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.