EXPANDING COMMUNITY APPROACHES IN SOUTHERN THAILAND | KM NOTE 1 The In uence of Con ict Research on the Design of the Piloting Community Approaches in Con ict Situation Project Introduction Secessionist movements in Thailand’s southernmost To complement the rst phase con ict study, additional provinces date back more than a century. Following grant funds were obtained to examine gender-related decades of dormancy, a separatist insurgency re-emerged dimensions of con ict impacts and ways to engage youth in early 2004. Over the past six years, killings and bombings and enhance their participation in community activities. have been regular occurrences – claiming the lives of These studies and activities, together with extensive over 4,000 people. consultations, informed the design of a second phase to pilot community approaches in the con ict-affected areas. In response to a request by the Royal Thai Government (RTG) to learn from international experience with appropriate This note, the rst in a series of brief, operationally relevant and effective approaches to working in con ict-affected pieces meant to inform a broad range of stakeholders areas, the World Bank mobilized grant nancing through about the design, implementation, and results of the Piloting its State and Peace-Building Fund (SPF) to rst study and Community Approaches in Con ict Situation Project, then pilot approaches to local development to help mitigate describes how the con ict study as well as the gender the con ict in the southern provinces of Pattani, Yala, and assessment and youth-focused community development Narathiwas. activities in uenced the design of this operation. 1 Expanding Community Approaches in Southern Thailand Objectives Executing Arrangements and Scope The overall objective of the SPF- nanced grant is to assist the RTG to create “space” and opportunities for increased The con ict study and capacity-building activities were interaction in an effort to promote trust-building in the undertaken by a consortium of academic institutions.1 The con ict-affected southern provinces of Pattani, Yala, and work was guided by an Advisory and Coordinating Committee Narathiwas. As noted, the project was divided into two which included representatives of the Southern Border phases. Provinces Administration Center, the ministries of Finance, Interior, Social Development, Justice, and Education, former Phase 1 consisted of two components: research on multiple members of the National Reconciliation Commission, civil aspects of the con ict and capacity-building activities. In society representatives, the Thailand Research Fund, and addition to in uencing the design of pilot approaches, its the United Nations Working Group on the Five Southern- objectives were to inform the RTG and interested public most Provinces and the World Bank (the latter two on good practices in con ict mitigation in the southern asobservers). provinces, provide lessons learned on con ict management to government of cials and other stakeholders in the affected areas, and build capacity for local con ict management. The objective of Phase II is to develop effective community approaches through the implementation of pilot activities in the three southernmost provinces that increase interaction within and among communities and between communities and the state. 1 The consortium included Chulalongkorn University’s Social Research Center and Center for Peace and Conflict Studies, Mahidol University’s Research Center for Peace Building, and Thammasat University’s Center for Peace Information. 2 Knowledge Management Note The research component was comprised of a review of 3. Provide knowledge and learning support the con ict-related literature, as well as primary eld research conducted in nine communities throughout the An impressive amount of research and knowledge three southern provinces. regarding the southern con ict exists. Access to this information by policy makers and par ticular ly by Under the capacity-building component, a training local communities, however, is limited. Knowledge needs assessment was undertaken, training modules on and learning should be shared more broadly, especially trust-building were developed, and six workshops were at the local level. conducted for community members, civil society representatives,and government of cials. 4. Finance participatory development projects Local development activities were identi ed as one of Key Findings the key means to help build peace and reconciliation by creating “space” for concerned parties to work together The con ict study and capacity-building components for common bene t. In examining existing activities, yielded the following impor tant ndings and the research found that 1) basic infrastr ucture recommendationsfor the design of the project’s projects seldom include community participation and second phase: do not respond to local needs, 2) where government agencies align with local politicians, communities 1. Improve public knowledge and perception regarding become polarized leading to mistrust, 3) access to the southern conflict information about projects in many communities is limited to village leaders and elites, and 4) government The review of over 6,000 news pieces produced projects are not well documented and evaluated, between January 2004 and June 2007 found that they seriously limiting the amount of learning. were written by about 30 reporters relying on the same 20 to 30 sources of information, most of who were The con ict study recommended the use of new local government of cials. By repeating the same information, development approaches that include the following: using speci c descriptive ter ms, and limiting its sources, the media has played an important role in Effective and inclusive participation; setting the agenda and perpetuating an imbalanced perception of the area. Additional alternative media Capacity-building of human capital; reporting would help to broaden understanding and knowledge about the culture and way of life in the three Appropriate and simpli ed project procedures; southernmost provinces. Targeted assistance for par ticular ly vulnerable 2. Link policies and development groups, including women, widows, children and youth; Policy formulation in the south relies primarily on A phased approach in par ticular ly dif cult areas intelligence repor ts prepared by security-related which starts with providing “space” to communicate agencies, and is thus heavily in uenced by militar y and build capacity; concerns. Policy dialogue on how a development-led strategy could contribute to peace should be encouraged. Measures to enhance cooperation between government and communities; and A robust monitoring and evaluation system as the basis for action learning. 3 Expanding Community Approaches in Southern Thailand To effectively engage youth in local development activities, the youth project highlighted the need to: Clarify expected roles and responsibilities of youth and local leaders; Given the newness of the CDD approach and limited experience of youth, provide intensive and continued technical support throughout theproject; and Ensure involvement of female youth by encouraging groups to align responsibilities and activities with the quali cations and interests of its members. Implications for Phase II As intended, the design of the Piloting Community Approaches in Con ict Situation (CACS) Project provided an oppor tunity to use different entr y points within the project to address issues raised by the research phase as well as the gender assessment and youth-focused activities. The analytical work and initial activities The ndings of both the gender assessment and the informed numerous important aspects of project design, youth community-driven development2 (CDD) activities including 1) project management, 2) the inclusion of conducted in 2008-09 reinforced, elaborated upon, two “windows” of assistance, 3) the community-driven and extended these recommendations to include gender development approach, 4) selection of the initial block and youth-speci c dimensions. grant sites, 5) the Peace-building Par tnership Fund modality, 6) capacity building , and 7) knowledge With respect to gender, the needs assessment sharing and monitoring and evaluation. recommendedthat the project: 1. Management Conduct gender-sensitive community development training for project staff, facilitators, and provincial The community research component of the con ict coordinators; study as well as the youth project reaf rmed the advantages (and practical necessity) of partnering with Mainstream gender-sensitive aspects in the project’s local organizations experienced in working in con ict operations; and zones and holding the trust of local communities. It further recommended that management responsibility be Collect gender-disaggregated data on input, output, vested in a single organization to build relationships and outcome indicators. and consolidate trust before gradually linking with other agencies, par ticularly in terms of leveraging funds. The Local Development Institute (LDI), a non-governmental organization that aims to promote community, local and civil society strengthening , was chosen to implement the CACS Project based on its proven capacity to deliver assistance to affected families and communities in the south, including as executing agency for the youth grant. 2 Broadly defined, community-driven development is an approach that gives control over planning decisions andinvestment resources to community groups and local government. 4 Knowledge Management Note Phase I activities also revealed the importance of linking A facilitated par ticipator y community assessment closely with government agencies to help create process, conducted by trained community volunteers, transparency, avoid misunderstandings and reduce is aimed at the inclusion of members from all groups suspicion, ensure buy-in and sustainability, and provide within a community. The eligibility of block grants impetus for policy change. to nance social and economic investments of almost any type3 helps ensure that activities are aligned with Using strategies adapted from earlier experiences, LDI community priorities. Information regarding project developed key relationships and designed management objectives and processes is widely disseminated. Public structures to help ensure effective implementation and posting of sub-project implementation progress, results. As in the youth project, a letter was sent to key including nances, within a community, promotes government of cials, including the Southern Border transparency. The roles and responsibilities of community Provincial Administrative Center (SBPAC), security members and informal advisors are conveyed to agencies, the governors of the three provinces, local all project stakeholders and monitored by facilitators, of cials and community leaders to help ensure “space” in order to prevent the “capture” of project bene ts. for the project to operate. A Project Advisory Committee, Multiple rounds of block grants to participating communities comprised of representatives from gover nment help ensure the sustainability of the process. agencies and civil society organizations with special Finally, linkages with local government of cials are interests and responsibilities in the con ict-affected designed to help ensure effective and sustained results. provinces, was established to provide policy advice at the national level. A Project Steering Committee, consisting 4. Selection of project sites of representatives from gover nment agencies and private foundations, was formed to offer operational As noted, during the r st phase of the project, guidance on all aspects of the project. eld research was conducted in nine communities. Participating communities were selected based on the 2. Two financing “windows” following criteria: dynamics of violent incidents, urban/rural characteristics, population demographics In response to the demand for nancing of both community- (ethnicity/religion), level of violence, feasibility of identi ed local investments and assistance to conducting research, and the distribution of resources. targeted groups, project design included two facilities Spread equally across the three provinces, these communi- or “windows.” ties represent a mix of rural and urban areas, and comprise various propor tions of Malay-ethnic and Employing an “area-based” approach, block grants are Thai-ethnic peoples as well as Buddhists and Muslims. made directly to par ticipating communities and subdistricts/municipalities for local development Because of the wealth of data gathered on these activities identi ed and implemented through a communities, the strength of the relationships built, participatory, community-driven development process. and the value of returning to the same communities to contribute to their development, it was agreed that they Focused on issues par ticularly relevant to targeted would serve as the pilot communities for block grant bene ciaries, the Peace-building Par tnership Fund nancing. (PPF) grants are available to civil society organizations and their networks active in the con ict-affected areas for innovative approaches and partnerships that promote trust, peace, and development. 3. Community-driven development approach The community-driven development approach addresses the de ciencies noted with respect to traditional government- nanced local development projects in the con ict-affected areas. 3 The negative list includes: the purchase of weapons and explosives; pesticides, asbestos and other potentially dangerous materials; land, vehicles and boats; and the financing of recurrent government expenditures, political activities. 5 Expanding Community Approaches in Southern Thailand The additional communities to par ticipate in the 7. Knowledge sharing and monitoring and evaluation project’s second and third years will be selected by representatives from local government, religious and In response to government’s request for effective community leaders, and community members taking approaches to working in con ict-affected communities, into consideration: the presence of engaged community t h e C AC S P r o j e c t wa s d e s i g n e d a s a l e a r n i n g leaders, diversity within the community, actual or activity. Opportunities to share experiences, challenges potential support received, existing community activities, and lessons have been created at multiple levels and and proximity to the initial nine communities. for all stakeholders. At the local level, the community par ticipator y processes enable all stakeholders 5. PPF modality in communities, sub-districts and municipalities, and provinces to discuss various aspects of the project and The inclusion of nancing for small grants to civil subprojects, thus ensuring the applications of lessons society organizations and networks responds to the learned from operations to improve local and provincial studies’ recommendations that assistance be targeted planning. Local technical specialists share their to particularly vulnerable groups, knowledge be gained expertise by participating in the appraisal and approval and shared across communities, sub-districts and provinc- of block grant and PPF proposals. The project advisory es, and information dissemination be improved. and steering committees provide forums for representatives This approach also recognizes the important role but from government agencies, the private sector, and limited capacity of civil society organizations and their civil society organizations to discuss relevant policies, networks in the southern provinces and seeks to build par tner ships and implementation progress and capacity. impediments and lessons. A series of local, national and international consultations allow par ticipants to Eligible civil society organizations were identi ed process anddisseminate lessons more broadly. during the compilation of a database of those active in the southern provinces. Extensive outreach efforts This learning is supported by a monitoring and evaluation were then targeted to these groups to encourage their (M&E) system designed to track implementation participation. progress and assess impact. Indicators, where appropriate, are disaggregated by gender and religion. 6. Capacity-building The lack of experience and capacity of organizations July 2010 and people in the southern provinces was identi ed as a signi cant constraint to project effectiveness. In For more information on the project, contact: response, project design includes signi cant Pamornrat Tansanguanwong capacitybuilding– through targeted training, participation in ptansanguanwong@worldbank.org project processes, study tours, and workshops – for Poonyanuch Chockanapitaksa par ticipating community members, civil society pchockanapitaksa@worldbank.org organizations,and local government of cials. Tel: +662 686-8300 KM Notes are produced under SPF Grant TF094106. 6 Knowledge Management Note Knowledge Management Note Series No. Title 1. The In uence of Con ict Research on the Design of the Piloting Community Approaches in Con ict Situation Project 2. Gender and Development in Thailand’s Con ict Areas 3. Youth-focused Community Driven Development: Results and Lessons Learned 4. Creating “Space” for Interaction: Description of CACS Project Operations 5. CACS Project: Monitoring and Evaluation 6. Community Driven Development: Findings and Applied Learning 7. Peace-building Partnership Fund: Findings and Applied Learning 8. Practical Lessons for Improving Livelihoods Opportunities in Con ict Contexts 9. Facilitating Community Driven Development in Con ict-Affected Deep South 10. Access to Finance: The Case of Muslim Minority in Southern Thailand 11. Deep South Incident Database: Context, Development, Applications and Impact 7 World Bank Thailand 30th Floor, Siam Piwat Tower, 989 Rama 1 Road Pathumwan, Bangkok 10330 Tel: +66 2686 8300 Email: thailand@worldbank.org http://www.worldbank.org/thailand Supported by