* l 24671 THE WORLD BANK August 2001 L3VenFa a !7{-t r NE K A REPORT FROM THE LATIN AMERICAN AND CARIBBEAN SOCIAI DEVELOPMENT UNIT ! .wo1db .fsdiat .. ,.3 lrr .g els of educational J ^ achievement, less access to health and other social services, and greater obsta- cles in accessing ' basic institutions, '.,;/;''' ' _ 0 5- 1 = s , '. ..,j including the justice - | .*Iw <& ,.ea^~<' system. These findings mr,}', ,-Y'' t9F " provide a context for understanding the work that we, in the LAC Region of - . o_ .- n the Bank, are under- - taking as part of our outreach to indige- - -- - X .~ = = - ~ nous peoples and 7 -1 . t; - -. . - ^- peoples of African -.4 ST =3 v _ -;-.descent in our - IN - - iP E regional poverty alleviation and 4 social development ; programs. Our aim is to support our r borrowers in active z meastires to con- A - front the issues of 1 S 1 11 1 . * * 1 * poverty and social The Challenge of Inclusion in the Latin exclusion faced by the large populationis America and Caribbean Region of indigenous and African descent in the Region. K n his 1997 Annual Address to the ty alleviation is discrimination against Some of the steps we have taken so far Board of Governors, World Bank certain ethnic, racial, and social groups. are: President James D. Wolfensohn noted Social and human development specialists * We have increased the number of our the great disparities between rich and from the Bank have helped to highlight regional social development staff who poor that exist in many of the coun- the discrimination faced by the region's have knowledge about and experience tries the World Bank serves. "In too estimated 40 million indigenous people, in working with indigenous and Afro- many countries," he stated, "the poorest and the problems they encounter in gain- Latin and Caribbean organizations and 10 percent of the population has less than ing access to education, health care, communities. Throughout the 1 990s, 1 percent of the income, while the richest potable water, collective land titles, agri- we increased the number of specialists 20 percent enjoys over half. In too many cultural credit, and other basic services. on indigenous issues working at our countries, children are impaired from The challenge of poverty reduction headquarters in Washington and work- birth because of malnutrition, inadequate and human development facing peoples ing as civil society or social develop- health care, and little or no access to and communities of African descent has ment specialists in our resident mis- early childhood development programs. only recently begun to receive serious sions. By diversifying our staff, we In too many countries, ethnic minorities attention in the region. Data show that have increased our ability to respond face discrimination and fear for their lives populations of African descent constitute to the needs of borrower countries and at the hands of ethnic majorities." a large portion of the population living in ensured that the special needs of these In the Latin America and Caribbean poverty within LAC countries and that ethnic and racial groups-including region (LCR) a primary obstacle to pover- their poverty is associated with lower lev- indigenous and Afro-Latin and THE WORLD BANK 2 LaVentana Caribbean women-are included in * We have invested heavily in capacity ment portfolio, particularly in the areas our Country Assistance Strategies, ana- strengthening of indigenous organiza- of education, health, social protection, lytical work, and investment lending. tions and communities. We financed the environment, and rural develop- * We continue to promote analytical these early capacity-strengthening pro- ment, to identify other opportunities work on the social and economic situa- grams-which so far have been imple- for increasing the participation of tions of indigenous and Afro-Latin and mented in 10 of our borrower coun- indigenous and Afro-Latin and Caribbean populations. Two years ago, tries-with grants Caribbean our LCR Social Development Team, provided by a organizations in in collaboration with our Poverty regional Institutional In the Bank-financed Reduction and Economic Management Development Fund operations. Department, sponsored a special (IDF) and a Lat n America and . We cooperate workshop on Poverty and Social Swedish govern- . . with other inter- Exclusion in the LCR. We collaborat- ment trust fund. Cari bb ean region national agencies ed with the Inter-American Develop- * We have worked to increase the ment Bank and the Colombian with our borrow- VLCR1) a primary effectiveness of National Statistical Department ers in preparing O le nOv rt our regional work (DANE) in sponsoring a technical investment opera- Mto povertY on behalf of these workshop titled "Todos Contamos" tions that target alleviation is racial and ethnic ("Everyone Counts") in Cartagena, indigenous and groups. For a Colombia. The workshop allowed Afro-Latin popula- discrimination number of years, demographers, government census tions and in tailor- we have met regu- personnel, and indigenous and Afro- ing interventions against certain larly with an Inter- Latin and Caribbean civil society to their specific h I Agency Task Force organizations to exchange informa- social, economic, ethnic, racial, an on Indigenous tion on how best to incorporate ques- and cultural needs. . l S Peoples composed tions about race and ethnicity into the * We are reviewing s ci a g rou u p s. of the Inter- national censuses in the region. our regional invest- American PARTICIPATION IN DEVELOPMENT PLANNING: tions. The objective of the program is to work with indigenous organizations and Strengthening Afro-Latinz and national governments to help indigenous groups improve their capacity for identi- fying needs, selecting development prior- Indigenous O rganization Sities, and formulating strategies and pro- posals that could be implemented using 41~ ince the World Bank has International Development Agency their own resources and those from * been promoting participa- and working in collaboration with the donor agencies. Each country's capacity- tory approaches to devel- Hemispheric Fund for the Development building program has been designed pri- -- opment decision making of Indigenous Peoples of Latin America marily by the indigenous peoples them- and project preparation (Fondo Indigena), established an Indi- selves, and addresses technical aspects and implementation, it genous Capacity-Building Program for such as participatory diagnostics, plan- has learned that effective participation Latin American indigenous organiza- ning, and project administration. To requires special skills that are not evenly distributed among different stakehold- ers. Marginalized and historically List of Capacity-Building Programs excluded groups such as indigenous peo- Completed (as of July 2001): ples and Afro-Latin Americans are often 1. Chile: "Indigenous Universities" lacking in such skills. The importance of 2. Bolivia: "Learning by Doing" in Three Regions of Bolivia mobilizing and strengthening these peo- 3. Bolivia: Strengthening the Fondo Indigena ples' civil society and community organ- 4. Mexico: "Peasant-to-Peasant Training" Among Forestry Communities 5. Ecuador: The Participatory Training Experience izations cannot be overstated. To be able 6. Nicaragua: Indigenous Peoples Training to participate effectively in national 7. Honduras: Strengthening Indigenous and Afro-Honduran Organizations decision making and development 8. Argentina: Indigenous Capacity Building processes, the negotiation, evaluation, 9. Mexico: Training Program for the Development of Indigenous Forestry Communities (second and mnanagement skills of these groups 1.phase) as. Mexico: Strengthening of Indigenous Women must be bolstered. 11. Mexico: Training Project for the Lacandona Forest Chiapas In the mid-1990s, the LCR Environ- 12. Panama: Institutional Strengthening and Sustainable Development of Indigenous Peoples ment Unit, using grant resources from a regional Institutional Development Fund Under implementation (as of July 2001): (IDF) and a Trust Fund of the Swedish 13. Belize: Institutional Strengthening of the Belize Indigenous Training Institute THE WORLD BANK 3 LaVentana peoples and held at the Inter-American seeks areas Development Bank in June 2001. where mutual We are only at the beginning of this learning and journey. We are pleased, however, to see collaboration that the need for more comprehensive iJ can take place. action in this area is recognized by a In June 2000, number of our borrower governments we collaborated and by numerous civil society organiza- with the Inter- tions in the region. This was reflected, American inter alia, in the important Declaration . Dialogue, the and Plan of Action made at the Regional e < -- Ba <~ -Inter-American Preparatory Conference for the World Development Conference Against Racism, Racial I s Z i Bank, and the Discrimination, Xenop hobia and Other Inter-American Forms of Intolerance held in Santiago, Foundation to Chile, from December 5 to 7, 2000. host the first These documents represent an important meeting of the reference point for our work with our Inter-Agency borrower governments, with civil society Development Bank, International Consultation on Race and Poverty. organizations, and with partner develop- Labor Organization, International This group, which addresses the needs ment agencies concerned with these Fund for Agricultural Development, of peoples of African descent living in issues in the years ahead. l and Hemispheric Indigenous Peoples Latin America and the Caribbean, has Fund in La Paz, Bolivia. The Inter- now expanded to include other multi- David de Ferranti Agency Task Force exchanges experi- lateral development agencies and pri- Vice Presidenit ences and shares lessons concerning vate foundations. A second meeting of Latin Amiierica and Caribbean Region development activities for indigenous the Inter-Agency Consultation was The World Bank River Valley natural resources among the Afro-Latin Communities, comminities of the region. was imple- More recently, the LCR Social Devel- mented in col- opment Unit and the Brazil Country laboration with Management Unit successfullyr prepared a i the Program US$350,000 International Development for Belize, and Fund (IDF) grant for a project titled included three Improvinig the Recognitioni anid Lanid communities Regularization of Brazilian Quilombola | * ~ t t1^0 . >. from the Belize (Slave Descendanit) Communities. The River Valley. project will strengthen the institutional .,jj hi~ ' * b The objective capacity of the Palmares Foundation ,r~' . -' 4 ;of this project (FCP), a branch of Brazil's Ministry of was to provide Culture, to become more effective in its f,. > the communi- role as the lead government agency for - . w ~ S ties of the the recognition and land regularization of Belize River Brazilian Quilombola communities. To Valley an fulfill this objective, the project includes opportunity to the following components: (1) Improving improve the the Legal Framework for Recognition sustainable and Land Regularization; (2) Institutional date, 12 projects have been completed management of their natural resources, Assessment and Strengthening of FCP and another one is currently under and to strengthen their technical and and Partnership; (3) Establishing a implementation. managerial capacities to improve their National Database on Identified and To- The LCR Social Development Unit, in socio-economic welfare by providing Be-Identified Quilombola Communities in collaboration with environmental col- training in natural resource management, Brazil; and (4) Capacity-building and leagues and resources from a Dutch ecotourism, and leadership and organi- Pilot Land Regularizations. P Trust Fund grant, has financed two zational skills. The second project, a capacity-strengthening projects for Afro- Management Plan for Rio Napi in the Jeanette Sutherland Latin organizations and communities in Pacific Coast region of Colombia, had as Departnment of Environmzentall) and the conservation area. The first project, its objective the strengthening of man- Socially Suistainable Development titled Sustainable Development of Belize agement skills and improving the use of Latin America and Caribbean Region THE WORLD BANK 4 LaVentana DEVELOPMENT WITH IDENTITY: - cOWfoW Indigenous and Afro-Ecuadorian Peoples Development Project cuador's rural poverty index- have evolved into the largest social move- 9 es show that 85 percent of ment in the country and also serve as the indigenous population social capital networks and coordinate -, and 88 percent of the Afro- local development projects. Ecuadorian population live The project was designed along criteria below the poverty line, a reflecting the cultural and ethnic makeup sign that they lack access to drinking of Ecuador. Regions where indigenous or water, electricity, sanitation. In other Afro-Ecuadorian peoples represent more of Ecuador and the report of external words, poverty and ethnicity are closely than 50 percent of the population were auditors endorsed by the Government's related. designated as the beneficiaries. The project Office of the Controller-General indicate The Indigenous and Afro-Ecuadorian components were established through par- that PRODEPINE is being managed effi- Peoples Development Project (PRODE- ticipatory evaluations and consultations. ciently and is meeting its established PINE), now in its third year, is the first From the start, it was determined that so- objectives and targets. Some of the proj- World Bank operation in Latin America called second- and third-degree organiza- ect's achievements as of late 2000 are as designed solely for the benefit of indige- tions would serve as executing entities, by follows: nous and Afro-Ecuadorian inhabitants, virtue of such characteristics as the scope * Regularization of land tenure. Title having as a target population the of their work within their microregion, to 22,700 hectares has been passed 815,000 persons living in rural areas. their experience with development proj- to grassroots organizations, and Moreover, this was Ecuador's first loan ects, and their legitimacy as recognized 68,000 additional hectares are being specifically tailored for the purpose of political representatives of ethnic groups processed. Forty paralegals have been channeling resources directly to benefici- (nationalities and peoples). trained. ary communities, through indigenous The project now has a central office in * Capacity building for peoples and and Afro-Ecuadorian executing agencies, Quito and seven regional coordination nationalities. Scholarships have been with minimal government participation. offices (in Sierra, Costa, and Amazonia). awarded to 1,440 students working The project affords indigenous and Afro- These offices apply a technically oriented toward bachelor's degrees and 888 Ecuadorian peoples a unique opportunity management approach; i.e., they focus on graduates studying for master's to translate their vision of development translating demands expressed in many degrees. PRODEPINE has cooperation with identity into practice, using the pro- political contexts into operations. There agreements with 27 higher education ject's technical and financial assistance to is no precedent in Ecuador for this man- centers. In addition, 77 people have augment their social and cultural capital. agement approach, and many lessons taken intensive courses in such fields PRODEPINE is a response to the have been learned in the course of project as irrigation, soil conservation, and long-standing demands of indigenous implementation. agroforestry, and 496 young men and and Afro-Ecuadorian peoples with It is important to underscore the proj- women have worked as interns in the respect to lands and territories and their ect's participatory nature. Thus, the proj- agro-ecology program. desire to strengthen their identity as ect has developed a methodology for * Rural investment. Agreement to sup- peoples and nationalities, their invest- implementing participatory local develop- port participatory planning and proj- ments in social infrastructure and pro- ment plans that enables communities, ect development was followed by duction subprojects, and their support through broad popular representation, approval of financing for 459 invest- for the Ecuadorian National Council of to agree on the priorities they wish to ment projects at a total cost of more Indigenous Nationalities and Peoples address. Among other things, the process than US$9 million. All these opera- (CODENPE). The project's total cost is has focused on ensuring: (1) transparent tions are managed by indigenous and US$50 million (World Bank, US$25 mil- consultations to determine what activities Afro-Ecuadorian organizations. lion; International Fund for Agricultural should be undertaken, (2) greater com- In order to strengthen CODENPE, Development [IFADI, US$15 million; munity control during implementation, support is being provided for the prepa- Government of Ecuador and beneficiary and (3) a shift from a vertical approach ration of strategic plans to assist peoples communities, US$10 million). to one respecting the spoken and unspo- and nationalities; efforts to ensure formal Although Ecuador's indigenous organi- ken demands of community members. recognition of collective rights; the for- zations represent the poorest and histori- The participatory approach to planning mulation of legislation and policies to cally most excluded and marginalized pop- has been a critical factor in altering the benefit indigenous and Afro-Ecuadorian ulations, they have become much better implementation method. Enabling indige- peoples; and development of proposals to organized since the 1970s, when the gov- nous and Afro-Ecuadorian organizations finance other projects. 0 ernment recognized their right of freedom to manage subprojects has strengthened of association. As a result, there are now social capital in an environment where Pilar Larreamendy and Jorge Uquillas 2,325 ethnic and/or class-oriented organi- horizontal relationships predominate. Department of Environmentally and zations. Over time, they have become a The mid-term review conducted by the Socially Sustainable Development growing force in the political arena and World Bank, IFAD, and the Government Latin America and Caribbean Region THE WORLD BANK 5 LaVentana COLLECTIVE LAND TITLING: the Americas and a great diversity of natu- ral habitats and biological resources. Drawing upon regulations introduced in Protecting the A ssets 1995 for the implementation of Law 70 and new agrarian legislation relating to of In igenous Peoples and indigenous reserves, the Colombian National Institute of Colonization and a:fro-.L_atin Communities Agrarian Reform (INCORA) was able under the $US3.25 million World Bank- L and has a special significance de Origen (TCOs, or Lands of the Origi- financed segment of the program to title for both indigenous peoples nal Communities). more than 2.3 million hectares of land and rural communities com- The World Bank and other multilateral identified as belonging to Afro-Latin com- posed of persons of African and bilateral development agencies are munities and nearly 325,000 hectares of descent in Latin America. Not playing an important role in helping South land containing indigenous reserves. Such only is land the basis of eco- American governments to implement these land regularization benefited 497 commu- nomic survival and the sustainable devel- new laws as part of recent land administra- nities of African descent and led to the con- opment of these peoples and communities, tion and natural resource management stitution and amplification of 56 indige- but it is also a symbolic link with their projects and programs. One of the most nous reserves. ancestors and a material expression of their far-reaching of these projects is the Brazil- Some of the lessons that the World identities. Therefore, some of the major ian Project for the Integrated Protection of Bank and its government counterparts and demands of both the growing indigenous Indigenous Lands and Populations of the multilateral and bilateral partners have and the Afro-Latin social movements are Legal Amazon (PPTAL), which is part of learned from such finanicinig are that: for governments to recognize their ances- the G-7-inspired Pilot Program to Con- 1. The active participation of indigenous tral territories and to provide them with serve the Brazilian Rain Forest. The PPTAL and Afro-Latin organizations and commu- collective land titles and defense in the pro- is a US$22 million project financed jointly nities is fundamental to the efficient and tection and use of their natural resources. by the Rain Forest Trust Fund, the German cost-effective implementation of such col- Fortunately, over the past decade, Agency for Financial Cooperation (KfW), lective land titling programs national governments, particularly in and the Brazilian government, with the 2. Collective land titling must be South America, have come to recognize assistance of the World Bank, the German the significance of these land claims of Development Agency (GTZ), and UNDP. indigenous peoples and Afro-Latin com- Working in collaboration with a Technical munities for national and regional devel- Secretariat in Brazil's National Indian opment and have incorporated articles Foundation (FUNAI) and an Advisory concerning such rights into their national Committee composed of representatives constitutions and new agrarian legislation. of the federal government and indigenous - Among the most important of these new organizations and communities, the project I initiatives in the legal area are the reforms expects to regularize 149 Indigenous Areas recognizing indigenous and Afro-Latin comprising more than 44 million hectares land rights in the constitutions of Brazil of land before closing in December 2002 (1988), Colombia (1991), and Ecuador (see table 1 with status of land regulariza- (1998), and several new laws. Examples of tion under the PPTAL as of May 2000). accompanied by natural resources planning these new laws are the Law 70 in Colom- Another experience, financed jointly by at the local level that takes into account the bia (1993), which provides for the collec- the World Bank and the Inter-American environmental knowledge and ancestral tive land titling of communities of African Development Bank, is the Colombian wisdom of the indigenous peoples and descent along the Pacific Coast, and Natural Resources Management Program Afro-Latin comniunities Bolivia's "Law Instituto Nacional de (PMRN). This program is administered by 3. Local governance and regional con- Reforma Agraria (INRA)" (1996), which the Colombian Environment Ministry and flict resolution and management measures recognizes so-called Tierras Comunitarias contains special components for the collec- often need to be introduced alongside such tive titling of both collective land titling programs, especially TABLE 1. indigenous reserves where there are inter-ethnic tensions and Legal Status of Indigenous Lands Regularized and lands belonging competition over lands and natural under PPTAL in Brazil (May 2000) to communities of resources STATUS NO. OF INDIGENOUS LANDS AREA (HECTARES) African descent in 4. Such collective land titling is only To be identified 29 3,553,392 the Pacific Coast the first step (albeit a critical and neces- Identification in process 36 2,337,75S region. The Pacific sary one) in the wider sustainable human Identified 16 3,063,575 Coast is a unique development of these peoples and their Delimited 14 6,066,169 geographic and cul- communities. I Under Demarcation 16 8,924,350 tural area, because Demarcated 1 144,000 it has one of the Shelton Davis Officially Approved 25 15,471,356 largest concentra- Sector Manager for Social Development (homologated) _ ____ tions of peoples of Departmizenzt of Environmentallv anid Registered 12 4,592,987 indigenous and Socially Sustainable Developmiienit Total __149 44,153,584 African descent in Latin Amnerica anzd Caribbean Region THE WORLD BANK 6 LaVentana DATA COLLECTION AND ANALYSIS: The "TODOS CONTAMOS" 1 Workshop , -- vailability of timely and suses. The Colombian National Statistical A reliable information on Department (DANE) was enthusiastic _ income distribution and about sharing its experience with the living conditions of the work its had already done on including population is essential race and ethnicity in its national census, m in formulating and but at the same time wanted to improve designing social programs aimed at reduc- its capacity and expertise in this area. In ing poverty. To understand the profile of November 2000 the IDB, which is also i the poor households and assess how gov- committed to improving its research and mitment to include new variables and ermnent policies affect their welfare, it is analytical tools in poverty work, and questions in their national census' necessary to have extensive, detailed, and DANE co-sponsored with the World questionnaires. The representative precise knowledge of the characteristics Bank a technical workshop in Cartagena, from Argentina's census bureau and behavior of these households in terms Colombia. The workshop was called agreed to gather information on Afro- of income generation, consumption, loca- "Todos Contamos," which may be trans- Argentines for this year's census, and tion, and access to social services. lated into English as "Everyone Counts" the Chilean representative indicated Recognizing the urgent need to or "Counting Everyone." the Chilean census bureau will consid- improve the quality and coverage of The purpose of the workshop was to er the inclusion of categories targeting household surveys as part of poverty raise awareness among demographers, the Roma populations. information strategy, the World Bank government census personnel, and indige- * There was general agreement that there joined with the Inter-American Develop- nous and Afro-Latin and Caribbean civil is a key role that NGOs and other civil ment Bank (IDB) and the society organizations about society organizations can play in United Nations Economic the need to include ques- increasing the awareness among Afro- Commission for Latin It has become clear tions on race and ethnicity Latin and indigenous groups on the America and the that there is a need in national censuses, and importance of census data. Caribbean (ECLAC) in . to exchange ideas on how 1995 to prepare a regional to improve the to best incorporate these The results of this technical workshop program of technical assis- data-collecting tools to types of questions into the will soon be published. They are expect- tance. This program was more accurately reflect national censuses of the ed to be useful in designing new method- intended to strengthen the region. The two-day work- ological approaches for including, when institutional capacity of the poverty-stricken shop covered three major relevant, questions concerning race and statistical agencies of LCR states of historically themes that were discussed ethnicity in future Household Living to carry out household excluded in in three working groups: Standards Surveys carried out with the surveys. Specifically, the groups (1) concepts and method- assistance of the Bank, partners like the project aimed to help the Latin America and the ologies related to determin- IDB, and national statistical and social countries (1) improve the Caribbean. ing ethnicity in national planning agencies. design and implementation censuses; (2) variables to The need to have more reliable of household surveys, assess the socio-economic demographic and socio-economic data thereby producing high-quality data with status of ethnic and/or racial groups; and on all groups within Latin American wider coverage and (2) promote wider use (3) the participation of community groups and Caribbean society is important in of improved data for policy analysis and in the design and implementation of the order to design more effective invest- project design. methodologies. ment operations and provide develop- However, as the Bank expands its ment services to racial, ethnic, and work on poverty reduction strategies and On the last day of the Cartagena other vulnerable groups. There is there- increases its outreach to civil society, it workshop, there were agreements on at fore an urgent need for better census has become clear that there is a need to least the following: and statistical data, not just to under- improve the data-collecting tools to more * Representatives of indigenous and stand the scope of the poverty, race, and accurately reflect the poverty-stricken Afro-Latin groups should be included ethnicity nexus but also to design oper- states of historically excluded groups in in all phases of the census process, ations, in collaboration with borrower Latin America and the Caribbean. After including design, implementation, countries, that will alleviate poverty and several meetings with nongovernmental and data analysis. There was a sug- bring an end to social discrimination organizations (NGOs) representing the gestion to create national committees and marginalization. I Afro-Latin communities, the LCR vice composed of representatives from president sent out letters to the heads of national census offices, Afro-Latin Jeanette Sutherland statistical offices in selected countries people, and indigenous communities Department of Environmentally and encouraging them to include questions on and organizations. Socially Sustainable Development race and ethnicity in their national cen- * Some of the countries made a com- Latin America and Caribbean Region