shg report central asia 2007

7/30/2019 SHG Report Central Asia 2007

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From Self Helpto a Wider Role in Society

A Review of Self Help Group Methodology in

Kazakhstan, Kyrgyzstan and Tajikistan

Research study carried out with ECCA agencies and

NGO partners by INTRACs Central Asia Programme

November 2007


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From Self Help to Wider Role in Society

CONTENTS

EXECUTIVE SUMMARY: CONCLUSIONS AND RECOMMENDATIONS................................................... 7

MAIN CONCLUSIONS..................................................... ........................................................... ................................. 7RECOMMENDATIONS .................................................... ........................................................... ................................. 9

CHAPTER 1. INTRODUCTION..................................................... ........................................................... ........... 10

1.1BACKGROUND /CONTEXT........................................................... ........................................................... ........... 101.2ECCA AND INTRAC................ ............................................................ .......................................................... .. 111.3THE FIRST SHGSTUDY:GIVE FISH OR A FISHING ROD? ................................................... ............................... 12

1.4OBJECTIVES OF THE SECOND STUDY..................................................... ........................................................... . 12CHAPTER 2. METHODOLOGY................................................... ........................................................... ........... 14

2.1FRAMEWORK FORANALYSIS ...................................................... ........................................................... ........... 142.2KEY TERMS FOR THE 2NDSTUDY ........................................................... ........................................................... . 152.3CROSS-CUTTING THEMES ........................................................... ........................................................... ........... 172.4HOW THE STUDY WAS CARRIED OUT.................................................... ........................................................... . 172.5STRUCTURE OF THE REPORT ....................................................... ........................................................... ........... 18

CHAPTER 3. SELF-HELP ACTIVITIES FOR COMMUNITY EMPOWERMENT...................................... 20

3.1MAIN AREAS OF SHGACTIVITY IN KAZAKHSTAN AND KYRGYZSTAN.................................................. ........... 203.2SHGS IN TAJIKISTAN ........................................................ ........................................................... ..................... 213.3SHGLEADERS ........................................................ ........................................................... ............................... 233.4GENDER ROLES AND DIFFERENT TYPES OF SHGS..................................................... ......................................... 253.5SELF HELP GROUPS AND LOCAL GOVERNMENT ....................................................... ......................................... 273.6SUMMING UP:SHGSUCCESSES IN COMMUNITY MOBILISATION.................................................. ..................... 32

CHAPTER 4. SHG ASSOCIATIONS CLUSTERS, FEDERATIONS AND OTHER NETWORKS.......... 34

4.1CLUSTERS /FEDERATIONS IN KAZAKHSTAN AND KYRGYZSTAN.................................................. ..................... 344.2CLUSTERS AND FEDERATIONS IN TAJIKISTAN .......................................................... ......................................... 354.3DEFINING THE TERMS:CLUSTER AND FEDERATION ........................................................... ............................... 364.4OTHERGROUPS ANDNETWORKS WHERE SHGS ARE ACTIVE ..................................................... ..................... 38

4.4.1 Intermediate bodies..................... ........................................................... ................................................... 384.4.2 Existing institutions..................... ........................................................... ................................................... 394.4.3 Newly created bodies .......................................................... ........................................................... ........... 40

4.5MEMBERS AND LEADERS OF SHGS WHO BECOME LEADERS IN OTHER ORGANIZATIONS.................................... 414.6SUMMING UP:SHGS IN LOCAL CIVIL SOCIETY ........................................................ ......................................... 41

CHAPTER 5. LOOKING TO THE FUTURE THE AIMS, INDEPENDENCE AND SUSTAINABILITY

OF SHGS, CLUSTERS AND FEDERATIONS........................................................... ......................................... 47

5.1ECONOMICS ORPOLITICSWHICH COMES FIRST? .................................................. ......................................... 475.2GENDERASPECTS OF SHGDEVELOPMENT..................................................... .................................................. 515.3NGOLOBBYING ACTIVITIES ATNATIONAL LEVEL ........................................................... ............................... 53

5.3.1 National level lobbying ....................................................... ........................................................... ........... 54


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LIST OF ATTACHMENTS

Attachment 1: Terms of Reference (excerpt) .................................................... ........................................... 72Attachment 2: List of interviewees (Field Visits)................................................................. ........................ 73Attachment 3: Example of Field Visits Questionnaire................................................................................. 76Attachment 4: Opinion Survey Questionnaire........................................ ..................................................... 77Attachment 5: Country Fact files......................................................................................... ........................ 78Attachment 6: Political events 2002 2007.............................................................. .................................. 79

Attachment 7: Diagram Showing Linkages Between Different Levels of Lobbying.................................... 80

LIST OF FIGURES AND TABLES

Figure 1: Diamond figure showing interlinked elements .................................................... ........................ 14Table 1: Total SHGs in Kazakhstan, Kyrgyzstan and Tajikistan in 2004 / 2007 and Current Urban-Rural

Breakdown ........................................................... ........................................................... .............. 23Table 2: SHGs Gender and Age Breakdown .......................................................... .................................. 26Figure 2: Which is the most likely way you would approach the local administration? Comparative

analysis (2004 and 2007) ......................................................... ..................................................... 27Figure 3: Did you participate in elections? Comparative analysis (2004 and 2007) ................................ 31Table 3: Clusters and Federations ......................................................... ..................................................... 36Table 4: Characteristics and functions of SHGs, clusters and federations..... ............................................ 37Figure 4: 3-sector and arena models of civil society .......................................................... ........................ 42

Table 5: What is the Difference between an NGO and a CBO?................................ .................................. 45Figure 5: Which element of the work of Self-Help Groups is the most important for the empowerment of

their members?............................................................... ........................................................... .... 47Figure 6: How do you assess the sustainability of SHG, Clusters and Federations? ................................ 59Table 6: Future development of SHG Movement ...................................................... .................................. 60


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Acknowledgements

Many thanks to the ECCA agencies whose funding and practical support made this study

possible, also to the NGO partners and the member of self help groups, clusters and federations

who generously gave information and time to the researchers.

INTRAC would particularly like to thank the members of the writing team and local experts for

this project: Maamatkul Aidarliev, Shoira Yusupova, Matthew Naumann, Anara Moldosheva,who completed their tasks efficiently and in a very helpful way.

We must thank in a similar way the other staff from ECCA agencies and NGO partners who took

part in the field visits: Pia Dyrhagen (DCA), Shashwat Saraf (CA), Bertien Bos (ICCO),

Taalaibek Jakypov and Nurgul Alybaeva (Child Protection Centre), Margarita Zobnina (Moldir),

Malika Sobirjonova (Mehrangez). Also Janice Giffen from INTRAC UK who led the

preparation workshop. This was a large, mixed team but everyone worked well together (andwithout any complaint about the tough schedule of travel and meetings!).

Finally, we thank Peter Kenny from Ecumenical News International who accompanied the

researchers on their travels in Kazakhstan, Kyrgyzstan and Tajikistan. Peter wrote a series of

nine articles for ENI and excerpts from six of them are included in this report, also a selection of

his photographs. We are sure that they will give extra interest and colour to our text.


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List of Abbreviations

ABS Access to Basic ServicesACT CA Action of Churches Together Central AsiaASTI Association of Scientific and Technical IntelligentsiaCA Christian AidCAP Central Asia PlatformCBO Community-Based Organisation

CS Civil SocietyCSO Civil Society OrganizationsDCA DanChurch AidDCCA Development and Cooperation in Central Asia (Kyrgyz NGO)DWPS Democracy and Widening of Political SpaceECCA Ecumenical Consortium Central AsiaFED Fair Economic DevelopmentFSU Former Soviet Union

ICCO Interchurch Organization for Development Co-operationINTRAC The International NGO Training and Research CentreJR Japanese Railroad (Kyrgyz NGO)RCE Resource Centre for Elderly (Kyrgyz NGO)MC Mahalla CommitteesMCA Micro-Credit AgencyMDG Millennium Development Goals

NGO Non-Governmental Organisation

NVC National Volunteer Centre (Tajik NGO)PRA Participatory Rural AppraisalSHG Self-Help GroupUNDP United Nations Development Program


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EXECUTIVE SUMMARY:CONCLUSIONS AND RECOMMENDATIONS

This study is written for ECCA agencies and partner NGOs, also for the members of SHGs and their

various associations and networks in Kazakhstan, Kyrgyzstan and Tajikistan. Its aim is to assist

discussion of the results of their work and to propose new ways forward to improve the livelihoods and

life opportunities of communities and make a greater impact on society.

Main Conclusions

In all three countries, the research team got an overwhelmingly positive picture of the work of SHGs. In

Tajikistan, groups are moving gradually through the establishment and consolidation stage. In

Kazakhstan and Kyrgyzstan, many SHGs are already mature and self-sufficient.

SHGs have shown that they are a valuable tool for empowerment at both individual and group level.

Group members attitude to life has become more optimistic and positive. Their understanding of local

issues and their involvement in community decision-making has grown. Indeed, they are well-placed to

work with other actors in the community to tackle economic and social problems. However, lobbying bySHGs seems to work best at this local level and there was little evidence that it is being done at higher

levels without significant support from the parent NGO. Another way of putting this is to say that, in

the main, SHGs are working with immediate rather than strategic issues.

The social composition of SHGs varies according to location but is made up mainly of the poorer and

middle layers of the population, with some individuals from the richer and poorest layers. The variety of

SHGs is a definite plus (single and mixed sex, age variations, ethnic pluralism). There is a felt need for

leadership development programs to help local leaders meet their responsibilities and take up emerging

opportunities. The role of leaders at all levels is extremely important.

Clusters have advanced in all locations as informal groupings of SHGs in an urban estate orkvartal, or

in a village. Leaders and other activists meet in the cluster to share experience of managing groups and

to discuss wider problems affecting the community. By contrast, federations (defined as a more formal

body uniting several clusters, with more stable human or financial resources) have only been created in a

few locations where the SHG programme is quite mature. Clusters and federations provide SHGmembers an opportunity to operate within a wider network, exchange information and experience at a

higher level. However, in some cases they appear to have been created top-down by the NGOs with the

eventual aim of transferring management tasks to them.

Women are active and there are many female leaders in SHGs, clusters and federations. This is despite


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work with CS. In Kyrgyzstan the problem was different - political instability and lack of coherence of

government policies and systems.

The economic aspect of SHG activity remains central and is one of the main themes for lobbying. Here

the role of micro-credits and the new micro-credit agencies (MCAs) set up by the NGOs is very

significant. The management of the credit program adds to the responsibilities of not only SHGs but also

clusters and federations, and seems to determine the shape of the organizational structures being

developed. If the NGOs SHGs are strong and numerous, the MCA will become stronger and

accumulate a big credit portfolio. It was difficult to assess whether the MCAs or the different bodies

managing credits could turn into a new local elite. The view of NGO representatives was that with the

current percentages and the limited coverage of MCAs, they are unlikely to get rich.

Self help group near Lenin

village, Khatlon oblast

(Tajikistan) poseafter meeting before

heading for Friday prayers.

Photo: Peter Kenny/ENI

The future sustainability of SHGs, clusters and federations is seen by NGO staff as tied up with to the

development of a self help movement or a common, regional strategy. The experience of the ECCA

consortium, the Ishenim network and other attempts to bring together SHG actors shows the value of

working together to create sustainable forms of liaison and shared management. But there are manyquestions which the movement needs to continue to pay attention to. The research team listed a number

of these open questions of which some key ones are brought together below:

From self to community. This is the theme of this report and it reflects a balance which needs to be

maintained - how to ensure that the groups, while meeting their own needs, are also committed to a wider


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definition and strategy development. The Ishenim network, as a self-managed discussion forum for the

NGO partners, is well-placed to look at these issues and hence the study includes recommendations for

Ishenim in the next section.

Recommendations

From the list of recommendation made in Chapter 6, some of the most important are:

For SHGs, clusters and federations

1. Continue independent thinking around the self-help concept in Central Asia (linking to national

and other traditions). Use own links and resources to extend the SHG movement in the regionand to make links with similar community associations. Use the opportunities provided by

exchange visits between NGOs to develop and implement new ideas, in a planned way

2. Strengthen the lobbying component within the SHG programme at local and district level.

3. Provide more information to the public on the activity of SHGs. Promote plurality of cultural

and social activities in the community

4. Find ways for SHG members, especially women, to attend training for SHG leaders at a broader

level. Create forums for more discussion and analysis by SHG members and leaders around

issues relating to local governance, local economic policy, poverty reduction, gender equality.

For partner NGOs

1. In questions of organisation and programme development, try to move to more open systems, for

example: 1) Work more closely with other local NGOs; 2) Delegate SHG advice, training and

monitoring responsibilities to clusters and federations; 3) Continue process of building MCAs

2. Provide training to SHGs on how to select themes, plan and conduct campaigns.

3. Avoid the danger of endless accumulation of SHGs and responsibilities to individual clients and

supporters, or the temptation to appoint leaders for the clusters and federations4. Continue work with intermediary groups (see Chapter 4) village councils, mahalla committees,

social community councils, womens clubs and resource centres, jamoat and ayil okmotu

committees (youth, health etc). They are a valuable interface with local government and other

CSOs. Include representatives of local government in training and exchange programmes

wherever possible

5. Organise a discussion around the strategy of building a peoples bank since this is very

different from civil society activity.

For ECCA agencies

1. Support NGOs and SHGs in the above mentioned areas. Continue the shared ECCA approach

2. Direct new resources to meet the needs of clusters, federations and networks and actions which

they initiate

3. Support NGOs, SHGs and individuals to create a womens lobby within the ECCA


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CHAPTER 1.INTRODUCTION

1.1 Background / Context

The experience of the Central Asian states since the break-up of the Soviet Union in 1991 is dramatic and

contradictory. On the one hand there have been the excitement and advantages of independence the

regaining of national identity, the promotion of traditional culture and norms, the adoption of elements ofpolitical pluralism and the market economy. On the other hand, there has been civic strife, the erection

of boundaries between states and a collapse of living standards for the majority of the population.

Members of SHGs, in whichever country and whether rural or urban, are part of the general population

which lost their previous employment and suffered a catastrophic decline of education and health

services. The rural population was reduced to subsistence family farming and 15 years later hundreds of

thousands migrate for work to other countries because the conditions to make a proper livelihood in

agriculture still do not exist. Larger towns and cities are flooded by internal migrants competing for land

in which to put up makeshift housing and struggling with bureaucracy so as to place their children in

school or access basic health facilities.

The years since 1991 have seen the institution of presidency establish itself across Central Asia, to

varying degrees softened by parliamentary or wider political activities and structures. The growth of

civil society has been a positive factor and the NGOs described in this report are in the front line of social

sector NGOs. Their role has been both to support vulnerable groups directly during the crisis years, andto press donors and government for more resources and better policies - more attention to the voice of

poorer groups in the community.

In 2005-06 a new political and economic stage seems to have begun in Central Asia. The March 2005

Tulip Revolution in Kyrgyzstan extended to Central Asia the political turbulence which had been seen

in Georgia and Ukraine but showed that the political forces and directions were significantly different

from those ex-communist neighbours. The revolution brought down President Akaev, acclaimed as the

most liberal post-independence leader in the region and ushered in a regime with a populist but more

statist ideology. Countries such as Tajikistan and Kazakhstan saw a consolidation of power in the hands

of Presidents Rahmonov and Nazarbaev. Opportunities for democratic debate or protest remained very

restricted but the economy slightly improved. Indeed, economic growth has attained 8-9% rates across

the region (contested by some commentators). The problem is that there is little evidence that this is

b i di t ib t d th ti f th l ti I ll th t i th i


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1.2 ECCA and INTRAC

The concept of Self Help Groups was introduced into Central Asia in 1998-99 by a number ofinternational agencies, importing it initially from India and gradually adapting it to local conditions and

drawing on similar traditions and approaches in Central Asia. In 2004-05, the same agencies, now united

in the Ecumenical Consortium for Central Asia (ECCA), adopted a new joint strategy for their work in

the region2. Five regional priorities or themes were identified, as well as lead agencies and countries

where the themes would be pursued. Each of these themes or priorities has its own relation to lobbying

and civil society networking. Three of the themes are particularly important to self-help groups and are

being implemented widely across the three countries Democracy and Widening of Political Space(DWPS), Fair Economic Development (FED), and Access to Basic Services using a Rights Based

Approach (ABS). The other two Faith Based Social Action and HIV-AIDS Awareness and Support

also have a relation to this theme but exist more separately from the SHG programmes. Different

agencies take the lead on particular themes and with a different focus in each country according to need

and to resources available.

If we look in more detail at ECCAs rationale and plans for the three programmes DWPS, FED and

ABS, we can see from the table below that they differ quite widely as regards the needs and options forlobbying and CS networking:

Regional priorities Regional focus strategies Civil society players

Democratisation and

widening political space

(DWPS)

Community development activities

which promote a voice from below

Promoting independence and

collaboration with local NGO sector

SHGs, federations, village

organisations

NGOs working with local authorities

Lobbying and human rights NGOs

Fair economic

development (FED)

Agricultural processing and

marketing

Small and medium enterprise

development

Professional micro-finance activities

Rural NGOs involved in product /

value chain development

Urban NGOs working on SME

development

Micro-credit agencies set up by NGOs

Access to basic services

with rights based

approach (ABS)

Basic income generation activities

Securing access to services for

vulnerable groups

Community based hygiene andsanitation

Rural and urban partner NGOs, SHGs

and federations

(Source: ECCA Regional Policy and Strategy Paper 2004-08 p14-23)

INTRAC (International NGO Training & Research Centre) has been working on issues of NGO

development in Central Asia since the mid-1990s and on wider issues of civil society strengthening


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countries which determined priorities and a general framework for the initiative. There were two new

features of the new program: first, capacity building efforts were directed towards development of a self

help movement; and second, the NGOs created a consultative group to guide INTRACs work. All thismeans that there was considerable interest from INTRACs side in the theme of the new SHG study. Its

emphasis on the role of SHGs in community and civil society development was very close to the themes

of the new capacity building program. So when ECCA suggested it, INTRAC was happy to pool

resources and work together on the study.

1.3 The First SHG Study: Give Fish or a Fishing Rod?

The first SHG study, carried out by the Ishenim network in 2004, is a base document for the current

study. It not only explained the core concept and methodology of Self Help Groups, but also collected

valuable data on all the main areas of activity of SHGs, laying out the information for the partner NGOs

in a series of accessible and easy-to-understand paragraphs, tables and case studies. This authors of this

study hope that we can be as clear and logical in our analyses!

The main emphasis ofGive Fish or a Fishing Rod? is on the establishment of SHGs: how people jointhem, the organisation of the groups, and especially the training and economic activities of SHGs

(savings and credits). This was connected to an analysis of poverty in Kazakhstan and Kyrgyzstan (since

the study did not cover Tajikistan).

The new study has several key differences from the first:

It covers Tajikistan where the SHG approach has made major steps forward since 2004;

It focuses on civil society and external relations of SHGs more than on the economic side; It looks specially at clusters and federations (also much advanced since 2004);

And finally, it takes a slightly more selective approach and does not attempt to chart all the activities

or achievements of partner NGOs or the SHGs themselves. The focus is more on which way the

movement is going - if indeed it can be called a SHG movement.

1.4 Objectives of the Second Study

The Terms of Reference created by ECCA in early 2007 defined the Purpose of the review as follows:

1. To inform a discussion based on experience among the ECCA agencies and its NGO partners about

the potential of the SHG approach to socio-political empowerment of civil society in Central Asia in

order to improve the impact of the support.


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Within this set of questions, the review was concerned to look at what has been achieved by SHGs and

their clusters or federations, the internal and external factors affecting performance, and also the role ofthe NGO in supporting the groups. The focus on civil society and government relations meant that the

study should look at other players in the community, and also at wider political issues and networking.

And as in the first review, there should be an attempt to assess the impact of the programme and

opportunities for its wider replication. The question about the way forward is very open it asks what

adjustments are needed in the support from ECCA and the NGOs? What changes are needed in the way

the SHGs, the clusters and the federations work?

Story 1. ECCA agencies support self-help along Asia's Old Silk Road

If the main bridge across the Rhone River in central Geneva collapsed and repairs did not begin immediately, residents of

the Swiss city would be up in arms, lobbying and harassing local, regional or federal authorities to act. Action would likely

soon be taken. What would happen in a small south-western Tajikistan town, 12 kilometres from the biggest centre in the

Khatlon region? In Qahramon, near the country's third largest city of Kurghon-Teppa (formerly Kurgan-Tyube) nothing

happened for weeks when the residents' bridge collapsed during flooding a year ago. People seemed paralysed. They just

did not know what to do.

"People could not move their crops, nor could they access the nearby village where some worked," said school teacher

Ruziev Habibjan, who also does a little farming like many of his neighbours. "When they decided to form a self-help group,

it was then they began to find a solution." The self-help group raised its own funds, and then lobbied government

authorities to repair their vital artery. The combined effort, along with a little international aid, got the bridge up again.

Two farmers wearing Tajik caps

stand proudly with family

members near Kulob

on their land cultivated from a

barren patch with the aid of a

self help group.

An NGO official and an

extension officer are in the

lighter coloured shirts.

Photo: Peter Kenny/ENI


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CHAPTER 2. METHODOLOGY

2.1 Framework for Analysis

As noted in Chapter 1, this report follows on from the 2004 study of self help groups. So it may be

useful to briefly summarize a number of key points from the first study which explain the approach and

mechanisms used by the main players:

First, the Ishenim network brings together NGOs which wish to empower and mobilise socially

disadvantaged people to solve their own problems and improve their quality of life. One of the key

activities for this purpose is creation and development of SHGs. Working with people with similar

problems helps increase the self-confidence of members and hence enables them to start tackling their

own problems and social problems of the community.

Each NGO is developing its own mission and specialised area of work. Thus the NGOs have different

activities and target groups (defined by factors such as place of residence, social group, and problemsfaced). In addition, methods of community mobilisation vary significantly. There are three main levels

of SHG program management: 1) the NGO itself; 2) other facilitators (other NGOs, micro-credit

agencies), and 3) SHGs (and their clusters and federations).

SHGs are usually formed through mobilisation by an external actor (usually an NGO) but some

established SHGs have also assisted in the creation of new SHGs locally. A key factor in implementing

SHG activities is the NGOs own organisational structure and staff capacity. The 2004 study defined

three groups of NGOs young, mid-age and mature organisations. The progress of SHGs from group

formation to consolidation and sustainability is measured by the sponsoring NGOs using a gradation

process.

The interaction of these elements can be seen in the following framework presented in the first study: 1)

SHG members needs; 2) SHG activity areas: 3) Interaction with the environment; 4) Structure of the

groups; 5) Self-management3

Figure 1: Diamond figure showing interlinked elements

NGOs main aim

(mission)


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The activities of SHGs are usually defined as belonging to four areas: economic, social, political, and

cultural / psychological. Groups decide themselves which area or aspect to focus on; usually it is acombination of two or more areas.

Though concentrating on SHG start-up, training of members, and the savings/credit side, the 2004 study

also began to address the social and political side of SHGs. One interesting finding of the survey

undertaken was that twice as many respondents saw the main benefit of group membership as resolving

social problems rather than increasing family income. Most respondents (68%) indicated that the chance

to work together to solve problems was the main reason for joining the group, rather than access to credit

(20%). Some 25% of respondents noted that their SHGs were involved in lobbying on questions such asland, housing, residence permits, and medical and social problems. The authors suggested that the poor

felt that they had more clout together, and that local authorities are often happy to compromise or give in

when faced by constructive determination.4

It was also noted that other SHG members took more committed political positions. At the time of the

first study, a few SHG members, particularly those connected with Mehr-Shavkat and Shoola in rural

Kyrgyzstan, had stood as candidates in village elections, while others, predominantly in urban areas, hadactively supported certain local politicians in elections.5

2.2 Key Terms for the 2nd

Study

The current study From Self Help to a Wider Role in Society focuses on the social and political aspects of

SHG activity. INTRAC drew the research teams attention to several key terms and questions which

seemed to be important for the analysis.

Civil society. INTRACs working definition of civil society organisations (CSOs) is of:

Associations that exist outside of the state or market which maintain a degree of autonomy and

independence, and have the potential to provide alternative views, policies and actions to those promoted

by the state and market

CSOs will have a variety of power relations with the state and market, according to context, the capacityof the associations themselves etc. INTRACs vision of civil society is as an arena where interactions

between different actors exist. This is an inclusive approach that recognises informal associations

alongside registered NGOs and includes traditional groups established long before the post-1991

transition in Former Soviet Union. These groups include professional and workers associations from the

Soviet period and family or clan based associations from the pre Soviet period However this definition


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that, quite often, community development may not lead to civil society development.6. (Indeed, this was

borne out by the first SHG study where only an estimated 25% of SHGs were said to be involved in

lobbying activities.) INTRACs own work on civil society in Central Asia has frequently raised the issueof instrumental as opposed to empowering approaches to community development. 7 By

instrumental we mean that international agencies use community development as a tool for programmes

with other aims, such as poverty alleviation, without giving newly created community based

organisations a chance to become autonomous or sustainable.

Empowerment. Several definitions of this rather complex and broad term are used by INTRAC in

capacity building for community development. One definition, which focuses on the political and

institutional aspects, goes as follows: Empowerment is the expansion of assets and capabilities ofpeople to participate in, negotiate with, influence, control, and hold accountable institutions that affect

their lives. (World Bank)

The first SHG study also looked at empowerment. For example, it defined a number of social-culture

and political impact indicators. These remain very relevant for the current study:

Development of self confidence Solution of social problems

Solution of the problem of loneliness

Creation of the atmosphere of trust in SHGs

Strengthening the commonness of SHG members and the mutual enrichment of cultures

Improvement of the conditions of life of nutrition

Creation of new jobs

Improved access to social infrastructure

Lobbying of interests and participation in community life

Changing personal behaviour and cultural values

It is notable that the list includes both internal and external aspects of empowerment (i.e. inside the

individual and outside). Indeed without these internal strengths it is very hard for anyone to challenge

the external powers and forces that so strongly influence their lives. Indeed, hijacking or co-optation

of CBOs or social movements by local or national elites is a problem in all countries. Another point

shown clearly by the list is how closely the different areas of the SHG diamond (economic - socio-cultural psychological - political) are connected with each other. Ensuing sections of the report will

assess to what extent SHGs are achieving empowerment in these areas.

Capacity building. A third topic central to the study is capacity building. Here the focus has been on

h NGO t th idl i f SHG l t d f d ti hi h th h


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2.3 Cross-Cutting Themes

Two cross cutting themes were identified for the study. One of these has been mentioned already thisis the political aspect. The review team decided to focus on two areas where information might be more

hard to collect and assess; first, areas of conflict that occur in SHG activities; second, the connection

between the local level on which so many activities take place, and the national level of lobbying which

is so important for policy change.

The second cross-cutting theme was added to the ECCA study by INTRAC: gender. This theme was

given some attention in the first study, and it is of course commonplace to note the leading role of

women in the setting up and activities of self help groups. Indeed women have played a key role in

CSOs across the region since 1991. The aim in the second study was defined as to look at gender on

three levels:

At the level of SHGs: how well do the aims and mechanisms of SHGs promote and enable new and

wider opportunities for women and men?

At the level of clusters and federations involved in lobbying: what is the gender regime

(arrangement of work and roles) and the relative power of women and men in this activity? At the level of impact of SHG activities in lobbying: how well are the needs and rights of women

and men represented?

Thus, the study attempts to make a short gender analysis of SHGs from the point of view of the 3 Rs

representation, resources, results.

2.4 How the Study was Carried Out

The TOR for the study defined two main stages: 1) preparation work 2) self assessment by partner

NGOs, 2) field visits to selected NGOs and SHGs, 4) discussion and dissemination of results.

For INTRAC, a key aim was to involve both ECCA agencies and NGO partners as fully as possible.

Meetings were held with both ECCA and Ishenim at the outset. A member of staff was allocated to the

task of coordinating the work, in particular the complex liaison with NGO partners for the self

assessment, secondary materials and field visit stages, plus data analysis and writing. It was decided to

run two events at the beginning and end of the field visit stage: 1) a 2-day research methods workshop /

planning session (to be led by a visiting INTRAC consultant); 2) a one-day debriefing workshop.


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and was followed immediately by the debriefing workshop. The aim here was to take the chance to build

NGO capacity in research and analysis, as well as to get comment from the local CS point of view.

The review team defined key players to be interviewed in each organisation: NGO director, senior staff,

social workers (focus group), SHG leader, SHGs members (focus group), Cluster / Federation leader or

members (focus group), SHG activists who have become leaders in other spheres (eg elected deputy,

womens council chair), representatives of local and national government, representatives of other local

NGOs and community groups, representatives of NGO micro-credit agencies. The NGOs were asked to

make a choice of individuals and SHGs to meet the researchers, using these criteria. This approach

meant that the researchers met experienced, confident informants but probably they were not

completely representative of SHGs and their members. A small number of meetings were held withcontrol groups for example, NGOs which do not work with SHGs, or SHGs which have not created

clusters and federations. This

was done so as to gain differing

points of view and to set the

SHG program in perspective.

This pensioner from Balykchy was still able to smile despite problems

with regular water supplies during summer for a third straight year.

See story 2 on page 19.Photo: Peter Kenny/ENI

At the end of the face-to-face

interviews, respondents were

given a short questionnaire to

fill out. The aim of this was to

chart their views on key

questions in a way that would

allow the study team to

compare opinion in the three

countries and between 2004 and2007. Attachments to his report

provide more information on

the methodology of this report:

the original terms of reference,

questionnaires, a list of

interviewees, and some notes

on the survey of views.

2.5 Structure of the Report

The structure of this report follows closely the questions set by ECCA Following Chapter 1


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conclusions and recommendations, linking to ECCA general strategy and its capacity building and

advocacy programmes in particular.

At the end of each chapter a short human interest story has been added with photographs taken during

the field visits.

Story 2. Water, water everywhere, but for some there's not a drop to drink

There should be plenty of water at the town of Balykchy, where property prices are booming for some. But the faces of the

elderly at the local community centre look crestfallen. The town lies at the western tip of Lake Issyk-Kul, a sublimely

beautiful piece of water in lying at an altitude of 1600 metres above sea level, with cool breezes blowing from the snow-capped mountains of Eastern Tien Shan even in the heat of summer. But some of the elderly Russian-speaking pensioners

living in this rail junction town of 45,000 inhabitants are angry that for a third year running they cannot get water in their

apartment blocks, despite having made strong efforts to do so. Pensioners from a federation of self-help groups attached to

the Resource Centre to the Elderly gathered to discuss their activities early in July, and for many of them water was on

their minds.

Lyudmila, a self-help activist in her late 70s, explained, "This is especially a problem in summer time. We are charged for

using 180 litres a day, but we don't get any water." The woman explains that such a problem would never have occurred

before 1991, when Kyrgyzstan was part of the Soviet Union and local services worked. "We are using these groups of ours

to lobby to get water flowing back in our apartments, says another elderly woman called Galina. The pensioners realise

they have to push the already hard-pressed authorities to act on their behalf, but know this is not an easy task.

Sitting in an office fronted by a big statue of Vladimir Illyich Lenin, the deputy-mayor of Balykchy, Mederrolov Taalaibek,

explains that his resource-strapped council often does not have the resources to deal with residents' problems. He stresses

that he works very closely with NGOs to solve the problems of vulnerable people. Taalaibek, who has been in his position

for nine years, says, "Since the collective system stopped functioning, it has been difficult for many people We are trying

to solve problems and listen to the self-help groups, and want to act on their concerns like the water problem. But how we

can do it is not always an easy answer," says the deputy-mayor. "Sometimes I have to act like a psychologist, sometimes like

a lawyer."Still, things are getting better, and despite bureaucracy from above, the town's revenue is increasing. Its budget was 25

percent higher in 2007 than the previous year. Balykchy's economy grew by 50 percent in 2006, but it does not all trickle

down the poor yet, says the deputy-mayor. Galina Kovalenko, executive director at the Resource Centre for the Elderly

comments, "We are lucky we have a very enlightened deputy-mayor here. We have developed the self-help groups and they

are forming their own federations. They know how to lobby but still need help. What we really need in more employment to

break the logjam."


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November 2007

CHAPTER 3.SELF-HELP ACTIVITIES FOR COMMUNITY EMPOWERMENT

3.1 Main Areas of SHG Activity in Kazakhstan and Kyrgyzstan

Introduction

Since the 2004 report, the number of Self Help Groups supported by ECCA NGO partners in Kazakhstan

and Kyrgyzstan has almost doubled. One NGO partner, ADRA Kyrgyzstan, has started supportingSHGs for elderly people in Bishkek, while another, Intersheriktesh, is seeking alternative funding to

continue its work with SHGs. All partners have seen a rise in the number of SHGs supported. (See

Table 1 on page 23 for full details.)

The majority of NGOs work with SHGs in clearly defined localities (cities or rural districts), though

DCCA and RCE (Umut) have a wider geographical spread and Moldir works in South Kazakhstan in

addition to Almaty city and oblast. SHGs affiliated to DCCA have recently and independently of their

parent NGO helped to establish new SHGs in regions of Kazakhstan and Uzbekistan bordering their

districts.

Within Kyrgyzstan there is a tendency for ECCA donors to support SHGs in multi-ethnic areas

especially Bishkek, the Fergana and Chui Valleys. An exception to this is the concentration of SHGs

supported by Shoola on the south shore of Lake Issyk Kul. There appear to be no SHGs in Naryn Oblast,

the poorest region of the country which is predominantly Kyrgyz, and just a few in Talas Oblast recently

established by DCCA. Kazakhstan still has just two ECCA partners that support SHGs Baspana andMoldir. Both have seen a modest rise in the number of SHGs supported since the first study.

Respondents from Kazakhstan have spoken of a general lack of donor interest in their country, perhaps

on the mistaken assumption that the countrys oil wealth is being used by the government and private

sector to reduce poverty.

Composition of groups

Within the two countries, SHGs range in size from 7-15 members8. Usually members of SHGs are 20

years of age and older, with the majority 30-50 years old. They are thus made up of the most employable

part of the population (the exception are groups set up to support elderly people). SHGs are not usually

differentiated by ethnicity - they are organized by social status and place of residence. In localities where

various ethnic groups live side by side, SHGs are generally multi-ethnic.


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supported materially and psychologically by their founder / partner NGO. Lobbying by SHGs is mainly

connected with issues at the local level. Members of SHGs noted that having been involved in the group

helped them acquire a new interest in life.

SHGs give collective support to their members. One SHG member stated that our groups are an island

of well-being in a sea of troubles. But in order to achieve this more secure position, the groups need to

go through several difficult stages of development.

Representatives of local government interviewed for the study stated that they find SHGs supportive,

because they tackle the common problems of citizens in a given area. Indeed the researchers found that

there is a tendency in areas with strong SHGs for local government to hand over responsibility for certaintasks to the groups, which can then become an implementing mechanism (eg for social infrastructure

improvements) which by right the government should provide. It is therefore important for SHGs to

know their mandate clearly and to distinguish clearly between their obligations and responsibilities, and

those of local government. For more on the relationship between SHGs and local government, see

Section 3.4 below.

Types of groups

SHGs representing elderly or disabled people tend to be more dependent on NGOs. If for younger and

middle aged people SHGs provide an opportunity to boost their economic and social conditions, for

elderly people they often represent an escape from isolation and loneliness. Recently there has been a

tendency for elderly peoples SHGs to reduce their age limit to attract people of working age into the

groups and hence make them more economically sustainable. In the questionnaires, members of these

groups stated that, unlike working-age people, they would find it difficult to operate without NGO

support.

There are instances where experienced adult groups have begun to set up childrens groups, or where

children themselves decide to follow the example of their parents and create their own group. But there

is limited experience as yet with childrens SHGs. One success story comes from Mehr-Shavkat, which

works with a local childrens parliament in south Kyrgyzstan9.

Sustainability

Although members of SHG talked about self-sufficiency, almost all groups noted that they need outside

assistance, including consultancy, training and financial support.

3.2 SHGs in Tajikistan


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November 2007

Like Kazakhstan and Kyrgyzstan, SHGs in Tajikistan tend to be focused on economic activities

perhaps even more so. Sometimes the understanding of NGO partner staff and SHG members as regards

the meaning of self-help is significantly different. While NGO staff are positive about the participation of

group members in lobbying activities, SHGs themselves are quite reluctant to get involved. They are

more comfortable earning money for group members than in bringing up wider issues or lobbying the

local authorities for better services. In Tajikistan fear and reluctance to lobby government structures can

be traced back to the effects of the civil war and the rather restrictive, authoritarian nature of government

since then.

Composition and development of groups

SHGs in Tajikistan are economically homogenous all their members are poor. However, memberscome from different ethnic backgrounds and the history of their communities can be quite different (eg

communities that have relocated from one area of the country to another in the Soviet period or

afterwards). The groups are prepared over a 6-month period by training and awareness-raising on the

role and nature of SHGs. During these six months they learn about business plans, income generation

activities analysis, teamwork, conflict resolution, gender and human rights. Also within this stage groups

set certain principles and rules (on issues such as rotation of roles, leadership, and savings procedures).

After six months almost all SHGs are ready to get group credits and loans.

Role of groups

Observation shows that the majority of groups are interested in the economic aspect of the SHG

movement. Members are informed from the very beginning that it is expected that they will receive

external funds to improve their earning potential. This basically encourages them to stay in groups and

attend sessions.

SHGs in Tajikistan see a role for community solving of infrastructure problems such as installation orrepair of electricity transformers, road and bridge reconstruction. Existing mahalla committees and SHGs

supported by the NGO build links with local authorities and work in social partnership. In some parts of

southern and eastern Tajikistan where society is more conservative, religious figures are key in almost all

decision making at community level. Indeed, mullahs are very effective in spreading the message the

message, especially when it comes to convincing the male population to allow their women to attend

community meetings or training, or girls to go to school. The sermons given by mullahs at Friday prayers

in the mosque on issues such as equity or equality, or the importance of education, are an important

potential mobiliser for SHGs. Thus NGO partners (eg Mehrangez) have tried their best to integrate a

religious perspective within SHGs in spite of various problems they have faced in building these links.

SHGs also play a role in reducing conflicts in society. In southern Tajikistan (Kurghon-Teppa zone of

Khatlon) there are still hidden frictions between Gharmi people and the rest of the population. This is due


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Table 1: Total SHGs in Kazakhstan, Kyrgyzstan and Tajikistan in 2004 / 2007 and Current Urban-Rural

Breakdown

Urban/Rural Breakdown (2007)NGO

Total No. of SHGs

(1st

study, 2004)*

Total No. of SHGs

(2007) No. of Urban SHGs No. of Rural SHGs

ADRA-Kyrgyzstan - 31 31 -

Agency Nau - 38 - 38

Arysh 80 131 117 14

Baspana 38 62 39 23

DCCA 43 133 10 123

Gamkhori - 3 - 3

Intersheriktesh 24 45 - 45

JR 12 40 5 35

Mehrangez - 23 - 23

Mehr-Shavkat 56 136 - 136

Moldir 81 124 68 56

Nachoti Kudakhon - 21 5 16

NVC - 2 2 -

Shoola 54 117 - 117

RCE (Ymyt) 71 99 33 66

Ruhafzo - 8 - 8

TOTAL: 469 1013 310 658

(Information from self-assessment questionnaires)

3.3 SHG Leaders

It would be difficult to overestimate the role of leaders in the development of SHGs. As noted by the

respondents during the survey, leaders have a major influence when deciding what direction the group

will take, what issues will be addressed, and on the level of success achieved. Good leaders foster

solidarity, team spirit, confidence and mutual understanding all of which are vital for the sustainable

development of groups.

SHG leaders at the set-up stage

In the early days of the programme, SHG formation and identification of leaders was mostly led by staff

from the sponsoring NGOs, whereas now it is very often existing SHG and cluster leaders who do this.

In either case the process is quite similar a person with initiative (or a person who has found out about

SHGs) begins to tell people whom he/she knows about them. Gradually people who are confident and

interested enough get together to form the groups core and to involve other acquaintances in its


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November 2007

Just as SHGs tend to be a reflection of the supporting NGO (as noted in the first SHG report), so the

group members to some extent are reflections of the group leader, and the SHG leader is in turn a

reflection of the NGO leader with whom she/he works.

Rotation of Leaders

If SHGs are to play a positive and dynamic role in civil society and in collaboration with government on

key issues for the community, their internal governance is important. An open and democratic style will

help the group to involve members and attract and convince supporters from outside. This is why the

SHG concept puts great store by the principle of rotation of the positions of SHG leader, accountant and

secretary. Rotation helps to build leadership skills, to foster individual responsibility, and to strengthen

the capacity of the entire group.

In theory, leaders should rotate approximately every 6 months by re-election of another group member.

However, the survey showed that this does not happen in all groups. There appear to be two different

opinions on the issue.

The first opinion is that leadership rotation should be mandatory as outlined in the SHG principles. This

point of view is based on the fact that rotation of leaders prevents concentration of power in one person

and enables individuals to grow as they take on and try out the roles of leader, accountant or secretary.

Supporters of this view argue that once having been in the leaders shoes, all members will recognize the

difficulties and problems encountered by leaders, and also that mutual understanding and responsibility

in the group will increase.

Leaders, cashiers and accountants should rotate. When people know they will have to be

leader, they try to improve their knowledge.

Sometimes ordinary leaders can become outstanding leaders!

Rotation within the SHG facilitates improvement of the leadership skills of SHG members

Others think that rotation of leaders is unnecessary if the leader performs successfully, or that this should

be up to the group itself to decide. Supporters of this view argued:

It is difficult to rotate leadership if members do not have leadership skills (Moldir)

Some SHGs are used to one leader, and when the leader is replaced the activity of the group is

halted, or the groups begin to split into smaller groups depending on the number of leaders,

Sometimes democracy leads to dissolution of SHG (Shoola) Personal ability and skills are very important in leadership. Even if all the members of the

group are trained there may be failure to achieve the results (Baspana)

The latter approach is less concerned to encourage the emergence of new leaders in the group, so the

success and effectiveness of the group will depend on one leader only There is the danger that over time


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Federation. Women leaders working with Agency Nau have established a string of village based

Womens Resource/Development Centres where training is held for girls and women on various topics.

Exchange visits are on of the most effective and popular methods for broadening experience of local

leaders. Seeing for themselves the activity of more experienced groups has inspired SHG members and

leaders to implement similar approaches in their own groups. Here the role of the more established

NGOs such as Arysh, Resource Center for the Elderly (Umut), and Mehr-Shavkat has been very

beneficial.

Another opportunity for leaders to develop confidence and experience is with microcredits and

stimulating grants for SHGs, clusters and federations. Economic and social activities of this kind giveleaders valuable experience of project and finance management, and of work with local population and

local self government bodies. Leaders noted that successful implementation of projects raises not only

their self assessment and confidence but also improves trust among the population, thus increasing their

influence on the decision making process.

3.4 Gender roles and different types of SHGs

In all three countries, the majority of SHG members are women. A variety of reasons have been outlined

for this. Some respondents stated that men do not see SHG involvement as serious employment,

somehow below their dignity. Others pointed out that women have more to worry about: in particular,

raising children, household problems and community problems, and thus have more incentive to get

involved in groups to try to change things. Thirdly, in many parts of Kyrgyzstan and Tajikistan, large

proportions of the adult male population work abroad seasonally or permanently, and thus are unable to

join groups. Fourthly, some believe that women are simply more active than men, and men are lazier. In

Tajikistan, the idea of SHGs was initially seen by donors and partner NGOs as a way to help poor

women from rural areas.

Many respondents noted that women leaders more actively lobby their interests before local authorities.

They specifically pointed out the role of women leaders in election processes, since they participate in

the campaigns of candidates to be deputies (who in the majority of cases are men).

There are differences between the roles of women of different status. In Tajikistan it was noted that

SHGs with younger women members tend to be less active because of childcare, cotton working, and

household duties such as cooking, fetching water, and cleaning. In contrast, older women play a bigger

role and are active in SHG development. Nevertheless, there are often difficulties even for older women

in taking on leadership functions


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November 2007

leadership posts. In this case women have more time to participate in the work of the group, training and

other activities. One of the women leaders from Kyrgyzstan said: It is pleasant when villagers accept

you and respect you as a leader. It is clear that the status of women varies from country to country,

regionally, and by urban or rural location.

Women generally support the idea of mens SHGs, or the involvement of men in mixed groups, seeing a

range of heavy physical tasks such as maintenance or construction as not suitable or impossible for

women. Mens groups were created in Tajikistan to seek to help resolve this problem. However,

migration pressures make these groups less sustainable. There has been a gradual change noticed across

the region in mens attitudes to the groups they see women from their families earning and helping

resolve problems in their communities, and are becoming more favourable to womens involvement inthe groups.

Women play a major leadership role in the SHGs 90% of the leaders of groups surveyed were women,

including many from mixed gender groups. However, they are affected by the traditional attitude to

women, particularly in rural areas. Respondents from Tajikistan noted that many women leaders remain

unnoticed because they are shy and are afraid of taking leadership responsibility.

The table below shows the breakdown of womens, mens and mixed SHGs; also groups set up specially

for elderly people and children. It is interesting that mixed groups are now almost as numerous as

women-only groups. In these groups the principle for association is usually the chosen activity

agriculture, crafts, etc as well as geographical location.

Some NGOs support family SHGs. The survey discovered that in family groups the leader tends to be an

older person or the head of the family. This undoubtedly reflects the tradition of respect for elders; in

these groups there is less rotation of leaders. Internal discussion or democracy is likely to be highlyaffected by the character and interests of the family or clan supplying its members.

Table 2: SHGs Gender and Age Breakdown

Gender and Age Breakdown

NGO

Total No.

of SHGs

(2007)

No. Of

Womens

SHGs

No. of

Mens

SHGs

No. of

Mixed

SHGs

No. of

Elderly

SHGs

No. of Youth,

Childrens

SHGsADRA-Kyrgyzstan 31 31 - - 31 -

Agency Nau 38 22 16 - 5

Arysh 131 76 9 37 6

Baspana 62 - - 62 - -

DCCA 133 41 12 78 - 2

F S lf H l t Wid R l i S i t


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3.5 Self Help Groups and local government

This section brings together a wide range of examples of liaison between Self Help Groups and local

authorities. SHGs employ a variety of strategies at the local government level to improve conditions in

their communities. Five main strategies or levels of cooperation have been identified:

Seeking permission from local authorities for social action

Social partnership with local authorities

Lobbying the local authorities for reallocation of funds

Going over the head of unhelpful local authorities to a higher level

Standing for election for local government positions

The method or methods used clearly depend on the local circumstances and the nature of the group,

cluster or federation and its members. Longer established groups often are much more proactive in

lobbying and local elections. The existence of clusters and federations, or otherwise high concentrations

of SHGs can increase the effectiveness of actions.

The most productive SHG-local authority relationships (to date) tend to be located in rural areas of

Kyrgyzstan administered by elected ayil okmotus. In Bishkek, social partnership is more complex due to

the large number of organizations competing for influence. Also there are no elections at the primary

level district akims and the mayor are appointed, and the lowest level directly elected body is the

Gorkenesh, or city council. The equivalent of the ayil okmotu in Bishkek is the TOS, the Territorial

Social Council, which is largely appointed by local notables, often with considerable pressure from

higher authorities. It is a similar picture in Almaty, where the Homeowners Consumer Cooperatives are

made up in the same way, and in most of Tajikistan, whereMohalla Committees fulfill similar functions.

Unlike ayil okmotus, none of these bodies have their own budgets, and hence they must rely on funds

from higher levels of government.

Figure 2: Which is the most likely way you would approach the local administration? Comparative

analysis (2004 and 2007)

2004 2007

November 2007


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November 2007

The chart shows that over two-thirds of respondents prefer to raise issues collectively with other

members of SHGs and federations. Interestingly, more respondents in 2007 than in 2004 would lobby

with other community members too. This may indicate that SHGs are working more closely with other

local CSOs10.

Seeking permission

This form of interaction with the local authorities is clearly the weakest. It is employed where either

power balances are greatly weighed in favour of the authorities or where the authorities have no

resources available to support the social initiatives of SHGs. In south Kazakhstan oblast, members of

SHGs do not feel the political situation allows them to lobby the interests of the people. Rather, they

seek permission from local akims for any activities carried out, including the holding of meetings. Insouthern Tajikistan, after several years of lobbying local government to repair a road, and being told that

there were no finances available, a villages groups took it on themselves to secure funding from

international donors, and organized villagers to contribute labour. They asked for permission from the

Jamoat(local council) to carry out the project themselves, and the authorities were very happy to give

their consent. A support NGO worker told researchers in Tajikistan its too early for achievements in

lobbying. Instead, we need to think about unity of the people, income generation and mobilisation for

labour.

Social partnership

Often, Self Help Groups and their clusters or federations work in partnership with local authorities to

improve life in their neighbourhoods, deciding on priorities as more or less equal partners. Usually,

these priorities include improving local social infrastructure (including, for example, roads, water supply,

gas, electricity, health care, and childcare) and providing accommodation rent-free or at reduced rates for

SHG activities.

This form of partnership seems particularly prevalent in rural areas of Kyrgyzstan, for reasons enunciated

above. Thus, on the one hand, the local administration has an electoral interest in meeting the perceived

needs of the local community, as well as a personal interest in supporting initiatives to develop the local

area. One ayil okmotu head from Jalalabat Oblast was effusive in his support: Self Help Groups are the

best tool for bringing people to unity. Through SHGs social problems can be resolved and young people

can be brought up properly. They help resolve conflict situations. They help strengthen the knowledge

of agriculture among the population. Members of SHGs are more active than any other local

institutions... On the other hand, SHGs can see real benefits of close links with the authorities for

themselves and their communities.

There has been widespread donor support in Kyrgyzstan for joint training of local groups and local

government on social partnership. By contrast, NGO representatives from Kazakhstan expressed regret



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the opening of a new medical point, distribution of material support to poor children, and the organising

of an oblast level workshop on the role of SHGs.

Sometimes the ayil okmotu goes into social partnership with SHGs when it sees the benefits of group

activities for their communities. Groups near Burana tower in the Chuy valley were offered a site at the

historical landmark by the local head of government for a yurt to sell handicrafts, as well as help with

materials and wool. The ayil okmotu head told SHG members that he was happy they were showing

enterprise and setting a good example for local youth. The Sharbulak cluster at Issyk Kul was given a

converted banyaby the local authorities after working closely with the ayil okmotu.

Social partnership depends on a good working relationship and respect between the parties involved.Sometimes this does not exist. SHGs gave a number of reasons for unfriendly relations with the local

government. One SHG, made up of internal migrants in the Chuy valley, found the ayil okmotu

unwilling to help because of their outsider status: according to SHG members the head only supported

locals. Another SHG found its way blocked because of personal political rivalry between its leader

and the ayil okmotu head. When the head of local government was replaced, partnership flourished.

Social partnership can also be broken. Relationships built up over years can fail when changes in local

government leadership occur. Another problem is faced by a Federation in Almaty. After developing

close ties with the city district akimiat, their apartment blocks are to be demolished and residents

dispersed. Even if Federation members are relocated to a single district or estate, the process of

developing ties with local government will have to begin again from scratch.

Lobbying

Where SHGs do not work in close partnership with local authorities, the relationship is often based on

lobbying of the interests of SHGs and society at the local level. This can be quite confrontational: oneNGO interviewee told researchers that SHGs are like a fist ayil okmotus fear them because of their

tight structures and mutual understanding between members. Generally, lobbying by more experienced

SHGs is more effective one NGO contrasted the high level achievements of its SHG partners in

southern Kyrgyzstan, some already 5 years old, with those of their newer partner SHGs in northern

Kyrgyzstan, which have been working for less than 2 years.

As with social partnership, social infrastructure is generally the focus of local lobbying. This is done in a

variety of ways. Typically lobbying will begin with letter writing and visits to local government offices.

Groups in northern Tajikistan find using references to Presidential decrees and speeches in their

submissions to be helpful in eliciting favourable responses.

A number of respondents commented on the enhanced effectiveness of multiple SHGs lobbying together.

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November 2007

work on a drinking water system. Another village secured money to send local children on holiday.

Members of a cluster in a Bishkek new settlement were appointed to a committee with a mandate to audit

local government spending. They discovered that local people were paying more for installation of

telephones than had been officially budgeted for and were able to resolve this problem.

In some cases, SHGs find allies in the local context who have greater access and opportunities than them

for lobbying. In Kazakhstan, local self government (LSG) is generally controlled by appointed figures.

These typically have very limited resources and no incentives for tackling local problems. However, in

the new settlement Duman-1 in the outskirts of Almaty, when the authorities tried to impose a local

government leader he was chased out by the population and replaced by a local activist who had worked

for Baspana, the migrant support NGO, since 1995, and is now a member of a SHG. In 2006, despiteopposition from the city district akimiathe was recognised as head of LSG by the Almaty city akimiat.

He uses his position, and access to power structures, to actively lobby the needs of the settlements

population at the district and city levels, consulting closely with the local SHGs and Federation.

Lobbying can require a lot of tenacity and perseverance. One NGO in southern Kyrgyzstan suggested

that some of its SHG partners are likely to give up after a first failed attempt at lobbying, such as not

receiving a market stall to sell SHG produce. On the other hand, another SHG in southern Kyrgyzstan

lobbied successfully for the introduction of a water pump, but were then told they would have to pay for

the water. A further lobbying campaign was necessary to secure user control over the water supply.

Lobbying sometimes does not work, or has unintended side effects. One SHG in northern Kyrgyzstan

lobbied successfully for a local club to remain in village hands, when the head of the ayil okmotu wanted

to sell it. Since this campaign, the relationship between local SHGs and the local government chief has

soured to the point where they are not speaking. In Almaty, NGO staff note that new settlements with

established and vibrant Self Help Groups and Federations have now much better social infrastructurethan the majority of their neighbours. It is not clear whether resources are being diverted from more

passive to more assertive settlements, or whether the money found would otherwise be squandered or

pocketed by unscrupulous officials.

Particular frustrations have been reported with regard to SHGs in Bishkek. An NGO worker supporting

elderly peoples SHGs told interviewers that in general officials dont pay attention to the proposals of

SHG members, saying that they are too busy with more important things, and that its impossible to sort

out pensioners problems. Likewise, new settlement SHGs have found the lobbying process difficult,

with few successes so far, though they are hopeful that things are changing. There are some high profile

supporters of SHGs on Bishkeks city council -31 SHGs lobbying together in Bishkek managed to

secured rent free kiosks from the city to sell their produce, and others were supported in their attempts to

have a bridge built in the Botanical Gardens.



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In Kyrgyzstan, Self Help Groups have high level supporters. The Minister of Social Protection told an

interviewer that some regional governors have seen the benefit of the SHG for society and have sent

memos round lower tiers of government asking for the SHG movement to be supported. One vice mayor

of a northern Kyrgyz town told researchers People come to me with many problems. I try to solve the

problems and listen to them. Sometimes I give them advice on where to go and how to take the next

step, because not all problems are within my mandate and authority. We try to help if we can we direct

them to other structures. The policy should be flexible, but we have to stick to a general line. In

principle we try to solve the problems ourselves. Referring to the Oblast level is an extra step and

involves a lot of extra bureaucratic work.

Another option if the local authorities are not resolving the concerns of the SHGs is to remove them.

One ayil okmotu head in southern Kyrgyzstan was unable to solve a problem, and so local groups lobbied

successfully for his dismissal.

Elections

All the SHG activities mentioned above were aimed at influencing the authorities. Another path to seek

to improve village life is for SHG members to secure official positions for themselves. This can be with

semi-official or official bodies, and with the local administration or with the elected body that supervises

it. In general, a much higher proportion of male SHG members are interested in getting involved in

electoral politics than female members.

Figure 3: Did you participate in elections? Comparative analysis (2004 and 2007)

2004

88%

12%

Yes

No

2007

81%

19%

Yes

No

November 2007


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members of village councils. Another suggested They play a big role at election time, and know how to

work with deputies. One member who is now a district councillor spoke to a researcher: The SHG

members voted for me and that helped me become a village council deputy, after having being a SHG

member for 4 years, including a spell as leader. I was elected this year to the district council. As an

SHG member and leader I was aware of village problems better and this helped me get elected. As part

of the SHG I raised the issues of community members, which were then resolved by local government.

People realised I was responding to their needs as an SHG member, and thus was well placed to

represent them. Another SHG member in Aravan district is a deputy head of village administration. In

the Bokonbaev district in northern Kyrgyzstan there are likewise a number of SHG members on local

councils and womens councils. Some are also village heads. One stood unsuccessfully for head of the

ayil okmotu. They believe that local elections in 2008 or 2009 will see substantially more memberselected as local deputies

Some SHGs prefer to support external candidates in elections. In Almaty, many womens SHGs actively

support primarily female candidates for the city council. One SHG in the process of formation in

northern Kyrgyzstan is made up of supporters in a village of a failed parliamentary by-election candidate,

who want to continue working together.

SHGs also can be seen as guides at times of political crisis or dispute. At the time of the 2005 change of

power in Kyrgyzstan, members of some SHGs in northern Kyrgyzstan turned to the leaders of their

groups for guidance. SHGs have also helped to develop links between refugees from Andijon and local

people in southern Kyrgyzstan, and to act as an honest broker in north western Kyrgyzstan when all other

village structures were split through the middle on the question of whether to support a gold mining

companys plans for the district. A Bishkek cluster was instrumental in resolving a conflict between

Kyrgyz and local Turks over cattle going missing. Through their intervention, both sides agreed to go to

arbitration by local elders.

3.6 Summing up: SHG Successes in Community Mobilisation

At the self assessment stage of the SHG study, NGOs were asked to give some examples of social

mobilisation activities their SHGs are involved in. Below are the results for Kazakhstan, Kyrgyzstan and

Tajikistan, arranged according to the main themes of lobby and civil society work which the respondentsthemselves identified:

Themes for social mobilisation Percent of cases provided

Local physical infrastructure (water, roads..) 13 %

Social services (medical childrens state benefits ) 23 9 %



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and also some cases of conflict resolution. Legal questions such as those aroundpropiska (registration of

official place of residence with the authorities) are important for urban NGOs representing internal

migrants in both Kyrgyzstan and Kazakhstan.

This picture is different from the data collected during the field visits in one or two areas. Thus it

became clear that SHG members are much more involved in election activities but this is often on a

personal, informal basis. Also cultural events probably have a greater weight. The fact that the results of

this mini-survey were slightly different for the countries of the region is not surprising. In part, they

reflect the external environment, in part the stage of development of the SHG programs for example, as

noted above, Tajikistan SHGs are all less than 5 years old.

Margarita Zobnina, a medical biologist turned

social worker, supports self help groups in

Kazakhstan.

Story 3. Kazakhstan women met to combat loneliness, then tackled government

Margarita Zobnina, a medical biologist in the nursing profession, joined a women's group in her native Kazakhstan after

the collapse of the Soviet Union, at a time when women faced not only increasing impoverishment but also loneliness.

Zobnina, now a social worker, lives in Almaty, a city that today is booming with the trappings of modern Asian success -

glass skyscrapers and motor exhaust fumes. Some residents are cashing in on the oil wealth of a country the size of western

Europe, and one that has the highest-known hydrocarbon deposits in the Caspian region of Central Asia. Many aid

agencies, however, report a growing gap between rich and poor.

"A friend of mine told me about an NGO (non-governmental

organization) for lonely women. In the Soviet days we didn't have

NGOs and some people might shun such a group. But I don't

believe there's any shame in being lonely," says 58-year-old

Zobnina. Kazakhstan is made up of about 54 percent Kazakhs,

plus a 30 percent Russian minority, to which Zobnina belongs.

At the beginning, Zobnina explains, the group for lonely women

was called "The voluntary organization of single mothers. Forus who had everything organized for us in Soviet times, such a

thing as involvement in a self-help group was a big step into the

unknown. She recalls with delight one of the associations early

successes. In Soviet days female cotton factory employees were

given hostel accommodation in post office apartments. After

independence, however, they had to begin paying fees for services

to post office heads. "The problem was the women could not afford

to pay their employers on the salaries they were receiving," says

Zobnina. "We had to take it to the top management and tell themwhat they were doing was unfair and wrong, and that they would

put their own employees out on the streets." Now, the cotton

factory workers can afford to live in their accommodation as the

rates are in line with their salaries.

Kazakhstan has a constitution that states, "No one shall be subject

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CHAPTER 4. SHG ASSOCIATIONS CLUSTERS, FEDERATIONS AND OTHER

NETWORKS

In this chapter the character and activities of SHG clusters and federations are examined, first for

Kazakhstan and Kyrgyzstan together, then for Tajikistan, with a short section on their leaders. The

analysis then moves to other associations and networks which NGOs and SHGs are involved with at

local level, also a range of intermediate bodies occupying the space between civil society and local

government. The chapter concludes with a short analysis of the roles of NGOs and CBOs (community

based organizations) in local civil society.

4.1 Clusters / Federations in Kazakhstan and Kyrgyzstan

Once SHG members begin work in the community, people start acknowledging their worth. Over the

course of time non-members begin to go to the SHG for advice. Thus they begin to accept active

members and the groups themselves as community leaders. This process is accelerated with the creation

of clusters and federations of SHGs.

During the research it became clear that the terms cluster and federation are used differently in different

locations. In general, however, clusters consist of five or more SHGs located close to each other (in one

village, block or street). They are unregistered associations, and they meet to exchange information and

implement community projects which could not be carried out by a single SHG or to do occasional

lobbying. A federation, by contrast, is an association of SHGs that may take on a variety of wider

lobbying activities and thus strengthen its power. SHG Federations are more formal, usually registeredassociations. There are SHG Federations which unite just five groups and others which include more

than 35 SHGs.

The SHG study showed that while at the level of individual groups there is usually a focus on economic

issues, at the level of clusters / federations more emphasis is given to lobbying of other organizations or

government structures. Clusters and federations have shown that they can liaise effectively with both

traditional and non-traditional forms of community organization. Although many of them are still at an

early stage of development, they have begun to understand the importance of joint lobbying.

In most clusters and federations the leaders are women. In several interviews leaders drew attention to

their increasingly heavy workloads. They not only have to attend their own SHG

shg report central asia 2007

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