
Recommendations

• Bank database should capture all projects that
  attempt to address special needs of ethnic
  minorities, not just those that fit the
  definition of indigenous.
• Targeting strategies should ideally be simple,
  passive, and low-cost.
  
• If geographic and poverty data are available and
  broken down by ethnic group, use it for targeting
  purposes. If not, add a few more features, such
  as tailored promotional strategy use poverty
  proxies.

31
Recommendations (continued)

• 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.