EXPANDING COMMUNITY APPROACHES IN SOUTHERN THAILAND | KM NOTE 4 Creating “Space” for Interaction Description of CACS Project Operations Introduction This note describes brie y how the Piloting Community The con ict stems from various factors, key among them Approaches in Con ict Situation (CACS) Project currently are the following: lack of suf cient sensitivity towards Malay operates. As a learning activity, the project was designed ethnic and religious identity and language and limited political deliberately to accommodate adjustments in response to integration, including under-representation of Malay Muslims lessons emerging from implementation experience. This in local political and government structures. Relative note, the fourth in a series of brief operationally relevant economic deprivation as well as government policies and pieces meant to inform a broad range of stakeholders about approaches since 2004 contribute to the sense of injustice. the design, implementation, and results of the project, re ects operations at the end of the project’s rst year. In response to a request by the Royal Thai Government to learn from international experience with appropriate and effective approaches to working in con ict-affected areas, Conflict Context the World Bank mobilized grant nancing through its State and Peace-Building Fund to rst study and then pilot Secessionist movements in Thailand’s southernmost approaches to local development to help mitigate the provinces date back more than a century. Following decades con ict in Thailand’s southernmost provinces. of dormancy, a separatist insurgency re-emerged in early 2004. Over the past six years, killings and bombings have been daily occurrences – claiming the lives of over 4,000 people. 1 Expanding Community Approaches in Southern Thailand Project Objectives The rst phase of the two-phase project, conducted in Limited community participation in local development, lack of 2007-2008, was comprised of 1) a con ict study to responsiveness of investments to local needs, restricted understand and help inform the design of pilot activities, and access to project information and bene ts, and the absence 2) capacity-building activities to promote peace-building and of monitoring further impede the effectiveness of these con ict management. The research, conducted by a activities. Civil society organizations, particularly where local consortium of Thai academic institutions, found that politicians cannot work effectively with community members, community development projects were one of the key tools have a crucial role to play in local development, but are limited or means to help build peace and reconciliation. in number and suffer from capacity constraints. Government efforts to implement livelihood development The overall goal of this second phase of the project is thus to activities, the study revealed, had been largely unsuccessful develop effective community approaches to local development due primarily to a lack of trust by local communities towards that create “space” and opportunity for increased interaction government of cials and increasing communal tensions. within and among communities and between communities and the state apparatus in an effort to promote trust building in the con ict-affected areas in the provinces of Pattani, Yala, and Narathiwas. To achieve its objective, the project nances grants through two facilities or “windows.” 2 Knowledge Management Note Block grants are made to villages and sub-districts for local comprise various proportions of Malay-ethnic and Thai-ethnic development activities identi ed through a participatory, peoples as well as Buddhists and Muslims. The bene ts of community-driven development process. engaging in these areas include the wealth of existing data, the strength of relationships built, and the value of returning Peace-building Partnership Fund grants are available to civil to contribute to the development of these communities. society organizations and their networks active in the con ict- affected areas for innovative approaches and partnerships The additional 18 communities to participate in the second that promote trust, peace, and development. and third years of the project will be selected by representatives from local government, religious and community leaders, and community members taking into Community Block Grants consideration the presence of engaged community leaders, diversity within the community, actual or potential support The CACS project provides block grants of approximately THB received, existing community activities, and proximity to the 300,000 (or USD 10,000) directly to both participating initial nine communities. communities and sub-districts/municipalities for local development activities that members themselves identify, Block Grant Cycle propose, implement, monitor and sustain. The project’s block grant cycle consists of six main Selection of Participating Communities implementation steps: 1) information dissemination and institutional preparation, 2) social preparation and sub-project Over three years, the project estimates disbursing block grants planning, 3) sub-project proposal preparation; 4) sub-project to 27 communities in seven sub-districts (tambons) and two appraisal and approval, 5) sub-project implementation, and municipalities in the three southern border provinces: nine 6) sub-project completion and handover. communities in the rst year, and the original nine plus an additional 18 communities in the second and third years. 1. Information and Institutional Preparation. Information about Grants to the sub-districts/municipalities which include these the project’s objectives and approach is disseminated in a communities will be made in year three. variety of ways. At the start of the project, a letter was sent to key government of cials, including the Southern Border The initial nine pilot communities are those that served as Provincial Administrative Center (SBPAC), key security agencies, research sites in the study phase of the project (see Figure the governors of the three provinces, sub-district of cials and 1). They were selected initially based on the following criteria: dynamics of violent incidents, urban/rural characteristics, population demographics (ethnicity/religion), level of violence, feasibility of conducting research, and the distribution of resources. Spread equally across the three provinces, these communities represent a mix of rural and urban areas, and 3 Expanding Community Approaches in Southern Thailand community leaders to help ensure “space” for the project to 2. Social Preparation & Sub-project Planning. Community operate. Brochures in Thai and English are distributed to volunteers, supported by the project-hired facilitators, conduct government agencies, civil society organizations and their a participatory survey of the community. Data is collected on networks, and the local media. natural resources and economic and livelihood activities within the community and the social structure and relationships At the provincial and community levels, facilitators and among community members from key informants and groups provincial coordinators hired by the project meet in large and using various mapping tools. After data collection is small groups and individually with local of cials and villagers completed, the facilitator organizes a participatory community to introduce and explain project objectives and operations. analysis meeting during which villagers identify key issues, Once contacts are established, facilitators identify groups and prioritize needs and reach consensus on which activities to formal and informal leaders within communities, and recruit develop into sub-project proposals. A Village Implementing between 10 and 20 volunteers to help conduct community Committee (VIC), comprised of about 15 voluntary members, surveys and other project-related activities. Extensive training is then formed to carry the process forward. is then provided to these volunteers. Figure 1: Communities Receiving Block Grants in Year เมือง ปตตานี ยะหริ่ง Moo 3, T. Por-ming หนองจิก ปะนาเระ Pattani Baan Patabara, T. Paseyavor โคกโพธิ์ มายอ สามบุรี Baan Som, แมลาน ยะรัง T. Kuanoree ทุงยางแดง ไมแกน กะพอ Baan Tue Pa, Moo 1 , T. Kokien เมืองยะลา บาเจาะ T. Huai Krating รามัน Galaetapae community, Muang Municipality Baan Kameng, กรงปนัง ยี่งอ ยะหา T. Are Song กาบัง รือเสาะ เมือง นราธิวาส Moo 2, Yala ตากใบ T. Kohsatorn บันนังสตา ระแงะ เจาะไอรอง ศรีสาคร Narathiwat สุไหงปาดี ธารโต จะเเนะ สุไหงโก-ลก Kumongchanong, Betong Municipality สุคิริน แวง เบตง 4 Knowledge Management Note Given the newness of the approach, implementation of these rst two steps of the block grant cycle took approximately ve months to complete in the initial pilot communities. In future rounds, with valuable experience gained, the time allocated to these steps is expected to be reduced signi cantly. 3. Proposal Preparation. The VIC, guided by the community facilitator and informal, unpaid advisors (including local government of cials) and assisted by other community The sub-project proposal includes: 1) brief background and members and technical specialists as needed, develops justi cation, 2) objectives and expected bene ts, 3) sub-project proposals to address the community-identi ed description of bene ciaries, 4) implementation plan, 5) needs. detailed budget, 6) expected outcomes and indicators, and 7) organizational responsibilities. The grant can nance social and economic investments of almost any type, including infrastructure, livelihood Prior to submission, the sub-project proposal is endorsed of development, training and capacity-building, except for those at community-wide meeting or through consultation. For the on a short negative list.1 Proposals can include a mix of types initial nine communities, the sub-project proposal preparation of activities totaling up to THB 300,000 (or USD 10,000). process took an average of two to three months. 4. Proposal Consideration and Approval. Sub-project proposals are reviewed rst by the relevant facilitator and provincial coordinator for completeness. A Project Reviewing Committee, comprised of local technical specialists, then appraises proposals based on the following: 1 The list of prohibited investments includes such items as: weapons and explosives, pesticides and similar potentially dangerous material, environmentally harmful activities, the purchase of land and vehicles, international travel, and political activities. 5 Expanding Community Approaches in Southern Thailand Inclusiveness of preparation process; To ensure transparency, particularly of the use of funds, the VIC posts and regularly updates information related to Equability of access to bene ts (by gender, ethnicity, income implementation on a centrally-located sign board and through level); village broadcasting systems and holds periodic community meetings. Technical and nancial feasibility; 6. Completion and Handover. Once activities are nished, the Community contributions to cost and operation and VIC prepares a completion report with the assistance of the maintenance; facilitator. For sub-projects requiring operation and maintenance (e.g., small-scale community infrastructure), Transparency of nancial management procedures; identi ed community members are trained and supported by sub-district committees. Social and environmental safeguards; and In the initial nine communities, the rst round of block grants Sub-project sustainability. is expected to take an average of one year to complete, with the duration varying by community due to the experience of Within two weeks of approval, an agreement is signed with facilitators, community capacity, and the con ict situation. the head of the VIC. The VIC then establishes relevant Future rounds are estimated to take six to nine months. subcommittees and opens a dedicated savings account. Installments are transferred based on the detailed, time-bound The rst round of block grants is nancing a variety of activities implementation schedule included in the proposal. totaling THB 2.5 million (USD 78,000) in nine communities, including career development in dessert making and tailoring, the production and promotion of organic fertilizer, and the construction of a childcare center, community center, and community library. Peace-Building Partnership Fund The Peace-building Partnership Fund (PPF), offers grants of THB 150,000 to 300,000 (USD 5,000 to 10,000) to community-based organizations, civil society organizations, and civic networks working in the con ict-affected areas. The PPF aims to: 1) strengthen civil society to promote peace and development activities, 2) provide support to protect vulnerable groups, such as widows and youth, and 3) improve communication and public information dissemination through various media. 5. Imp lementation. Sub-project implementation is the responsibility of the VIC with assistance provided by facilitators Eligible organizations may be registered or unregistered, but and provincial coordinators as required. Depending on the must be comprised of at least ten persons, have a proven speci c implementation arrangements detailed in the sub- record of good management, and have at least one year of project proposal, VICs may contract for specialized skills and experience implementing development activities in the target services. Procurement of any goods, services and works area. follows agreed guidelines. The Peace-building Partnership Fund process follows a series of steps similar to the block grant process: 1) institutional preparation and information dissemination, 2) proposal preparation and submission, 3) proposal screening, 4) proposal appraisal, and 5) approval. 6 Knowledge Management Note Proposals for PPF grants may be submitted throughout the 3. Proposal Screening. Soon after the required submission year and are considered every six months. Between August date, the project’s provincial coordinators together conduct a 2009 and April 2010, 105 proposals were submitted for PPF preliminary screening of all submitted proposals to ensure nancing. completeness and relevancy. For those organizations whose proposals pass the screening, the provincial coordinators 2. Proposal Preparation and Submission. Interested civil society conduct a meeting to advise on additional details required. organizations and their networks prepare proposals and Once re-submitted, these proposals are forwarded to the submit them to the local project of ce.PPF grants can Project Reviewing Committee with a recommendation from nance activities that meet the Fund’s objectives and adhere the provincial coordinators to approve or not approve. to the key principles of simplicity, broad-based participation and group decision-making, and transparency. Informed by In order to help build capacity, those organizations whose the study phase of the project, focus target groups and areas proposals were screened as not eligible are invited to another are expected to be women, youth and alternative media and forum aimed at increasing understanding of project objectives strengthening civil society organizations. and approach and enhancing proposal development. The proposal for PPF funding includes: 1) background and rationale, 2) objectives, 3) target group and implementation area, 4) implementation plan, 5) activities, workplan and detailed budget, and 6) information on the applicant organization. 7 Expanding Community Approaches in Southern Thailand 4. Proposal Appraisal. LDI recruited a group of local technical specialists from government, academia, and civil society to assist with the review and appraisal process. Project Reviewing Committees, comprised of LDI management staff, the provincial coordinator, and relevant local technical specialists and organized along the themes of the sub-project proposals, review screened proposals for project relevance, feasibility and institutional capacity. Speci c appraisal criteria include the following: Participation of group members and bene ciaries; Inclusivity of different groups (economic status, religion, The appraisal process involves a consultation between the gender); review committee and applicant organizations. Applicants are asked to make a presentation (10 minutes), followed by a Technical and nancial feasibility question and answer session (40 minutes), and a joint summary (20 minutes). Finally, the review committee consults Community contribution; among its members (10 minutes) and agrees to approve the proposal or request revisions. Transparency; 5. Approval. For approved proposals requiring no further Social and environmental responsibility; and information or clari cation, a contract is signed within two weeks. Adjusted proposals are to be resubmitted within two Sustainability. weeks, and if found to have incorporated requested changes, contracts are signed. Once a contract is signed, funds are transferred directly to the applicant’s bank account. The rst round of PPF grants elicited 58 proposals of which seven sub-projects (totaling THB 1.8 million or USD 56,000) were approved. 8 Knowledge Management Note Such learning is supported by a robust monitoring and evaluation (M&E) system designed to track implementation progress and assess impact. The M&E system relies predominately on the routine collection of data embedded in the sub-project planning and implementation process, and supplemented by periodic qualitative assessments of speci c aspects or features of the project. Project Management The management of the CACS Project is the responsibility of the Local Development Institute (LDI), a non-governmental Activities nanced include the production of a movie to help organization that aims to promote community, local, and civil widows and orphans affected by the crisis, promotion of society strengthening. Multiple mechanisms at the central and occupational support and saving group formation, an local levels have been established to support implementation. exchange among civil networks in the three provinces on experiences with peace-building projects, community action A Project Advisor y Committee, comprised of seven research on community processes and mechanisms, and representatives from government agencies and civil society culturally-sensitive drug rehabilitation activities. organizations with special interest and responsibilities in the con ict-affected provinces, meets annually to provide policy The second round elicited 35 proposals of which three passed advice at the national level. the screening process. These activities are all targeted to youth, and include the implementation of nature activities, the A Project Steering Committee (PSC) consists of seven leaders establishment of a knowledge and technical center, and a of key organizations (government agencies and private literature program involving young Thai and Malay writers. foundations) with experience implementing and/or supporting development activities in the south. The PSC meets every three months and provides operational guidance on all aspects of Learning and Monitoring the project. and Evaluation The project is designed as a learning activity to develop and re ne effective local development approaches that can be adapted to other affected communities. Learning opportunities have been created at multiple levels and for stakeholders. At the local level, the community participatory processes provide opportunities for all stakeholders in communities, tambons (sub-districts) and provinces to discuss various aspects of the project and sub-projects, thus enabling the application of lessons learned from operations to improve local and provincial planning. The project steering and advisory committees are from for representatives from government agencies, the private sector, and civil society organizations to discuss relevant policies, partnerships, implementation progress, and impediments and lessons. A series of local, national, and international consultations is planned to process and disseminate lessons more broadly. 9 Expanding Community Approaches in Southern Thailand LDI maintains of ces in Bangkok and in Pattani staffed by Village Implementing Committees, as described above, prepare managers, nancial management and procurement specialists, block grant proposals, oversee implementation of block grant and information assistants. Community facilitators and activities, and share implementation progress and results and provincial coordinators, hired by the project to work in lessons learned. They are supported by sub-committees which participating communities and sub-districts, are supported manage speci c activities. All members serve on a voluntary intensively by LDI staff. basis. Also at the local level, a network of more than 35 specialists Community volunteers assist the VICs in arranging and in the southern provinces in elds such as environment, gender, conducting the community assessments and other education, health, and livelihood development, has been participatory processes within the community. formed to appraise and approve block grant and PPF proposals as well as provide practical advice to participating communities Tambon/Municipality Committees, comprised of no more than and civil society organizations. These specialists are provided 15 informal leaders within the tambon, such as religious a stipend (THB 1,000 or USD$33) and transportation costs leaders, representatives of group or organization in the tambon, for participating on the grant selection committee (up to one and respected community members, will be proposals, help time per year for block grants and twice a year for PPF grants). ensure linkages to the Tambon/municipality development planning process, and help avoid duplication with government Community facilitators are the key mechanism for ensuring projects. implementation of the community-driven development approach. August 2010 Provincial coordinators, one for each province, mentor community facilitators as well as establish relationships with For more information on the project, contact: staff of local government agencies and civil society Pamornrat Tansanguanwong organizations in the area. ptansanguanwong@worldbank.org Poonyanuch Chockanapitaksa pchockanapitaksa@worldbank.org Tel: +662 686-8300 KM Notes are produced under SPF Grant TF094106. 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