From Confrontation to Collaboration

From Confrontation to Collaboration Civil Society–Government–World Bank Relations in Brazil John Garrison The World Bank Washington, D.C. Copyright © 2000 The International Bank for Reconstruction and Development/THE WORLD BANK 1818 H Street, N.W. Washington, D.C. 20433, U.S.A. All rights reserved Manufactured in the United States of America First printing May 2000 The findings, interpretations, and conclusions expressed in this paper are entirely those of the author(s) and should not be attributed in any manner to the World Bank, to its affiliated organizations, or to members of its Board of Executive Directors or the countries they represent. The World Bank does not guarantee the accuracy of the data included in this publication and accepts no responsibility for any consequence of their use. The boundaries, colors, denominations, and other information shown on any map in this volume do not imply on the part of the World Bank Group any judgment on the legal status of any territory or the endorsement or acceptance of such boundaries. The material in this publication is copyrighted. The World Bank encourages dissemination of its work and will normal- ly grant permission promptly. Permission to photocopy items for internal or personal use, for the internal or personal use of specific clients, or for educational classroom use, is granted by the World Bank, provided that the appropriate fee is paid directly to Copyright Clearance Center, Inc., 222 Rosewood Drive, Danvers, MA 01923, U.S.A., telephone 978-750-8400, fax 978-750-4470. Please contact the Copyright Clearance Center before photocopying items. For permission to reprint individual articles or chapters, please fax your request with complete information to the Republication Department, Copyright Clearance Center, fax 978-750-4470. All other queries on rights and licenses should be addressed to the World Bank at the address above or faxed to 202- 522-2422. Library of Congress Cataloging-in-Publication Data has been applied for. Contents Foreword v Preface vi Acknowledgments vii Acronyms viii Executive Summary xi 1. Background on the Civil Society Sector 1 Overview 1 Community Organizations 3 Social Movements 5 Charitable Organizations 6 Church 6 Professional Associations 7 Foundations 8 2. Nongovernmental Organizations 10 Origins 10 General Characteristics 13 Staffs and Budgets 16 Networking Efforts 18 Taking Up the Civic Banner 21 Challenges of Consolidation 23 3. Relations among Civil Society, Government, and the World Bank 25 Civil Society View of the Bank 25 Mutual Misperceptions 27 Bank–Civil Society Commonalities 28 Bank Stakeholder Participation Policies 30 Forging A Tripartite Dialogue 34 Growing Relations and Operational Collaboration 37 CSO Funding 42 Disadvantages and Advantages of Tripartite Collaboration 46 4. Conclusion 51 iii iv From Confrontation to Collaboration: Civil Society–Government–World Bank Relations in Brazil Notes 52 World Bank Addresses in Brasília 58 Attachments 58 A. References 58 B. Comments by CSO Representatives on World Bank 61 C. Civil Society–World Bank Consultation Meeting Participants 64 D. World Bank Materials on Participation and Social Analysis 66 E. List of Brazilian Civil Society Organization Directories and Studies 67 Boxes 1. The Legal Status of the “Nonprofit Sector” 4 2. Rural Landless Movement 5 3. Corporate Philanthropy 8 4. Rede Brasil Monitors Bank Portfolio 21 5. Anti-Poverty Campaign 22 6. Planafloro: From Impasse to Collaboration 30 7. World Bank Participation Policies and Initiatives 31 8. Wolfensohn Meets with Brazilian CSOs 37 9. Pursuing Sustainability in the Amazon 40 10. Northeast Rural Poverty Alleviation Program Incorporates Stakeholder Participation 41 11. Conselho da Comunidade Solidária 42 Tables 1. Legal Founding Dates of 143 NGOs 11 2. Principal Activities of NGOs 14 3. Government Funding of NGOs 18 4. Bank Mechanisms Geared to Funding CSOs 44 5. Government Small-Grant Funds Geared to Funding CSOs 45 Figures 1. Principal Beneficiary Populations of NGOs 13 2. NGO Budgets, 1990 and 1993 16 Foreword This report vividly portrays what the World Bank has all sides, especially the government and the civil soci- known for some years, that Brazil has a vibrant and ety, which are the two principal interlocutors, are learn- increasingly influential civil society sector. A civil soci- ing to collaborate well and constructively. Perhaps most ety that is multifaceted, resourceful, and largely suc- surprising are the high levels of funding within World cessful in promoting organizing and small-scale Bank cofinanced projects that are channeled to the development efforts at the grassroots level. Although civil society sector through government-managed small- nongovernmental organizations (NGOs) are most often projects funds in such areas as the environment, health, cited by Bank documents dealing with civil society, the and rural poverty. The study cites a variety of sources, study appropriately describes how other, larger sectors and growing evidence from several proven Brazilian such as community-based organizations (CBOs), social partnership experiences, that stakeholder participa- movements, and professional associations play a key tion policies and approaches can improve the perfor- role in the so called Third Sector in Brazil. Further, the mance of development projects as well as increase study describes the emerging social agenda of the pri- their social impact. Finally, the report reminds us that vate sector, particularly corporate foundations, and its despite the important advances in terms of tripartite growing partnership with government through the inno- relations, there is still a good deal of common ground vative projects being implemented by the Conselho da that needs to be cultivated so all sides—government, Comunidade Solidária. civil society, and the World Bank—can join forces more The paper also documents well the advances that effectively to promote the social development of Brazil. have been achieved in government–civil society–World Bank relations over the past several years. Many of these Gobind Nankani advances are ground-breaking and demonstrate that Brazil Country Director v Preface This study on the civil society sector in Brazil and the in civil society and government may find it useful. Its evolving relations among government, civil society, and purpose is fivefold: the World Bank was based on a variety of sources includ- ing: bibliographical searchers; project desk reviews, and • Provide a brief overview of the civil society sector site visits; focus group meetings; and individual inter- in Brazil with emphasis on NGOs views. The research began in mid-1996 with the host- • Describe the view civil society organizations (CSOs) ing of Bank–civil society consultation meetings held have of the Bank throughout Brazil, and was concluded in late 1998 after • Analyze the advances made in relations among the participation in several annual meetings of leading CSO civil society, government, and the Bank networks. It involved contact with dozens of Bank staff • Demonstrate the advantages of promoting closer col- and government officials, and hundreds of CSO repre- laboration among the three sectors sentatives throughout Brazil. • Describe some of the necessary steps to further The report is primarily geared to World Bank staff improve these relations. and particularly to task managers, yet audiences with- vi Acknowledgments John Garrison, Social Development and Civil Society World Bank: Gobind Nankani, Antônio Rocha Specialist at the Brasília Country Management Unit, Magalhães, Caroline Moser, John Clark, John Redwood, wrote this study. He relied on the support of countless Chris Parel, Daniel Gross, Warren Van Wicklin, persons who offered their assistance through the pro- Katherine Bain, Claudia Fumo, Angela Furtado, vision of information, criticism, and suggestions. Christopher Diewald, Anthony Anderson, Neila Soares, Reflecting the heterogeneous nature of the study, a wide Luiz Carlos Ros, Jairo Arboleda, and Mario Marroquin. array of persons representing the three major sectors contributed important insights or reviewed the various Special acknowledgment also goes to Neuza Queiroz drafts. These include: and Julia Conter, who helped with assembling some of the data and preparing the final version. This study Civil Society: Leilah Landim, Aurélio Vianna, Zander was made possible by the support and funding of the Navarro, Anna Cynthia de Oliveira, Nancy Alexander, Brazilian Country Management Unit. Finally, a word Michael Bailey, Rebecca Abers, and Linda Rabben of thanks go to the editorial staff of the Bank’s Social Development Unit in Washington, namely William Government: Alexandrina Sobreira, Augusto de Franco, Reuben and Bonnie Bradford, who oversaw the edit- Gustavo Rodrigues, Roberto Carreiro, Carmen Puig, ing and publishing of this report. While most grate- Luiz Carlos Abreu Mendes, Murilo Lobo, and Guilherme ful for the valuable contributions made by the many Costa Delgado colleagues above, the author is ultimately responsi- ble for the analysis, conclusions, and eventual lapses that may have occurred. vii Acronyms AACC Associação de Apoio às Comunidades do Campo do Rio Grande do Norte ABIA Associação Brasileira Interdisciplinar de AIDS ABIFARMA Associação Brasileira da Indústria Farmacêutica ABONG Associação Brasileira de ONGs ABRA Associação Brasileira de Reforma Agrária ABRINQ Associação Brasileira dos Fabricantes de Brinquedos ALOP Associação Latino Americana de Organizações de Promoção BNDES Banco

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