EXPANDING COMMUNITY APPROACHES IN SOUTHERN THAILAND | KM NOTE 7 Peace-building Partnership Fund: Findings and Applied Learning Background The secessionist movement in Thailand’s southernmost The Thai government has invested substantial resources, provinces is one of the oldest and deadliest sub-national both civilian and military, in the con ict-affected southern con icts in Southeast Asia. After more than a decade of provinces. Initial development investments consisted dormancy, violence escalated in the early 2000s. The primarily of injecting capital through large infrastructure ethnic separatist insurgency has since claimed over 6,000 projects to improve logistics and integrate the region’s local lives, injured almost 11,000 people, and continues to economy into the nation. Since 2005, the Government has negatively impact the socio-economic and mental health focused its efforts towards winning the “hearts and minds” of all residents in the area. Trust and con dence among of the local population through village development and people and institutions at all levels of society have been community-level livelihood activities, as well as victims’ eroded. compensation payments, education assistance, and skills/- capacity development programs. These additional An estimated 80 percent of southern Thailand’s1 population investments have stressed the capacities of local level of two million is ethnic Malay and Muslim. The region, institutions. although not Thailand’s poorest, ranks below the national average on several key development indicators, particularly education, and is poorer than the immediately neighboring, predominantly Buddhist provinces of Thailand. This long-standing con ict derives primarily from limited political voice, perceived economic discrimination, and the struggle of some Malay Muslims to maintain a distinct ethnic-religious 1 The conflict-affected region comprises the three southernmost identity and local autonomy. provinces of Pattani, Yala and Narathiwat and four districts of neighboring Songkla province. 1 Expanding Community Approaches in Southern Thailand The civil society sector in southern Thailand is relatively This note is one in a series of brief, operationally relevant weak compared with other areas of the country, but since pieces meant to inform a broad range of stakeholders – the resurgence of violence it has emerged as an important including government, civil society and international contributor to peace-building efforts. Fractured communities, institutions - about the design, implementation and results mistrust between local citizens and state of cials, and a of the project as partnering organizations strive to adapt and lack of ‘space’ to advocate peacefully for reforms to adopt the approaches piloted and inform the government’s government policies offer opportunities for engagement with local development efforts. Based on evidence from several civil society. sources, including project progress reports, supervision missions, the project’s database, and a qualitative evaluation A still small but increasing number of civil society conducted in late 2012, this note presents an overview of organizations in the south are active in delivering services, emerging ndings and lessons learned from the rst phase particularly to underserved and vulnerable groups; strengthening of the project’s Peace-Building Partnership Fund grant community resilience through improving local leadership component, and their in uence on the follow-on Expanding mechanisms; and networking and high-level advocacy. Community Approaches in Con ict Situations (ECACS) project currently being implemented.2 Continued weaknesses, including limited capacity, lack of funding, poor coordination, incomplete strategies, combined with public ignorance of the sector, however, impede its potential. CACS Project – Peace-building Partnership Fund In response to a request by the Government, the World Bank mobilized grant nancing through the State and Peace-Building The con ict analysis that informed the design of the Peace- Fund to rst study and then pilot ways to deliver local assistance building Partnership Fund (and other project components) in Thailand’s southernmost provinces. The Piloting Community recognized the important potential contribution of civil society to Approaches in Con ict Situations (CACS) Project, implemented long-term peace in the southern provinces, but also the limited from 2009 to 2013 by the Local Development Institute (LDI), strength of the sector. The study revealed that the capacity of sought to develop culturally appropriate approaches to local local civil society organizations and their networks restricts their development that created opportunities for increased interaction support for local development activities, engagement in policy within and among con ict-affected communities and between dialogue, and the promotion of peace in southern Thailand. To communities and the state apparatus through collective action help achieve the overall project goal of building ‘space’ for to strengthen the foundation for peace. To achieve this goal, the increased interaction, the PPF sought to strengthen the capacity project nanced grants through two facilities or ‘windows’. Block and extend the reach of civil society organizations (CSOs) in the grants to villages funded local development activities identi ed con ict-affected areas. through a participatory, community-driven development process. This area-based approach was complemented by issue-focused The PPF assumes that a strengthened civil society is likely to Peace-building Partnership (PPF) grants to civil society contribute to peace-building through two channels: (i) instilling a organizations and their networks for innovative approaches and sense of community by working together to improve well-being partnerships that promoted trust, peace and development. through support to local-level initiatives such as livelihoods activities, the formation of savings groups, and the management of public goods; and (ii) stimulating participation in discussions around key and sensitive policy issues, such as decentralization. The Peace-building Partnership Fund used a multi-step process to award grants (see Figure 1). 2 The findings of the project’s Community Development Grant component are covered in a separate, complementary knowledge management note. 2 Knowledge Management Note Figure 1: PPF Grant-making Process Information and Proposal Proposal Proposal Institutional Preparation Approval Screening Appraisal Preparation and Submission To help reach targeted organizations3, the project created a database of eligible and active organizations in the southern provinces to which it then directed its outreach efforts using a variety of media. Interested CSOs and their networks (CSNs) prepared and submitted proposals to the local project of ce. Proposals were then screened by the project’s provincial coordinators for alignment with the Fund’s objectives and adherence to its principles of simplicity, broad-based participation and group decision-making and transparency. Project Reviewing Committees, comprised of LDI management staff and a network of experts and advisors in the southern provinces, appraised proposals for the participation of bene ciaries, inclusivity, feasibility, community contribution, transparency and sustainability, and voted to approve select proposals. In addition to grants, LDI through the PPF also provided Emerging Findings training and implementation suppor t to civil society organizations, primarily in operations and project management, as well as intensive consultation to improve the ef ciency of Overall, the rst phase of the PPF through its support to civil working processes and address obstacles. Extensive society organizations and networks made a signi cant initial knowledge management activities promoted learning and the contribution to the process of strengthening the capacity of exchange of experiences and lessons. local CSOs to plan and implement a range of peace-building activities, including the delivery of con ict-related social Implementation over the three-year period adjusted to t the services (e.g., trauma counseling, legal aid). The project context and early experience. During the rst 15 months, the succeeded in enhancing public awareness in the south of PPF focused on the distribution of grants to a diverse set of the importance of civil society and of the nature and costs recipients spread across the target areas as described below. of the con ict in other areas of the country. Civil society At mid-term, recognizing the limitations of such an approach networks demonstrated promising potential to become to reaching project objectives, the strategy shifted from effective mechanisms for expressing local views and grievances supporting many small civil society groups to nancing a more in a non-violent manner, and to serve as platforms for exploring select set and focused efforts and budget on aiding networks governance issues and options for eventually resolving the of civil society organizations with greater potential for affecting con ict (e.g., decentralization, education and language, rights, change. women and peace, and injustice). 3 Organizations eligible for PPF grants could be either registered or unregistered, but had to have at least ten persons, a proven record of good management, and at least one year of experience implementing development activities in the target area. 3 Expanding Community Approaches in Southern Thailand Table 1: Diversity of grant activities FOCUS AREA TARGET GROUP TOTAL Children/ Women/ CSO/CBO Community Youth Widows members Health, drug rehabilitation 2 0 0 0 2 Education 4 0 0 0 4 Livelihoods 1 3 0 0 4 Savings groups 0 0 0 1 1 Natural resource mgmt 2 0 1 1 4 Networking 1 1 2 0 4 Leadership development 0 0 1 0 1 Media 1 1 0 0 2 Local research 1 0 0 0 1 Community strengthening, 2 0 0 0 2 faith and tradition TOTAL 14 (56%) 5 (20%) 4 (16%) 2 (8%) 25 PPF Activities Between 2009 and 2013, the PPF provided a total of about Civil society organization grants. Grants to small and US$275,000 to 25 civil society projects aimed at disparate civil society organizations, many of whom had not strengthening local grantees and promoting interaction and previously received external suppor t, provided them trust, particularly between citizens and the state. These opportunities to expand their bene ciaries and develop their grants were widely disbursed across a diverse set of capacities. The number and variety of grants complicates organizations bene ting differing target groups (see Table 1). aggregating or summarizing the outcomes of the diverse set Issues ranged from initiating networks to increasing public of activities implemented. Box 1 describes several examples communication and information, promotion of local culture of projects seeking to advance peace by bringing people and education to natural resource management. Grant together through different activities. activities involved 114 groups covering 98 communities across 92 sub-districts in the targeted areas. All were aimed at helping lay a foundation upon which peace could be built. In addition to these grants, the project also developed and strengthened the capabilities of 3,535 key local leaders (55% of whom were women) through training and learning forums to enhance their roles in the future development of the region. 4 Knowledge Management Note Box 1: CSO grants brought people together ACADEMIC CENTER FOR CHILDREN DEVELOPMENT AND PROMOTION AFFECTED BY THE UNREST BALUKA ISLAMIC SAVINGS GROUP OF YOUTH NETWORK ON FOREST (TADIKA SCHOOL) PROMOTION FOR HIRE PURCHASE CONSERVATION Tadika schools, run by and located in The Savings Group of Ban Baluka, With an area of about 5,120 hectares, mosques, are found throughout the founded in 2002 with 8 members, grew the Budoh Sungei National Park stretches three southern provinces. Volunteers to almost 200 members in 2012. As across the three southernmost provinces. (often women), teach Islamic religion savings accumulated, the group used To protect the rich eco-system that and Malay to primar y school-age the joint capital to purchase consumer serves as a source of livelihood for children. The goal of the PPF- nanced goods to rent them to members. In line neighboring communities, the Raks Pa project, implemented by an NGO (Bunga with Islamic principles, pro ts were Budoh Youth Network, comprised of four Raya) comprised of 20 young with realized by marking up the prices of youth conservation clubs, spans Muslim diverse educational backgrounds was goods loaned (not interest charges), and Buddhist communities. Two PPF to integrate the teaching of Islam with and distributed as dividends to grants focused on developing and general knowledge subjects using members and vulnerable people in the strengthening the network, and opening improved teaching methods and community. The PPF grant was used to public space for Muslim children and learning activities to expand students’ further develop the group’s plans to non-Muslim youth to meet, work and perceptions and world views - important evolve into a Community Credit Union, learn together about the common for and peace-building. The Bunga Raya share widely their experiences with purpose of natural resource conservation. team gained the cooperation and interest groups throughout the The exposure and activities expanded support of parents, local leaders, and sub-district, and learn from exposure their interactions. Buddhist monks and sub-district of cials. The successes of trips to and exchanges with similar Islamic imams both supported the the rst round of activities inspired groups in other areas. youth activities. Partnering organizations expansion to other communities. provided valued advice and inputs. An impor tant bene t of the grant process to project capacity of local level civil society organizations, many of implementation and the achievement of results was that it which were newly formed. This learning was critically allowed LDI to learn about relevant issues in the con ict important to formulating a broader strategy for engaging with areas, identify and engage with local leaders, and assess the the sector. 5 Expanding Community Approaches in Southern Thailand Civil society network grants Recognizing that it was more effective to advance the work of CSOs by building their institutional strength and relevance through support to networks of civil society organizations, the PPF guided and nanced the establishment, strategies, workplans and activities of select civil society networks – the Civil Society Council of Southernmost Thailand (CSCST), the Women’s Network of the Three Southern Provinces, the Youth Network and the Natural Resource Management Network - through intensive and continued engagement. As a result of the project, CSNs both provided support to their member organizations and communities, and also empowered local voices that increased the scope for collective advocacy for policy changes. The Civil Society Council offers a particularly compelling example of the important role such organizations can play in the peaceful development of the south (see Box 2). Box 2: Strengthening civil society through networking Founded in 2011 with 20 members - each recognized leaders of groups working on different issues (e.g. cultural identity, media, education, youth, women, legal recovery assistance, and natural resource management), the Civil Society Council of Southernmost Thailand has four main aims: (i) to enhance the capacity of People’s Organizations; (ii) to set a common direc- tion for problem solving in and the sustainable development of the con ict-affected area; (iii) to exchange knowledge and experience with and coordinate and support all membership organizations and networks; and (iv) create public space for people and organizations across the public and private sectors. Their strategies advocate policy change and the reduction of violence. The PPF provided two grants to the CSC. Activities focused on the sharing of experiences and lessons learned and capacity-building to enhance common strategies and public deliberation. Outputs included the production of a ‘social road map’ identifying council member organizations and their networks and partners, enhanced decision-making processes and more openly democratic discussions. The Civil Society Council seeks to increase the voices and power of people in the peace process. The opening up of public space has allowed local people to raise to the council their concerns and issues, particularly relating to the injustices incurred, and thus reducing distrust and the potential for violence. The council has articulated a clear vision and strategy for fostering cooperation, peace-building, learning and empowerment among civil society organizations in the region. The network is widely viewed as being open and neutral, and its activities have received recognition by the government, the security agency, SBPAC, NGOs and the media. Select CSC members have been appointed as representatives to committees investigating cases of human rights violations and injustice. Support to its membership has increased their capacity and skills to improve the prospects for moving forward in a collective, coordinated approach. Policy proposals on decentralization and peace-building developed through a series of consultative forums have been widely communicated and disseminated to the public. 6 Knowledge Management Note 7 Expanding Community Approaches in Southern Thailand Outcomes Initial results of the pilot phase of PPF support are beginning to emerge in three main areas: increased interaction, improved information and understanding, and enhanced voice. All are considered important pillars of the foundation for peace. 1. Increased interaction Through its nancing of civil society organizations and their networks, the PPF created space for increased interactions among multiple groups in the con ict-affected areas. The project supported creative and innovative ideas that brought together diverse groups, such as Muslim and Buddhist community members and students. 2. Promoted understanding The project’s attention to sharing experiences and learning Although such inter-communal tensions are ongoing and merit through informal working groups, information dissemination, attention in speci c areas, the main fracture behind the training activities, eld visits and larger forums enhanced con ict and nature of the violence is state-society relations. knowledge and understanding among a wide range of The PPF worked to improve relations between local government agencies and civil society organizations active government and communities with some evident success. in the southern provinces. These ‘spaces’ or opportunities The project provided opportunities for local government to learn through experience enhanced understanding among of cials with limited access to volatile areas to provide people, communities, civil society, government and other support to non-governmental organizations and communities development partners. in these areas, particularly for livelihood-related activities. All activities were implemented with the involvement of local Through the capacity-building program, par ticipating government entities, including the Southern Border Province organizations gained knowledge and skills in proposal writing Administrative Center. Of cials from the sub-district, district and administering projects themselves. Participants report and provincial of ces of line agencies (e.g., Health, enhanced management and implementation capacities. Agriculture, Industry and Interior (Community Development), Some organizations, as a result, were able to provide along with experts from academic and vocational education cross-support to others. facilities in the south, provided valued advice and inputs. 3. Enhanced voice and dialogue At the village level, the project helped foster partnerships PPF support to the establishment and operations of networks between formal and religious leaders and their organizations of civil society organizations with common interests working bene ting community members. in the south has effectively increased the voice and bargaining power of local CSOs and improved the quality of the dialogue on issues related to building peace. The newly created public space for the discussion of sensitive and critical issues and sharing of differences may well reduce the potential for con ict. This approach responds to demands of community leaders in the con ict areas to broaden political discussion, increase local engagement in the understanding of the scope for reform, and presents a viable channel for achieving changes through non-violent and constitutional means. 8 Knowledge Management Note Extending gains – Expanded Community Approaches in Conflict Situations Project Building on the experiences, accomplishments and lessons of the pilot phase, the Expanded Community Approaches in Con ict Situations Project currently being implemented continues to seek to strengthen civil society organizations and networks for building trust and peace. The new project deepens its support for the four networks bene ting from the pilot phase by focusing strategically and sustainably on building their capacities; and (ii) about 10 civil society organizations, half of which demonstrated potential during the pilot phase. All of these organizations are working on issues related to peace-building, addressing grievances of the local population, and demand for good governance. 9 Expanding Community Approaches in Southern Thailand For each of the four civil society networks, nancing of up to This note was prepared by Sarah Adam US$ 40,000 per year is provided on the basis of the strategic Knowledge Management Notes are produced under the plan developed during the CACS pilot phase. The new project State and Peace-building Fund (SPF) and Korean Trust also provides funding for the four networks to undertake Fund (KTF) “peace dialogue” events on key issues such as decentralization, education, role of women and peace, youth and peace, access For more information on the project, contact: to justice, transitional justice and reintegration of con ict-affected Pamornrat Tansanguanwong populations to enhance further the voice of civil society and ptansanguanwong@worldbank.org social accountability in the region and to raise awareness about Poonyanuch Chockanapitaksa these issues for an eventual transition process. In addition to pchockanapitaksa@worldbank.org the reviewing committee from the CACS pilot which comprises Tel: +662 686-8300 representatives from government, academia and civil society organizations, the project also continues to draw upon technical Sources/Further Information: specialists from various elds to provide guidance and Burke, Adam and Sirisambhand Gordon, draft 13 Jan 2013. coaching support to these organizations from the initial stage Peace-Building Partnership Fund Evaluation. of proposal review. The committee reviews grant proposals on Local Development Institute, CACS Operations Manual. the basis of project relevance with increased emphasis on Local Development Institute, Final Report – CACS – June 2013, peace and trust building, feasibility and institutional capacity. Bangkok: LDI. World Bank, 2011. Mid-Term Review Mission: Piloting Community Approaches in Con ict Situation in three southern Conclusion provinces of Thailand, Bangkok: World Bank. World Bank, draft October, 2014. Men and Male Youth in Con ict-affected Areas in Southern Thailand. The CACS experience demonstrated the appetite, capacity and space for meaningful and constructive engagement on peace-building issues by civil society and civilian government agencies. By strengthening the role and status of civil society organizations and networks in the south to plan and implement a range of peace-building activities and creating a neutral space for discussion of issues critical to the peace dialogue, the PPF made considerable progress in laying a foundation upon which the follow-on ECACS project is building. This sustained engagement with the civil society sector is one critical input to the peaceful resolution of the con ict. 10 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 11 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