Marginalized groups in PNPM-rural

 65120 June 2010 Marginalized Groups in PNPM-Rural AKATIGA – CENTER FOR SOCIAL ANALYSIS Jl. Tubagus Ismail II No. 2 Bandung 40134 Tel. 022-2502302 Fax. 022-2535824 Email: akatiga@indo.net.id www.akatiga.org Photo cover by Akatiga Photo back cover by Akatiga (1,3), Juliana Wilson (2,4) Marginalized Groups in PNPM-Rural Foto oleh Akatiga  Table of Contents Acknowledgements iv List of Acronyms/Abbreviations v List of Indonesian Terms vi Executive Summary 1 About the report 1 Objective of the study 2 Methodology 2 Main findings 3 Recommendations 4 Chapter 1 Introduction 9 1.1 A Brief History of PNPM-Rural 9 1.1.1 Objectives of PNPM-Rural 10 1.1.2 Institutional Structure of PNPM-Rural 11 1.1.3 Activities of PNPM-Rural 11 1.1.4 Participation: Review of Previous Studies 12 1.2 Objectives of Study 12 1.3 Methodology 13 1.3.1 Study Framework 13 1.3.2 Data collection 13 1.3.3 Research Locations 14 1.4 Report Structure 15 Chapter 2 Symbolic Participation: Marginalized Groups in PNPM-Rural 17 2.1 Socio-economic Structure and Village Decision Making 17 2.1.1 Village Elite 18 2.1.2 Village Activists 19 2.1.3 Majority Group 19 2.1.4 Marginalized Groups 19 2.2 Participation in PNPM-Rural 21 2.3 Women’s Participation 25 2.4 Marginalized Groups and the Benefits of PNPM-Rural 26 Chapter 3 Barriers to Participation: What Matters? 27 3.1 Structural Barriers 27 3.2 Technical Limitations of the PNPM-Rural Project Design & Support Systems 34 Chapter 4 Beyond Symbolic Participation: Suggested Future Direction 37 4.1 Selecting a Single Focus 39 4.2 Tending Marginalized Groups 40 4.3 Facilitating More Sustainable Savings and Loans 41 4.4 Institutional and Technical Improvements 41 References 44 ii Marginalized Groups in PNPM-Rural  Table of Contents List of Tables Table 1.1 Research Locations 15 Table 2.1 Summary: Community Involvement in Village Decision-Making 20 Table 2.2 The Role of Officials and Activists 22 Table 3.1 Declining Participation 29 List of Boxes Box 2.1 Relationship of the Poor and the Wealthy, West Sumatra 18 Box 2.2 Mobilizing Support for Proposals from the ‘Top’, West Java 21 Box 2.3 Good Facilitation for Participation of Marginalized Groups 24 Box 2.4 Setting Up a Savings-and-Loan Group 26 Box 3.1 Persistent Dependency of Marginalized Group on Activists 32 Box 3.2 Administrative Burden and FK Capacity 35 iii  Acknowledgements This report was prepared by a team from AKATIGA. During the study, AKATIGA received guidance from Lily Hoo (World Bank) during the preparation, Ritwik Sarkar (World Bank) and Juliana Wilson (World Bank). Administrative support was provided by Christine Panjaitan. The report received critical review from Lugina Setyawati (Faculty of Sociology, University of Indonesia), and Widjajanti Isdijoso (SMERU Research Institute). Valuable inputs were also received from John McCarthy (Australia National University), Gunawan Wiradi (AKATIGA), and Sediono Tjondronegoro (AKATIGA). Useful comments were also received during the presentation of this study at Bappenas on June 1, 2010. AKATIGA also like to express our thanks to Victor Bottini (World Bank), Sadwanto Purnomo (World Bank), Ela Hasanah, and Bapak Bito Wikantosa (Department of Home Affairs, PNPM- Rural Secretariat) who took time to discuss the team’s findings and recommendations. Finally, AKATIGA would like to extend its thanks to all of our informants in six provinces who took time to sit and answer our questions. Without their support this study could not have happened. The World Bank provided financial support for this study. iv Marginalized Groups in PNPM-Rural List of Acronyms/Abbreviations BAPPEDA District Planning Agency (Badan Perencanaan Pembangunan Daerah) BAPPENAS National Planning Agency (Badan Perencanaan Pembangunan Nasional) BKAD Inter-village Cooperation Unit (Badan Kerjasama Antar Desa) BLM Community Block Grant (Bantuan Langsung Masyarakat) BPD Village Representative Body (Badan Perwakilan Desa) FGD Focus Group Discussion FK Subdistrict Facilitator (Fasilitator Kecamatan) FKab Regency/Municipality Facilitator (Fasilitator Kabupaten) FT Technical Facilitator (Fasilitator Teknis) KDP Kecamatan Development Program (Program Pengembangan Kecamatan – PPK) KPMD Village Community Empowerment Cadre (Kader Pemberdayaan Masyarakat Desa) LPM Community Council (Lembaga Pertahanan Masyarakat) MAD Inter-Village Meeting (Musyawarah Antar Desa) MDP Village Planning Meeting (Musyawarah Desa Perencanaan) MKP Special Meeting for Women (Musyawarah Khusus Perempuan) Musdus Hamlet Meeting (Musyawarah Dusun) Musrenbang Development Planning Meeting (Musyawarah Perencanaan Pembangunan) Musrenbangdes Village Development Planning Meeting (Musyawarah Perencanaan Pembangunan Desa) PjOK Local Project Manager (Penanggung Jawab Operasional Kegiatan) PKK Family Prosperity Program (village women’s group) (Program Kesejahteraan Keluarga) PMD Ministry of Home Affairs, Community Empowerment Office (Pemberdayaan Masyarakat Desa) PNPM National Program for Community Empowerment (Program Nasional Pemberdayaan Masyarakat) RESPEK Village Development Strategic Plan (Rencana Strategis Pengembangan Kampung) SADI Smallholders Agriculture Development Initiatives SPP Women’s Saving and Loan (Simpan Pinjam Perempuan) UPK Project Management Units (Unit Pengelolaan Kegiatan) UPP Urban Poverty Project v  List of Indonesian Terms Adat Local norm or custom Arisan Savings group Bagi rata Practice of dividing money or materials equally among villagers or vil- lages Banjar Hamlet/sub-village in a Hindu community Bantuan Assistance Camat Administrative head of a kecamatan (sub-district) Dusun Hamlet (sub-village) Kampung Hamlet (sub-village) In Papua, it means village Kepala Head, leader Kepala Adat Customary leader Ketua Chairman, elder, leader Madrasah Islamic school Musyawarah Meeting, group discussion Ninik mamak Customary leader in West Sumatra Ojeg Motorcycle taxi Pamong Village government officials Pemekaran Separation of one administrative area Pengajian Religious meeting/Al Quran Recital meeting Penggalian gagasan PNPM-Rural idea generating meeting Pesantren Islamic boarding school Swadaya Voluntary contributions, literally self-supporting Swakelola Self-managed Taoke/Toke Village middlemen Tokoh An elder, respected person, or community leader Tuan Guru Haji Religious leader in Lombok Muslim community, West Nusa Tenggara Ulama Muslim clerics Warung Stall vi Marginalized Groups in PNPM-Rural  Photo by Akatiga Executive Summary Marginalized Groups in PNPM-Rural About the report The Marginalized and Vulnerable Groups Study grew out of a concern that the marginalized segments of society were being left out of the development planning process in the National Program for Community Empowerment1 in Rural Areas (PNPM-Rural)—a nation-wide community driven development project in Indonesia. Previous studies on the Kecamatan Development Project (KDP), the predecessor of PNPM-Rural, as well as the baseline survey for PNPM-Rural indicated that decision-making within the project favored the majority and better-off as opposed to poorer villagers and those living in outlying areas. (See McLaughlin, et. al., 2007; Voss, 2008) Poorer groups, which include female heads-of-households and heads-of-household with no primary education, have limited participation in the KDP/PNPM-Rural decision making process, as about 75 percent of the poor attending the meetings were passive participants (Gibson and Woolcock, 2005; Voss, 2008). Other studies have shown that despite the passive nature of participation, when compared to similar projects, KDP/PNPM-Rural was better in getting the poor involved (Agung 1 Program Nasional Pemberdayaan Masyarakat Mandiri-Pedesaan 1 Photo by Juliana Wilson and Hull, 2002). This study was undertaken to better understand the dynamics of participation, defined as “a process through which stakeholders influence and share control over development initiatives, decisions and resources which affect them.