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OCIAL DEVELOPMENT PAPERS Designing Community Based OCIAL DEVELOPMENT PAPERS ENV; RO N ME NTA L LY AN D S C C IA L l Y SU I* AIN AB LE f V F !_ D P M E N T - E I WON K Paper Number 7 June 1995 Designing Community Based Development Deepa Narayan THE WORLD BANK Social Development Papers Paper Number 7 June 1995 Designing Community Based Development Deepa Narayan This publication was developed and produced by the Social Development Family of the World Bank. The Environment, Rural Development, and Social Development Families are part of the Environmentally and Socially Sustainable Development (ESSD)Network. The Social Development Family is made up of World Bank staff working on social issues. Papers in the Social Development series are not formal publications of the World Bank. They are published informally and circulated to encourage discussion and comment within the development community. The findings, interpretations, judgments, and conclusions expressed in this paper are those of the author(s) and should not be attributed to the World Bank, to its affiliated organizations, or to mem- bers of the Board of Executive Directors or the governments they represent. This paper was originally published in June 1995 as EnvironmentDepartment Paper Number 7 (now out of print). Copies of this reprinted paper (SocialDevelopment Paper Number 7) are available from: Social Development The World Bank 1818 H Street, N.W. Washington, D.C. 20433 USA Fax: 202-522-3247 E-mail: [email protected] Contents Acknowledgments iii Acronyms and Abbreviations iv Executive Summary 1 1. Issues in Community Based Development 5 WVhyAdopt a Community Based Development Strategy? What are the Time and Financial Costs? When is Community Based Development Appropriate? 2. Key Features of Successful Community Based Development Strategies for Encouraging Participation Characteristics of Successful Community Groups Organizational Rules Ensuring Access by Women and the Poor Fitting Technology to Community Needs Effective Outreach Client Responsive Agencies Enabling Policies 3. Designing Community Based Development Programs 34 Defining Objectives: Clarity, Priority, Links to Outputs Identifying the Key Actors, their Capacity, and Interests Assessing Demand Crafting a Self Selection Process Structuring Subsidies That Do Not Distort Demand Structuring Fund Release to Support Demand Supporting Learning and Plurality of Models Investing in Outreach Mechanisms and Social Organization Using Participatory Monitoring and Evaluation Redefining Procurement Rules Annex 41 World Bank-Financed Projects Using Community Based Strategies References 53 i Acknowledgments This is one of a series of technical papers written Bank's Vice Presidencies for Environmentally as inputs to the World Bank's Participation Sustainable Development (ESD)and Human Sourcebook. Each of these papers was produced Resources Development & Operations Policy in a participatory way. Topics were selected by a (HRO), and from support from the Swedish technical committee chaired by Bhuvan International Development Agency (SIDA) and Bhatnagar; and the production of this paper was the German Gesellschaft fur Technische guided by a steering committee consisting of Zusammenarbeit (GTZ). participation practitioners with knowledge of community based development Deepa The author wishes to thank the following people Narayan convened the steering committee and for their comments and support: Bhuvan wrote this paper with support from Maria Bhatnagar, Maria C. Cruz, Gloria Davis, Jean Aycrigg. Delion, Jim Edgerton, Steven Holtzman, Pierre Landell-Mills, Kathryn McPhail, Lant Pritchett, This series builds on the work of a participation and Julie Viloria (all of the World Bank), and learning group which was led over three years Anirudh Krishna, Cornell University. Ted by David Beckman and Aubrey Williams. It has Howard provided editorial assistance and benefited from financial support from the World comment. uif Acronyms and Abbreviations NIA National Irrigation Agency (Philippines) NGO Nongovernmental Organization O&M Operation and Maintenance PROSENEAR Brazil's Water & Sanitation Project for Low Income Areas of Municipalities T&V Training and Visit UNDP United Nations Development Programme WID Women in Development WSSPLIC Water Supply and Sanitation Program for Low-Income Communities iv Executive Summary When properly designed, community based include increased efficiency and cost effective- programs can be highly effective in managing ness. Furthermore, when the success of projects natural resources, providing basic infrastruc- depends heavily on changes in behavior at the ture or ensuring primary social services. community level, promoting participation in Participation in community based development community based programs may be the only depends on reversing control and accountabil- means of meeting objectives. The examples in ity from central authorities to community Box 1 indicate the potential benefits of a organizations. Successful design requires community based approach in three broad understanding local needs, building on the areas: managing natural resources, providing strengths of existing institutions, and defining basic infrastructure and ensuring primary the changes needed in external agencies to social services. support community action. Conditions for Success Costs and Benefits From time immemorial, communities have There are two persistent myths about commu- organized themselves to take care of collective nity based programs: first, that they cost more and individual needs. And yet, in the last fifty than conventional programs and, second, that years, so many attempts at getting people to they take longer. Additional costs may be participate and take responsibility for commu- incurred at the outset in building capacity at nity based development have failed. Experi- the local level; however, these costs are signifi- ence provides some clear lessons about what cant only when community level organizations works and what does not work. Prominent have been so eroded that substantial time and among the failures have been attempts to resources have to be devoted to capacity achieve results on a wide scale through the building. And even when initial costs are high, infusion of external management, funds, and they are more than offset by subsequent gains. technology, controlled from distant places. A fundamental prerequisite of successful partici- Evidence increasingly indicates that, when the patory programs at the community level is the institutional framework is right, participatory reversal of control and accountability from community based programs actually cost less central authorities to the community level. and are also quicker to implement. In Bank funded projects, the typical pattern has been a Experience also points to a series of common slow build up period, while time is invested in elements in the design of successful programs. community organization and setting the rules The first ingredients are knowledge and for interaction, followed by speedy disburse- understanding of local needs, and of the ments. existing network of social interaction at the household, group and community level; this Once the participatory process is established, knowledge provides the basis for defining the the benefits of community based development changes needed, both in existing local 1 Designing Community Based Development organizations and in external agencies, to meet assistant overseers found many informal specified objectives. groups of farmers organized around irrigation systems. Rather than creating new organiza- Defining Changes Needed at tions, these existing groups were encouraged the Community Level to register themselves as official farmers If a community group is to function success- associahons. fully, several criteria must be met: the group Sometimes, notably when existing social must address a felt need and a common ometimes no tabl ex cing interest; the benefits to individuals of partici- organizaion is highly inequitable, creating pahn in usthe gouputwegh te cots;new groups is the only means of promoting the pating m the group must outweigh the costs; participation of disadvantaged people. Many the group should be embedded in the existing successful projects that specifically target social organization; it must have the capacity, womessful poor hat speci al leadership, knowledge and skills to manage the women or the poor have formed special task; and it must own and enforce its own rules organizathons of the poor, such as the Grameen and regulations. Steps need to be taken, there- Bank, the Self Employed Women's Association fore, whether strengthening or modifying of India, and women's farmer groups in existing organizathons or establishing new ones Nigeria and Gambia. These new organizations to ensure that these conditions are in place. are the creation of their members, drawing as to esetttscniosrimuch as possible on what is already in place. What may seem an obvious point but is often Attempts to speed up a community develop- neglected is that a group functions only be- ment process by bypassing existing institutions cause it is addressing a needfelt by its mem- and investing in new, extemally designed bers. A fundamental design flaw in a natural organizations have frequently failed in their resource management project in the Philip- aims. They also carry the danger of undermin- pines, for example, was the assumption that ing existing institutions, diminishing the upland farmers were interested in forest capacity of community members to cooperate
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