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Comunidades Ing.Indd The Right to Information for Marginalized Groups: The Experience of Proyecto Comunidades in Mexico TABLE OF CONTENTS EXECUTIVESUMMARY........................................................................ 3 INTRODUCTION................................................................................... 5 ACKNOWLEDGMENTS.......................................................................... 8 1.BACKGROUND................................................................................. 9 .DESIGNANDIMPLEMENTATIONOFTHECOMUNIDADESPROJECT: EVALUATIONASPARTOFTHEPROCESS............................................ 14 3.THEORGANIZATIONS’WORKINTHESTATES................................. 4.EDUCATINGFROMARIGHTSPERSPECTIVE................................... 48 5.RESULTSOFTHEEVALUATION....................................................... 55 6. PROJECT CLOSURE AND THE INTERRUPTION OF THE RIGHT TO INFORMATION (RTI) AWARENESS CAMPAIGN IN DISADVANTAGED POPULATIONS...................................................................................... 63 7.LESSONSANDCHALLENGES........................................................... 69 APPENDIX............................................................................................ 77 BIBLIOGRAPHY.................................................................................... 108 The Right to Information for Marginalized Groups: The Experience of Proyecto Comunidades in Mexico EXECUTIVE SUMMARY n 2005,Mexico’sFederalFreedomofInformationInstitute(InstitutoFederalde IAcesoalaInformaciónPública,IFAI)requestedagrantfromTheWilliamand FloraHewlettFoundationtodeveloptheProyectoComunidades(theCommunities Project).Itsoughttogivemarginalizedcommunitiesanunderstandingofthe righttoinformationasawaytoempowertheirresidentsvis-à-vistheauthorities. Theproject’sactivitiesranfromthelastquarterofthatyearthroughtheend of 2007,andtwentycivilsocietyorganizationsandmarginalizedcommunities in nine Mexican states participated. The main result of the project was the identification of effective strategies for raising public awareness about the right toinformationincommunitiesthatwereclearlyisolatedfromthegovernment decisionmakingthataffectsthem. InMexico,asmallgroupthat,inreality,alreadyhasthepowertoaccesspublic informationcurrentlyenjoystherighttoinformation(RTI).Theaverageperson rarelyexercisesthisright,andpeoplewhomprogresshasleftbehindalmost never use it. We are convinced that it is possible to raise public awareness about RTI among the country’s most disadvantaged citizens. Indeed, this is absolutelynecessaryinordertoimprovetheconditionsinwhichthosepeople liveandtheirabilitytodefendthemselvesindependentlyagainstgovernment officials. This report describes the experience of the Comunidades Project as asuccessfulcaseofsocialadvocacy.Wehavewrittenitprincipallyforthose peoplewhoareinterestedinunderstandingandapplyingeffectivemechanisms fortheadoptionofthisbasicrightandforsocialempowerment. TheComunidadesProjectinvolvedseveralIFAIadministrativeunits,alongwith specialistsingrassrootsworkwithorganizationsandsocialcapacitybuilding. Acommissioncoordinatedtheproject,andtheinstitute’sgoverningboardwas involvedindecisionmakingandmonitoringtheprojectduringitsimplementation. One of the project’s features, which set it apart from any other substantive IFAIactivity,wasitsongoingassessmentbyexternalevaluators—distinguished researchersfromUNAM’sSchoolofPoliticalandSocialSciences. Among other things, this independent evaluation allowed us to correct the project’scourseasweproceededwithitsimplementation.Italsohighlighted various lessons learned from the experience. For example, we know that marginalizedcommunitiescanbeempoweredtoemploytherighttoinformation. 3 The Right to Information for Marginalized Groups: The Experience of Proyecto Comunidades in Mexico However, as a right that is difficult to assimilate and effectively exercise, it fallsoutsidetraditionalformsofmass—andcostly—promotion.Inparticular, for beneficiaries to adopt the RTI, there needs to be an environment of trust, a pedagogy that is suitable for their conditions, and a monitoring during the process. According to the evaluators, the participation of civil society organizationsthatunderstoodtheirstrategicroleintheefforthelpsaccountfor thefavorableresultsoftheprojectactivitiestopromotetheadoptionoftheRTI. Thoseorganizationsmanagedtobuild,ortakeadvantageof,trustwithintheir communitiesinordertostimulateandmaintainthecommunities’involvement throughouttheproject. TheparticipatingorganizationsconnectedtheexerciseoftheRTItoaddressing a community’s particular problems, and they adapted learning dynamics to the beneficiaries’ profiles and the communities’ infrastructure. In other words, theycustomizedtheirworkforeachcommunityandgaveitapracticalpurpose. Among other things, they conducted specific exercises to teach people how to submitrequestsforpublicinformation,andtheymanagedtoconnecttheright toinformationatthefederallevelwiththerighttoinformationatlocallevels (primarilymunicipal).Basedonthisexperience,wecanstatethattherightto publicinformationacquiresmeaningandutilitywhenpeopleunderstanditas a useful tool for preserving other basic rights and for addressing specific needs. Withthatfocus,itispossibletoincreasecommunities’abilitytogetinvolved inthepublicarenaandtoimprovetheirownenvironment.Thatimbuesthis fundamentalrightwithintrinsicvalue. In summary, carrying out the Comunidades Project allowed us to identify appropriatestrategiesandmethodologiesforencouragingtheadoptionofthe RTIinmarginalcommunities.Thishasatleastoneconsequencethatisworth greaterconsideration:thelivingconditionsofpeoplewhoaredistancedfrom government officials and their policies can be improved, their poverty can be overcome, and the ability to get involved in their own environment can be developed,allbasedonobtaininginformationandthentakingtheconsequent actions. Unfortunately, because of bureaucratic politics, in January 008, most of the IFAI’s commissioners decided not to continue the Comunidades Project, eventhoughthisposedtheriskofwastingthelessonslearnedduringtwoand halfyearsofwork.Thisdecisionwasalsomadeintheabsenceofanyviable institutional alternatives to fulfill the legal mandate to promote the RTI in marginalizedcommunities.However,forotheragenciescommittedtoeffectively raisingawarenessaboutthisright,theproject’slessonsremainedvalid:itis 4 The Right to Information for Marginalized Groups: The Experience of Proyecto Comunidades in Mexico possibletobroadentheuseoftheRTIinmarginalizedcommunities,ifthepublic institutionschargedwiththisresponsibilityinvolveintermediaryagenciesthat areabletobuildtrustandtalkpersuasivelytoresidentsoftheseplaces.This documentistestimonytothatfact. 5 The Right to Information for Marginalized Groups: The Experience of Proyecto Comunidades in Mexico INTRODUCTION heComunidadesProject,1 truetoitsname,wasacollectiveeffortforcitizen Tempowermentviatherighttoinformation(RTI).Therelevanceoftheproject’s results was reflected the generous sharing of knowledge and experience by the project’sparticipants.TheComunidadesProjectdemonstratedthattherightto informationstrengthenscitizensandcontributestoconsolidatingdemocracy, insofarasRTIreturnstothepeopletheirpowerinthepublicarena.Oneofthe project’s principal virtues was finding mechanisms to raise awareness among themostdisadvantagedcitizensaboutarightthatwouldenablethemtoimprove their living conditions by reducing asymmetries between government officials and the governed, through the use of knowledge about public information. Thereisnothinglikeignorancetobringaboutabuseandoppression.TheRTI can resolve this by endowing citizens with knowledge about government officials andtheiractionsthataffectlocalcommunities. Thedocumentinyourhandsisdirectedprincipallytothosepeoplewhodonot grasptheutilityoftherighttoinformationforimprovingthelivesofindividuals and, above all, the life of a community. We believe that the experiences and testimoniescompiledinthesepagescancontributeideasthatcivilorganizations, community leaders, and even public officials can use to become familiar with andexercisearightthatcanhaveaneffectonthequalityoflifeofindividuals andgroups. A particularly valuable feature of the Comunidades Project was its ability to integratetheknowledgebases,infrastructures,andtheexperiencesofavariety of organizations: an international foundation, a government agency, civil society organizations, and members of marginalized communities. We hope that by identifying the principal factors that made this collaborative process possible, other organizations, leaders, and officials will find clues to facilitate thecoordinationoftheiractionswiththehelpoftheRTI. Oneoftheobjectivesofthisreportistorecognizetheorganizations’andthe communities’ enormous effort to find a way to make the RTI meaningful and to explainhowandunderwhatcircumstancestheyachievedthis. 1The ‘Comunidades’ or ‘communities’ referred to in this project are the clients with which the participatingorganizationstypicallywork,andtheycompriseavarietyofgroups:squatters,artisans, ejidatarios,peasantlaborerscampesinos,indigenouspeople,women,youth,andchildren.Theterm ‘comunidades’referstothesetofpeoplewithwhomtheparticipatingorganizationsmaintainedan ongoing,closedialoguerelatedtotheirsharedpurposeandthat,forthemostpart,areexcluded fromformaldecisionmakingagenciesinthepublicarena. 6 The Right to Information for Marginalized Groups: The Experience of Proyecto Comunidades in Mexico We have organized the content in seven chapters and an appendix. The first explains, in broad-brush strokes,
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