Building Panethnic Coalitions in Asian American, Native Hawaiian And

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Building Panethnic Coalitions in Asian American, Native Hawaiian and Pacific Islander Communities: Opportunities & Challenges This paper is one in a series of evaluation products emerging states around the country were supported through this pro- from Social Policy Research Associates’ evaluation of Health gram, with the Asian & Pacific Islander American Health Forum Through Action (HTA), a $16.5 million, four-year W.K. Kellogg serving as the national advocacy partner and technical assis- Foundation supported initiative to reduce disparities and tance hub. advance healthy outcomes for Asian American, Native Hawai- Each of the HTA partners listed below have made mean- ian, and Pacific Islander (AA and NHPI) children and families. ingful inroads towards strengthening local community capacity A core HTA strategy is the Community Partnerships Grant to address disparities facing AA and NHPIs, as well as sparked Program, a multi-year national grant program designed to a broader national movement for AA and NHPI health. The strengthen and bolster community approaches to improv- voices of HTA partners – their many accomplishments, moving ing the health of vulnerable AA and NHPIs. Ultimately, seven stories, and rich lessons learned from their experience – serve AA and NHPI collaboratives and 11 anchor organizations in 15 as the basis of our evaluation.

National Advocacy Partner HTA Organizational Partners Asian & Pacific Islander American Health Forum –– West Michigan Asian American Association –– Asian Pacific American Network of Oregon HTA Regional Collaborative Partners –– Asian Pacific Islanders with Disabilities of California HTA-CA: Community LEAD –– Mississippi Coalition for Vietnamese American Fisherfolk –– Lead agency: Asian Health Services and Families HTA-AZ: Asian American Health Coalition –– Mary Queen of Viet Nam Community Development –– Lead agency: Asian Pacific Community in Action Corporation HTA –NY: Project CHARGE –– Minnesota Asian/American Health Coalition –– Lead agency: Coalition for Asian American Children –– New Mexico Asian Family Center and Families –– National Tongan American Society HTA-OH: Ohio Asian American Health Coalition –– Socioeconomic Development Center for Southeast Asians –– Lead agency: Asian Services In Action –– Samoan National Nurses Association HTA-HI: Lei Hipu’u o Kalihi Valley Coalition –– Vietnamese American Young Leaders Association – –– Lead agency: Kokua Kalihi Valley Comprehensive New Orleans Family Services HTA-GA: Georgia Asian Pacific Islander Community Coalition –– Lead agency: Center for Pan Asian Community Services HTA-TX: Houston Asian American Health Collaborative –– Lead agency: HOPE Clinic

March 2012

Social Policy Research Associates Authors: Traci Endo Inouye and Rachel Estrella

2 THE ASIAN AMERICAN, PACIFIC ISLANDER AND NATIVE HAWAIIAN (AA and NHPIs) U.S. population is made up of over 18 million people, tracing their heritage to more than 50 countries, speaking over 100 languages, and coming from countless cultural traditions. According to the last Census, the AA and NHPI population has grown over 40 percent in the last decade. In many states, AA and NHPIs are the fastest growing population and by 2020, is expected to number over 23 million. As numbers continue to grow, a natural question arises about how to strategically leverage and mobilize growing numbers of AA and NHPIs behind a change agenda aimed at addressing the myriad health challenges facing AA and NHPI communities and ultimately advancing their collective health and well-being.

It is within this context that the W.K. Kellogg Foun- takes to engage panethnic groups in social change dation and the Asian Pacific Islander American Health efforts to address racial disparities. By unpacking the Forum (APIAHF) launched “Health Through Action” challenges and strategies of HTA partners, this paper (HTA), a four year, $16 million effort aimed at strength- provides a starting point for meaningful dialogue ening regional and national advocacy capacity to both about the complexity of this challenge and the advance the health and well-being of AA and NHPIs opportunities to strengthen and support communi- across the country. Ultimately, HTA invested in seven ties of color in this endeavor. panethnic collaboratives and 11 additional AA and NHPI anchor organizations to spearhead regional and statewide change efforts, with the intention that these local efforts would ultimately roll up into a national The Power and Potential of movement for AA and NHPI health. Located across Panethnic Coalitions the country – including California, Oregon, New Mex- ico, Arizona, Texas, Hawaii, Ohio, Michigan, New York, The formal definition of “panethnicity” is “the group- Georgia, Rhode Island, and Louisiana – these HTA ing together, and collective labeling, of various partners serve as critical on-the-ground catalysts independently distinguishable, self-identified and towards this end. self-sustained ethnicities into one all-encompassing This paper is one of a series of learning papers group of people.”1 This “grouping” or “lumping,” emerging from the evaluation of HTA. It is specifi- of all Asian peoples into one category by members cally focused on surfacing understanding about the of the dominant culture was a common practice in opportunities and challenges faced by HTA partners early Asian American history. At that time, the exter- in their efforts to organize panethnic coalitions on nal imposition of a collective identity was actively behalf of their diverse constituencies. Currently, the resisted by Asian-origin groups, many of whom made literature is limited in its attention to what it really specific efforts to distinguish themselves from one

1. Taylor, V. (1989). Social Movement Continuity: The Women’s Movement in Abeyance. American Sociological Review 54, 761-75.

3 another out of fears of falling victim to racist attacks NHPI populations, many HTA grantees emphasize the that were in theory aimed at one specific group but in importance of panethnic coalitions for raising visibil- reality were leveled against anyone lumped under the ity of critical issues affecting their communities that “Asian” label. might not otherwise come to light. There is an implicit By the 1960s, however, the birth of the Asian acknowledgment that the level of visibility they have American movement signaled a shift in political con- earned around AA and NHPI health would not have sciousness and strategy. occurred if each ethnic Groups that had been group championed its own working so hard to “dis- Panethnicity: “the grouping together, health issues exclusively. identify” with one another and collective labeling, of various Further, some of the trac- recognized that they con- independently distinguishable, tion that they are seeing tinued to be persecuted self-identified and self-sustained from their regional advo- as a collective and that ethnicities into one all-encompassing cacy – such as formations ultimately, their struggles group of people.” of governors’ AA and NHPI against this common fate of advisory councils, targeted subjugation and discrimina- resources for AA and NHPI tion would best be served by banding together under health outreach and programming, changes in how a collective identity. AA and NHPI health data are being tracked and dis- Asian Americans took ownership of the panethnic seminated – are all attributed to aggregated power Asian American label, and used it as a powerful vehi- emerging from their collective action. cle for advocacy. It was a successful strategy – banding together increased their numbers and resulted in greater power to effect change in electoral politics, in services to their communities, in advancing civil rights, The Challenges of AA and NHPI and in efforts to create more equitable systems that Coalition Building were inclusive of their communities. Since then, for AA and NHPI panethnic coalitions representing oppressed While underscoring the potential power of coalition communities, mobilizing under a collective identity has building across AA and NHPIs, HTA grantees have also been critical to their effectiveness as political instru- shared that the process of building panethnic coalitions ments. It has enabled them to speak “with one voice” is not easy to do. As shown on the text box on the next in order to “confront the dominant society on their page, the sheer diversity captured within the AA and own terms”2 and thereby have a collective sense of NHPI umbrella adds a unique layer of complexity to agency in efforts to effect systemic change. coalition building and collective action. HTA partners More than 50 years later, for Health Through expressed the importance of recognizing not just the Action grantees, a panethnic frame is not seen as range of ethnic groups, cultures, and languages cap- an externally imposed one at all. Rather, it has been tured within the AA and NHPI umbrellas, but the inter- described as a necessary and natural frame for aggre- sectionality of the multiple layers of identity embodied gating power and advancing a collective agenda. in the people that make up the Asian American, Native Especially given the historic invisible status of AA and Hawaiian, and Pacific Islander population.

2. Espiritu, Y.L. (1992). Asian American Panethnicity: Bridging Institutions and Identities (p. 169). Philadelphia, PA: Temple University Press.

4 TOWARD A COLLECTIVE IDENTITY: The Asian American, Native Hawaiian, Pacific Islander Context

ealth Through Action partners IMMIGRATION HISTORY. A commu- that arrived a result of the Refugee Act of share that diversity in the AA nity’s level of “establishment” within the 1980 tended to come from rural areas, with H and NHPI community is not well U.S. and the general circumstances under lower levels of education and less market- understood, even by people within the which they immigrated here have signifi- able skills within the U.S. economy. This dis- community itself. Beyond the specific eth- cant impact on a group’s ability and willing- parity must be carefully navigated within nic groups represented within the AA and ness to embrace and advocate under the panethnic advocacy. While the issues cham- NHPI population, there are multiple dimen- AA and NHPI label. Groups that have been pioned by panethnic coaltions typically tar- sions of identity that introduce additional here longer typically have greater famil- get those most economically vulnerable, layers of complexity to panethnic coalition iarity with U.S. systems and can therefore these are the communities least available building efforts. HTA partners describe more strategically advocate for change to engage in systems change work as they these aspects of intersectional identity as than newer immigrants who may be still struggle with issues of meeting basic needs influencing the degree to which different learning how to navigate U.S. bureaucracy. and family survival. As a result, leadership community members embrace a shared AA Moreover, those who voluntarily come to in panethnic coalitions is often made up of and NHPI identity and/or see themselves the U.S. from developed countries to pur- predominantly middle-class professionals reflected in the social change goals being sue education or employment have a very advocating on their behalf.** advanced by AA and NHPI coalitions: different orientation than those who emi- grate to the U.S. as refugees, bringing with GEOGRAPHY. Regional context plays LANGUAGE. The sheer number of lan- them trauma that can negatively influence a significant role in identity ascription in a guages spoken by different AA and NHPI their willingness and/or ability to engage in number of ways. For example, in regions ethnic groups pose serious challenges to politically-motivated efforts. with smaller and less diverse AA and NHPI facilitating cross-ethnic dialogue and devel- populations, there is often a greater need opment of a common change agenda. The NATIONAL POLITICAL HISTORY. Inter- (and therefore willingness) to band together issue is far more complex than most real- ethnic conflict can also pose significant under a larger panethnic label. By contrast, ize. In addition to the officially recognized constraints to a coalition’s sense of solidar- in regions with larger and more diverse AA 100+ “national” AA and NHPI languages, ity. Embedded within the psyche of many and NHPI populations and therefore more there are multiple regional languages spo- AA and NHPIs is also a strong sense of affil- ethnic-specific infrastructure, there is often ken by people from these nations. In the iation with their homeland and with its his- a greater tendency to prioritize an ethnic- Philippines, for example, while Tagalog is torical political history. Different ethnic specific identity over a panethnic iden- officially its “national language,” there are group members may hold strong resent- tity. Perceived levels of race-based threat also 12 officially recognized “regional lan- ment towards others as a result of home- also differ across regions and can there- guages” and, in reality, over 120 docu- land conflicts and/or thousands of years of fore influence identity ascription, either mented languages spoken in the country. domination by other Asian, Native Hawai- by uniting people to band against oppres- ian, or Pacific Islander groups. sive actions, or causing them to shy away RELIGION. A wide range of religions against participating in actions that would and belief systems are represented within SOCIOECONOMIC STATUS (SES). increase levels of conspicuousness. the AA and NHPI umbrella. These include There is great disparity in socioeconomic (but are not limited to) Confucianism, Bud- status across AA and NHPI groups. While LABEL ASCRIPTION. Not everyone who dhism, Hinduism, Islam, Sikhism, Christi- the 2010 U.S. Census reports the median falls under the AA and NHPI label under- anity, and a range of indigenous spiritual household income for AA and NHPIs as stands how or why he or she fits under it. beliefs. Understanding and being sensitive slightly higher than the average popula- Whether they came to the label as part of to the range of religions practiced within tion, the poverty rate among Hmong is a a purposeful and strategic move to gain the AA and NHPI community is described staggering 37.8 percent, among Cambodi- power by association or whether they came as critical to building harmony and trust ans 29.3 percent, among Laotians 18.5 per- to it through a mechanism of bureaucratic across groups. Moreover, sensitively cent, and among Vietnamese 16.6 percent.* default (e.g. census categorization), the understanding the role that religion plays Immigration patterns and level of estab- level to which community members under- in each community is also critical since reli- lishment help shape this disparity – e.g. stand and feel ownership over the label- gious institutions often serve as key entry those who arrived in the U.S. soon after the ascription process plays a significant role in points for accessing community. enactment of the Immigration Act of 1965 how they feel about the label. tended to be more highly educated and well off, whereas the wave of immigrants

* National Commission on Asian American and Pacific Islander Research in Education and The College Board. (2008). Asian Americans and Pacific Islanders Facts, Not Fiction: Setting the Record Straight. New York, NY: The College Board. ** Padilla, F.M. (1985). Latino Ethnic Consciousness: The Case of Mexican Americans and Puerto Ricans in Chicago. Notre Dame, IN: Notre Dame University Press.

5 Underscoring this point, one HTA leader likened Fostering a Panethnic Consciousness challenges and opportunities of panethnic coalition building to commissioning an “AA and NHPI drum A fundamental challenge within AA and NHPI coali- symphony.” The analogy acknowledges the tremen- tion building is the formation and fostering of a pan- dous potential power behind aggregating drums from ethnic consciousness. While “collective identity” and around the world in a powerful “call to action” opus “collective consciousness” are often erroneously con- that commands the attention of everyone who hears. flated with one another, these are in fact two distinct At the same time, it brings into focus the inherent, constructs. The formation and use of a collective iden- multi-faceted challenges of achieving this goal, given tity under which to mobilize is an advocacy strategy, the diversity of AA and NHPI drums and drum tradi- employed by groups towards the achievement of a tions – from the booming bass of the Japanese daiko, specific goal. Within panethnic coalitions, a collective to the thavil barrel drum from South India, to the hour- identity is often a given. However, while groups may glass Korean janggu, to the sharp dry sound of the come together on various occasions under one label Chinese bian gu, to the bamboo kagul slit drum within in response to external threats, this does not always the Philippine tradition, to the huge Tongan nafa, to mean that panethnic communities embrace a true col- the Tahitian toere: lective consciousness.

–– How does one weave together a coherent sym- Collective “consciousness” refers to a kind of mind- phony that holds meaning for different drum set, an awareness of shared circumstances and values traditions that have existed on their own for thou- that becomes a motivating force for working in solidar- sands of years? ity. Literature emphasizes the importance of attend-

–– Further, how do you ensure that the unique cul- ing to the health of a collaborative body’s collective tural elements of individual ethnic traditions are consciousness – of uncovering, uplifting, and embrac- not lost in the larger swell of the whole? That the ing that which brings panethnic groups together – for voices of most vulnerable are not drowned out? this is ultimately the key to sustaining and ensuring the That space is created to honor cultural traditions long-term health and vibrancy of the collaborative. As – like the Hmong – who may have a fundamen- stated in a seminal work on the topic, “while panethnic tal cultural disconnect with the drum as a “call groups may be circumstantially created, they are not to action”? circumstantially sustained.”3 Looking across Health Through Action grantees, These are the questions that echo those voiced by the level of panethnic consciousness across constit- HTA partners who have also struggled with the chal- uent groups varies significantly across regional con- lenge of meaningfully bringing diverse AA and NHPI texts. For example, the Ohio HTA partner described ethnic groups together with a shared commitment to relatively few challenges with fostering an AA and each other and to collaborative action. The next two NHPI group consciousness in their advocacy work, sections discuss the dual-sided challenge of fostering in large part because the service delivery structure a group consciousness that unifies ethnic partners, is already panethnic by design due to the low num- while simultaneously honoring and attending to the bers of AA and NHPIs in Ohio. As explained by the diversity present within the AA and NHPI population. HTA partner there, “There’s a lot of motivation on the state level for us to work pan-Asian. We’re small – we

3. Ibid., p. 164.

6 recognize in order to have strength in numbers, we levels of suspicion and mistrust of each other. In other have to collaborate… that’s really ingrained in a lot of cases, oppression of specific ethnic groups here in the people’s psyche here.” U.S. continues to serve as barriers to groups coming In other regions of the country with larger num- together in meaningful alliance. This is particularly the bers of AA and NHPIs – and typically greater presence case in Hawaii, where Native Hawaiians have suffered of ethnic enclaves and infrastructure – some HTA part- injustices at the hands of other Asian ethnic groups ners reported struggling throughout the state’s his- with building trust with and tory. As the HTA-HI partner recruiting specific ethnic “There’s a lot of motivation on the shared, “You can’t just get partners who have not his- state level for us to work pan-Asian. us to the point of saying torically identified with an [The AA and NHPI population here] we’re all aggregated with- Asian-American label, such is small – in order to have strength out recognizing that even as Asian Indians or Pacific in numbers, we have to collaborate.” within our own Asian Amer- Islanders. Others reported ican Pacific Islander Native different challenges across Hawaiian group, there are more established Asian grievances.” American populations, not- “You can’t just get us to the point of ing in particular that strong saying we’re all aggregated without Lessons From the Field: primary ethnic affiliation can recognizing that even within our HTA Partner Strategies have an impact on larger own Asian American Pacific Islander HTA partners emphasize group affinity. The HTA- Native Hawaiian group, there are that in order to foster a Texas partner describes how grievances.” stronger sense of panethnic this manifests itself with the consciousness, they have Chinese community in her to create wider and clearer region, noting “We have had people who’ve been here channels for dialogue across communities as well as for years, who haven’t really stepped out of their shell, safe spaces for learning about one another, for airing out of their own community… they’re so tied to their grievances, for healing, and for celebration. Several community that that’s all they focus on. They only speak offered emerging strategies for not just bringing differ- Chinese, they only go to Chinese doctors, only go to ent groups to the table, but fostering a deeper sense of Chinese hair salons.” Thus, while having a solid infra- trust and mutual commitment to each other. structure provides much needed support to ethnic- specific communities, the sense of comfort it produces Investing in time and space for relationship building. can inhibit any desire (or perceived need) to reach out In their partner cultivation efforts, all HTA partners to align with a larger panethnic group. described the importance of authentic outreach that A few HTA partners noted that – at a base level recognizes and honors the deep and influential history – interethnic conflict has also prohibited a natural and cultural infrastructure of different AA and NHPI eth- sense of solidarity and group consciousness in their nic groups. Many stressed the importance of not rush- regions. In some cases, conflicts among homeland ing to agenda planning, but instead creating meaningful countries have carried forward to U.S. relations, with space and time for relationship building. two HTA partners giving examples of working with For example, the HTA-NY partner, Project Southeast Asian community partners who have high CHARGE, brought their coalition partners together in a

7 retreat setting at the onset of their work together. Many series of community dialogues that focused on weav- HTA partners also explicitly integrate ongoing relation- ing a shared history and emphasizing shared experi- ship-building activities at regular coalition meetings. ences [see sidebar]. The HTA-CA partner, Community Even before a collective LEAD, capitalized upon the agenda for change was even 2010 Census – and the uni- broached as a possibility, “Suddenly people find more ways to versal undercount of AA Lei H¯ıpu’u in Hawaii spent be similar than they find ways to and NHPI groups – as an months sponsoring “talk be separate. Part of that is setting entry point for connec- story” sessions in which up the environment for people to tion across its diverse coali- community service provid- connect with each other.” tion partners. Especially ers connected as individu- where interethnic conflict als. Several HTA partners was present, HTA partners talked about the unspoken value of sharing food and raised the importance of being mission-driven and cultural traditions, or making an effort to attend events doggedly focused on shared goals rooted in commu- and cultural celebrations of various ethnic partners. nity health and well-being as the foundation of their These opportunities were described as criti- coalition work. As shared by one partner, “We keep cal opportunities for collaborative partners to come the focus on health. So [though] when they come to together and connect with each other beyond ethnic the meeting they sit on different sides of the room… boundaries, and build the trust and common bonds the whole point is ‘look this is the issue at hand and necessary to forge meaningful partnerships. The HTA- you guys need to take it back to your community.’” Hawaii partner summarized, “Suddenly people find more ways to be similar than they find ways to be sep- Targeting bridge builders. Almost across the board, arate. Part of that is setting up the environment for HTA partners also raised the importance of engag- people to connect with each other.” ing community leaders and gaining their support and trust as a key strategy – not just for fostering group Emphasizing points of commonality. Particularly consciousness, but for ultimately attaining buy-in to a given the social construction of the “Asian American, larger panethnic agenda. Many shared examples of tar- Native Hawaiian, and Pacific Islander” label, the points geting individuals who can serve as “bridge builders” of connection across ethnic partners may not always across cultures – those who are deeply rooted in com- be obvious. Beyond the sharing of cultural traditions munity culture and values, who can embrace a broader described above, HTA partners have also intentionally panethnic consciousness, and who are positioned to fostered a sense of inter-connectedness by pointing engage and motivate others. Community gatekeep- out common points of struggle and oppression across ers, such as church leaders and respected community groups. Many formed their coalitions after first hold- elders, were described as examples of trusted fig- ing facilitated dialogues about common challenges ures who have played this role within their coalitions. faced in advancing community health and well-being Others shared that they have successfully leveraged in respective ethnic communities. A few have explic- younger community leaders who were described as itly introduced a social determinants of health frame- bringing more of a cross-cultural world view to collab- work as a strategy for finding common ground for oration. As shared by one HTA partner, “We really pri- collective action. In Georgia, the Georgia Asian Pacific oritize, within our organizing, the empowerment of the Islander Community Coalition structured a year-long younger generation, the folks who are bilingual and

8 bicultural, and those folks that we feel like are critical The for being able to bridge generations.” PEPPER

Giving attention to healing and reconciliation. TALK Series Finally, a few HTA partners also highlighted the importance of acknowledging current and historic tensions within and across AA and NHPIs and mak- On the occasion of Georgia Asian Pacific Islander Com- munity Coalition’s 6th anniversary, 30 Atlanta-area coming a concerted effort to address them. One grantee munity members gathered at the Center for Pan Asian shared, “if you don’t address how we got to where Community Services to hear a panel focused on Asian we are, you’re never going to get to a new place.” American adoptees. The discussion was deeply moving, as panelists shared the rarely discussed reality of HTA partners discussed focusing on finding common growing up Asian American within white families, and ground where groups share mutual interest as a start- their painful experiences with discrimination on multiple ing point for bringing them to the table, as well as levels. Together, participants explored the meaning of racial identity and what it means to be “Asian American.” engaging neutral leaders or lead organizations who are not perceived as having a political affiliation with The discussion was the last in a series of talk story sessions. Topics for the series have ranged from a screening one group over another to serve as brokers for rela- and discussion about “Nerakhoon,” a documentary on a tionship building. family’s emigration from Laos; an exploration of movement building within Asian American fraternities and sororities; and a briefing about re-districting policies and their impact on Atlanta’s Asian American community. Attending to Diversity Within Unity The conversations are critical opportunities to engage in dialogue on a range of topics of interest to Atlanta-area While working to bring ethnic partners together under AA and NHPIs. More than an educational forum, how- a collective AA and NHPI identity, HTA partners simul- ever, organizers describe a broader purpose for the series that is rooted in goals of fostering group consciousness. taneously expressed a mindfulness around attending Marianne Chung, Associate Director, explains: to the diversity across the groups that they are repre- If an African-American man talks to an African senting. Intuitively, they understand that health issues American boy about slavery, they have that and solutions are shaped by the cultural realities of shared understanding of their history and from different AA and NHPI populations, and that there that they can move forward. In API communities, we don’t have that shared history. The history of is no “one size fits all” advocacy agenda that can a Vietnamese person coming to America versus address the range of health-related challenges pres- a Korean or Japanese person is very different. ent within the AA and NHPI communities they repre- We don’t have that shared history. And because we don’t have that shared history, we don’t sent. Particularly given the historical divisiveness of see ourselves as a collective moving forward. the “model minority myth,” multiple partners explic- Through our Pepper Talk Series, we keep trying itly expressed a priority for not obscuring the unique to highlight the histories and perspectives and different parts within our community so we can issues of individual –and most vulnerable – communi- better understand each other. ties within their coalitions as a consequence of aggregating AA and NHPI power and voice. Specific Pacific Organizers have observed a greater sense of AA and NHPI community cohesion emerging from the Pepper- Islander ethnic partners within HTA also underscored talk series that they continue to leverage for the broader this point, pleading for their community’s issues and panethnic advocacy. Again, Marianne Chung empha- voices to be a part of the larger movement for AA and sizes, “We need to know our collective history; we need to know our collective story in order to be strong.” NHPI health and not to be “left behind.”

9 Operationalizing this priority, however, was and civic engagement, and fewer community mem- described as a tremendous challenge. bers are even eligible to vote. Language diversity Given a reticence to speak “on behalf” of others, within the AA and NHPI population compounds the multiple HTA partners expressed concerns about how issue, with one HTA partner expressing, “We cannot best to take a stand on behalf of an extremely diverse do 14 meetings in 14 languages. But that means, who community. One partner are we including? They are described feeling a “level the ones who can speak of unsettled anxiety about “We always feel a level of unsettled English… and we struggle being authentic about rep- anxiety about being authentic with that all the time.” resentation,” always care- about representation… so we rarely fully communicating the say we represent all Asian Pacific Lessons From the Field: limitations of who his coali- American communities.” HTA Partner Strategies tion represents. Another As HTA partners grap- similarly expressed self- pled with these complex consciousness about being challenges, some offered “We cannot do 14 meetings in 14 called upon to make a pub- examples of specific strate- lic statement about pend- languages. But that means, who gies they have tried related ing legislation or an issue are we including? They are the ones to operationalizing equity facing AA and NHPIs, and who can speak English… and within their panethnic advo- not having the time to poll we struggle with that all the time.” cacy efforts. Most agreed the community to hear that it was not enough to directly from them about “value” or “prioritize” inclu- what they think. While wanting to honor diverse com- sion. Especially in challenging economic times when munity input, this partner felt like being over cautious resources for marginalized communities are scarce, was a potential weakness, as the cost of hesitation explicit attention to structures and practices were might result in not having any AA and NHPI voices at described as necessary for ensuring that coalitions all in the public debates on issues that affect them. strike the right balance of proactively attending to The challenge of authentic inclusion was expressed diversity within panethnic coalitions. most acutely given that the most vulnerable communities were described as least likely to be at the table, Creating Structures for Meaningful Community to see themselves within the panethnic umbrella, Input. Recognizing myriad limitations that might pre- and to be ready to actively participate and mobilize vent specific ethnic communities from actively par- community behind a change agenda. HTA partners ticipating in coalition work, many HTA partners have discussed the complexity of building the readiness engaged in specific tactics to ensure that the voices of specific ethnic partners to participate in advo- of more vulnerable populations inform their advocacy. cacy activities. A few acknowledged, for example that Most commonly, these took the form of in-language newer immigrant communities are focused on issues surveys and focus groups. For example, to inform of basic needs and survival such that systems change their health care reform advocacy efforts, Project goals naturally become secondary priorities. Newer CHARGE engaged in intensive community dialogues immigrant communities were also described as having – ultimately hosting a series of 15 in-language “com- little experience with western advocacy approaches munity health care chats” and one-on-one interviews

10 to hear Asian Indian, Bangladeshi, Nepalese, Chinese, this through re-granting HTA resources to their coali- Filipino, Japanese, Korean, Pakistani, and Vietnam- tion partners to strengthen their organizational capac- ese community health concerns. According to Project ity, support their service delivery activities, and/or CHARGE, this investment financially compensate for allowed them to hear voices their participation in coali- of ethnic community voices It’s about… supporting people tion work. Many HTA part- that were not a part of their towards their own priorities and ners regularly incorporate formal coalition. goals and dreams, instead of giving trainings – spanning topics Other HTA partners them priorities and goals and as diverse as “advocacy 101,” created specific ongoing dreams and asking them to sign on. social media, evaluation, or coalition structures for com- briefings on specific policy munity input. Asian Health topics – into their collabora- Services, the HTA-CA partner, has created Patient tive meetings. Still others have implemented models in Leadership Councils in the Cambodian, Cantonese, which the lead agency of the collaborative was explic- Korean, Mandarin, and Vietnamese communities to itly charged with providing coaching and mentoring to serve as a direct line to these under-represented com- collaborative members (e.g., through serving as a fiscal munities. Volunteer advocates who participate in the agent for collaborative fund development efforts, pro- Patient Leadership Councils promote health education viding in-kind resources such as office space or tech- and advocate for their communities, as well as pro- nology, etc.). vide community-level feedback on health issues that ultimately shapes Asian Health Services’ advocacy Sharing power and championing ethnic-specific agenda. As shown on the next page, the Asian Pacific agendas. The literature emphasizes the importance American Network of Oregon has created a multi-lay- of panethnic coalitions championing ethnic-spe- ered approach for similarly soliciting feedback from a cific agendas as a critical aspect of coalition sustain- broader set of community voices beyond those repre- ability.5 The few examples of this occurring among sented within their formal coalition. HTA partners are powerful testimony to what can be accomplished through power sharing within the AA Continuous commitment to capacity building for and NHPI community. In Hawaii, for example, when ethnic-specific partners. Literature refers to ethnic- the Hawaii Department of Health put forward a Basic specific organizations as “a necessary building block Health Plan that withdrew critical health benefits for successful pan-Asian collective action.”4 Across-the- afforded the state’s Micronesian population through board, HTA partners acknowledge this point and there- the Compact of Free Association,6 the issue was not fore express a strong commitment to capacity building owned by the Micronesian community alone. Rather, of ethnic partners. Some HTA partners accomplished members of the panethnic group of service providers

4. Okamoto, D.G. (2003). Toward a Theory of Panethnicity: Explaining Asian American Collective Action. American Sociological Review 68, 811-842. 5. See for example, (Espiritu, 1992, page 170), which cites, “To make themselves accessible to the broadest constituency, panethnic organizations often lobby simultaneously for both panethnic and ethnic-specific causes – thereby emphasizing both the commonality of interest in the preservation of the rights and existence of subgroups. In their words panethnic associations thrive when they are willing to include and share power with the ethnic sub groups.” 6. A series of treaties between the United States and the Federated States of Micronesia, Republic of Palau and the Republic of the Marshall Islands.

11 who make up the HTA-HI collaborative recognized the ASIAN PACIFIC broader discrimination targeting this newest group AMERICAN NETWORK of HI immigrants, and provided direct advocacy and legal support to Micronesian community partners as OF OREGON they rose in protest at the state level.

The Asian Pacific American Network of Oregon (APANO) Promoting a philosophy around asset-based apis a volunteer-based grassroots organization that seeks proaches to engagement. Implicit in all the strategies to advance equity by empowering, organizing, and advocating with Asian and Pacific Islander (API) communities above is a strong sense from HTA partners of the impor- across Oregon. While APIs are the second largest and tance of asset-based approaches to honoring the rich fastest growing population in Oregon, the infrastructure diversity represented within the AA and NHPI umbrella. for serving this community is relatively poor. Moreover, the diversity and geographic spread of the population HTA partners consistently shared an underlying philoso- adds layers of complication to advocacy work. Ensuring phy that recognizes that true expertise and power fun- that they are working towards a shared vision for change damentally lies within ethnic communities themselves. is therefore both a critical challenge and a high-priority goal for APANO, which offers multiple entry points for As explained by one HTA partner, even in their capac- community engagement: ity-building work with vulnerable communities and Introduction to APANO These interactive workshops organizations, it has been important for them “to not are designed to introduce APANO and highlight the confuse capacity building with a lack of community “Power of Participation” for APIs that are new to social assets.” A few HTA partners emphasized the importance change work. of leveraging cultural infrastructure and honoring self- Many Rivers Listening Circle Project These ongoing determination of ethnic communities in their panethnic listening circles were devised as a way for under-represented API communities to inform policy advocacy advocacy. As one HTA partner shared, their advocacy strategies and ultimately improve APANO’s account- has largely been successful because of its explicit focus ability to these communities. on “supporting people towards their own priorities and APANO’s HEART APANO’S Health Equity and Reform goals and dreams, instead of giving them priorities and Team (HEART) engages interested community mem- goals and dreams and asking them to sign on.” bers in addressing health disparities facing Oregon’s API community through monthly meetings.

Policy Advocacy / Civic Engagement Work Group This ongoing working group helps guide the process for Implications for Funding Partners developing a legislative agenda for APANO. Youth Advocacy Institute APANO’s Youth Advocacy Institute aims to engage younger generations in APANO The complex challenges and emerging strategies of advocacy by bringing youth and youth mentors together HTA partners presented in this paper provide valu- to bridge the gap between the younger and older gen- able insight for those committed to community- erations, deepen understanding of a pan-Asian/Pacific Islander culture, and learn new skills to help unify and driven advocacy to address racial disparities. Further, advocate for community needs. their experiences offer clear implications for funders By offering multiple points of entry into their advocacy to consider as they invest in coalitions representing work, APANO is better able to ensure participation from diverse constituencies like the Asian American, Native a wide array of community members, which is important Hawaiian, and Pacific Islander population: to the organization. As APANO’s Coordinator shared, “When engaging with APANO, we have a lot of people who need to buy in. It’s not about one person making a decision. It really needs to be a group decision.”

12 Patience and flexibility for meaningful relationship vulnerable AA and NHPI children and families they are building. The experiences of HTA partners – partic- intended to target. ularly those who came together at the onset of this funding initiative – provide evidence of an “arc” of col- Investments in capacity building. Finally, the find- laborative development in which upfront investments ings in this paper resonate with HTA’s theory of social in meaningful relationships building is foundational for change, which is deeply rooted in collaborative and collaboration. Particularly given the diversity of the AA organizational capacity-building goals. Priorities and NHPI population, it may be unrealistic to assume a around self-determination of vulnerable communities preexisting panethnic consciousness that would serve must go hand-in-hand with capacity building. Find- as a starting point for collective action. In supporting ings in this paper underscore the potential of pan- meaningful panethnic racial disparity work, therefore, ethnic coalitions as a vehicle for not just leveraging funders may want to consider multi-year timelines that power, networks, and resources within the AA and include space for upfront relationship building. NHPI umbrella, but also in targeting direct and asset- based capacity building support to individuals, orga- Expanding definitions of advocacy capacity build- nizations, and collaboratives to ensure the strength of ing support. The emerging strategies shared by HTA the greater whole. partners in fostering an AA and NHPI group consciousness are notable in that they imply a need for a type of advocacy capacity building that is not recognized within traditional frameworks. Namely, foster- Conclusion ing a sense of inter-connectedness and attending to racial reconciliation and healing require skilled facili- Despite the unquestionable potential behind an AA tation, as well as shared racial justice frameworks and and NHPI movement for health equity, the experi- language to effectively move panethnic groups for- ences of HTA partners suggest the unique challenges ward. An opportunity therefore exists for funders to the AA and NHPI population faces in building pan- explicitly invest in and promote racial reconciliation ethnic coalitions for change. Notably, as HTA partners and healing as a part of advocacy focused on issues reflected on their AA and NHPI coalition-building of racial disparity. efforts in their local regions, an overwhelmingly common observation was how little acknowledge- Redefining notions of “powerful” coalitions. While ment has been placed on the complexity of manag- typical assumptions about “powerful” coalitions are ing this challenge and how limited the opportunities often rooted in the volume of their voice in policy have been to have meaningful dialogue that unpacks debates, the experiences of HTA partners suggest that promising practices for this community. Many of the their power is defined in the timbre of their voice and emerging strategies shared through this paper lay the degree to which the nuanced aspects of AA and the groundwork for such a dialogue by considering NHPI experiences are brought to bear in the health how to build an enduring collective within which all policy decisions that affect their lives. This suggests members can clearly see themselves and their rela- a different yardstick of defining success. Success may tionships to one another – one that calls its members not simply just be about counting policy wins, but also to action and reignites their collective consciousness the assurance that these policy wins are authentically and which also authentically represents the diversity informed by the experiences and voices of the most of the AA and NHPI umbrella.