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A Desk Study of NRM Choices

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A Desk Study of NRM Choices Steering Community Driven Development? A Desk Study of NRM Choices Jesse C. Ribot The World Resources Institute and Robin Mearns The World Bank 2005 Report to the Natural Resource Management Thematic Group Agriculture and Rural Development Department The World Bank The Representation, Equity and Environment Working Paper Series This series is a continuation of WRI’s ‘Environmental Accountability in Africa’ working paper series (Working Papers number 1 through 21). The series was renamed to reflect the Equity Poverty and Environment team’s broadening, mostly through comparative research, to include research and analysis worldwide. This periodic working paper series presents new research on democratic decentralization and legislative representation concerning the management, control and use of natural resources. The series will present research and analysis on the effects of policies on the distribution of profits and other benefits within natural resource commodity chains and the distribution of government revenues from natural resource exploitation and trade. The objective of this working paper series is to provide researchers working at the intersection of governance and natural resource management with a forum in which to present their findings and receive feedback from scholars and practitioners around the world. Your comments can be sent to the series editor at WRI or to the authors at the contact information listed at the back of each working paper. Cover Image Artist: Mor Gueye Mor Gueye is an internationally renowned Senegalese artist. At over 80 years of age, Mor Gueye is considered the ‘dean’ of Senegal’s reverse glass painters. This technique, where he paints on one side of a glass pane to be viewed from the other, is popular in urban Senegal. The reverse glass paintings on the cover were photographed by Franklin Pierre Khoury, the art photographer of the Museum of African Art at the Smithsonian Institute in Washington, DC. ii REPRESENTATION, EQUITY AND ENVIRONMENT WORKING PAPER 38 Steering Community Driven Development? A Desk Study of NRM Choices by Jesse C. Ribot and Robin Mearns March 2005 Series editor: Institutions and Governance Program Jesse C. Ribot 10 G Street, N.E., Suite 800 Washington, D.C. 20002 USA www.wri.org iii ACKNOWLEDGEMENTS The authors thank the Task Team Leaders at the World Bank and other Bank Staff who welcomed us into their offices and agreed to be interviewed, despite their busy schedules. We also owe thanks to the team of four masters’ students at the Wagner School of Public Service at New York University: Nahreen M. Khandker, Joanna Savvaides, Liesl R. Thomas, and Rachel E. Whisenant. For their collective “Capstone Project,” they contributed to this project by carrying out an excellent analysis of roughly thirty Project Assessment Documents. Much appreciation is also due to World Bank Junior Professional Associate, Moeko Saito, who provided excellent research assistance during the last month of this study. The review was commissioned by and conducted on behalf of the World Bank's Natural Resource Management Thematic Group (NRMTG). The paper was completed and circulated at the World Bank in 2005, we are including it in this working paper series in 2008 due to wide demand for copies. We are keeping the original 2005 publication date on the cover. iv TABLE OF CONTENTS INTRODUCTION............................................................................................................. 1 Objective of the Study .................................................................................................... 1 Analytic Frame for Evaluating CDD and for Evaluating Environmental Choices......... 2 Methods........................................................................................................................... 3 Limits to the Study.......................................................................................................... 4 Findings........................................................................................................................... 5 Defining communities................................................................................................. 5 Representing community ............................................................................................ 5 What decisions are communities driving? .................................................................. 6 What do communities choose? ................................................................................... 8 Methods for influencing community choice............................................................... 9 Scaling up and sustainability ...................................................................................... 9 Lessons and Recommendations .................................................................................... 10 Institutionalizing community “inclusion”................................................................. 10 Expanding powers that communities drive............................................................... 11 Incentives for choosing environmental investments................................................. 12 Scaling up and sustainability .................................................................................... 13 WHO DRIVES CDD AND WHAT DECISIONS DO THEY DRIVE?....................... 14 How are Communities Chosen and Defined?............................................................... 15 Choosing target communities ................................................................................... 15 General criteria.......................................................................................................... 16 Poverty and needs-based criteria .......................................................................... 16 Ecological criteria ................................................................................................. 17 Practical criteria .................................................................................................... 17 Defining community: who is included?.................................................................... 17 Beneficiary-based belonging ................................................................................ 18 Residency-based belonging .................................................................................. 18 Interest-based belonging—interest, profession and user groups .......................... 19 Self selection......................................................................................................... 19 How are Communities Represented in Decision Making?........................................... 19 In list making ............................................................................................................ 19 In sub-project choice................................................................................................. 20 Non-democratic processes of inclusion in sub-project choice.............................. 20 Some form of local democratic representation ..................................................... 22 Niger: Chiefs and local governments.................................................................... 23 Romania: Representation via self-organized village committees......................... 24 Chile: Elected officials on a project committee.................................................... 25 Morocco: Custom and committees with post-hoc rural council approval and participatory evaluations....................................................................................... 26 Mali: Elected rural councils and committees of interested groups—with prefect signoff ................................................................................................................... 27 China: Representation through interviews and surveys despite existence of elected local authorities..................................................................................................... 28 Egypt: Traditional ambassadors............................................................................ 28 v In implementation—who manages funds?................................................................ 29 Local government fund management.................................................................... 29 Local administrative authorities............................................................................ 29 Project units .......................................................................................................... 29 In monitoring and evaluation.................................................................................... 30 What Decisions are Communities Driving—in What Decisions are they Represented and Why? ...................................................................................................................... 31 Shaping lists, shaping choices................................................................................... 32 National priorities matter ...................................................................................... 32 Different donors, different objectives................................................................... 33 Team composition and mix of ministries.............................................................. 33 Financing mechanism ........................................................................................... 34 What Subprojects do Communities Choose?...............................................................
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