Voluntarism and NGOs CHAPTER 13

Voluntarism and NGOs

Introduction necessarily coterminous, tend to have overlapping A dynamic civil society in an elected, participatory objectives and many grassroots CSOs have their such as India, ensures that there is a origins in the ground-breaking work of NGOs. In strong and vocal constituency for public fi nancing this sense, NGOs have strengthened civil society. and provisioning of basic social services. It also is the best safeguard against bad , The sheer diversity of NGO activity is testimony to ineffi cient service delivery and the hierarchical the range, professionalism and expertise of these structures of decision-making that result in delays organisations. NGOs have been instrumental and red tape. At the same time, civil societies in the provision of healthcare, literacy, poverty are often fragmented and stratifi ed into ‘haves’ alleviation through sustainable development, and ‘have-nots’ on the basis of income, gender rehabilitation, women’s rights, engendered Unlike the public sector, and caste, resulting in disparities in access to human development programmes, environmental which is often accused public resources and services. The poor and the protection, HIV/AIDS support programmes, of ineffi ciency and non- marginalised lack the ability to give voice to their agriculture extension services, to name a few. They concerns. Empowering the voiceless and giving supplement government services in a signifi cant responsive behaviour, or visibility to the ‘invisible’ therefore, are signifi cant way although their methodology is different. the private sector which, aspects of the process of building strong civil driven by profi t, prices society organisations (CSOs) and forms a part The chapter acknowledges the strengths that NGOs itself out of the reach of of the agenda of many non-governmental bring to their work in diverse sectors and analyses the poor, the voluntary organisations (NGOs). Civil society organisations their contributions to human development in the are community based organisations and include state. At the same time, the constraints on NGO sector is perceived to be labour unions, NGOs, people’s groups, foundations actions are also briefl y examined. motivated by altruism, and religion-based groups. making it a suitable Voluntarism, which has its roots in altruism, catalyst for promoting the Unlike the public sector, which is often accused has a long tradition in India, and particularly in of ineffi ciency and non-responsive behaviour, or Karnataka. The roots of voluntarism are two-fold: sustainable development the private sector which, driven by profi t, prices religion and the freedom movement. Karnataka of the poor in rural areas; itself out of the reach of the poor, the voluntary has the classic example of Sri Basaveswara: an agency capable of sector is perceived to be motivated by altruism, born in 1131 AD, a very great social reformer, giving voice to the needs making it a suitable catalyst for promoting the who at the age of 16, rejected untouchability and aspirations of people sustainable development of the poor in rural and the rigid rituals that widows were forced to areas; an agency capable of giving voice to the follow; and promoted, with vigour, equal rights for and enabling the growth needs and aspirations of people and enabling the women and a casteless society. Although many of of local participatory growth of local participatory mechanisms for self- the voluntary institutions devoted to social service mechanisms for self- empowerment. This chapter will look at the role in Karnataka emerged from religion, they created empowerment. of NGOs in human development from several a distinct space for themselves and adopted a perspectives, viz. (i) while the poor continue to professional approach to developmental issues. be overwhelmingly dependent on public social However, the degree of institutional space between services, NGOs have begun to emerge as key the organisations devoted to social service and players in various human development sectors, the formal religious establishment from which thereby supplementing public efforts, (ii) NGO- they originate differs. In some institutions, for driven initiatives often bring a more participatory example, the religious head is also the head of and empowering focus to development, the social service institution, while in others, the (iii) NGOs and civil society organisations, while not social service organisation is more autonomous.

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The degree of space between the religious which are also membership institutions but establishment and the social service institution whose members are from the ‘targeted sections’ shapes the social and development strategies that of development interventions and a majority are the latter selects as its mission. poor. Many NGOs are involved in building these community based institutions. The other major source of voluntarism was the freedom movement, and Mahatma Gandhi in The plan documents, even the Seventh Plan, do not particular. There are hundreds of organisations in use the term ‘NGO’. The Tenth Plan is the exception. Karnataka, which originated during the freedom The earlier Plans used terms like ‘people’s movement and continue to do constructive work in participation’ (Sixth Plan), ‘voluntary agencies’ communities, addressing issues like Dalit welfare, (Seventh Plan), ‘voluntary sector/organisation’ illiteracy and poverty. The inspirational basis for (Eighth, Ninth Plans). The focus, therefore, is on most of them is Mahatma Gandhi’s philosophy the broader portfolio of institutions described rather than any religion. above, which fall more comfortably under the umbrella of Civil Society Organisations rather than The Central Government and NGOs in the commonly understood sense. This NGOs focus on ‘voluntary’ rather than ‘non-government’ The Government of Karnataka’s approach to is part of the long tradition of voluntarism in the The recognition of the voluntary agencies is conditioned very much by country. Many voluntary organisations received role of voluntary agencies the position taken by the Central Government, grants from the Central and state governments in partnering government mainly in the plan documents. Most of the to run orphanages, homes for destitute women, plans focus on a broad spectrum of voluntary hostels for working women, hostels for Scheduled initiatives by the Centre involvement. The Sixth Five Year Plan was the Caste and Scheduled Tribe students, primary may have had some fi rst to include a reference to the voluntary sector, and secondary schools and colleges. The focus of infl uence in the initiatives even if it was only in the context of distinguishing government-voluntary agency partnership was the taken by the Government such organisations from cooperatives and management of institutions. The management of Panchayat Raj institutions (PRIs), which are poverty alleviation and social service programmes of Karnataka to bring government sponsored. In the Tenth Plan, NGOs was the preserve of the government. several NGOs into major are described as intermediary, not-for-profi t government sponsored institutions but they are referred to only twice; NGOs in Karnataka programmes. the space and attention given to the voluntary The profi le of government-voluntary organisation sector is really minimal. It is only in the Seventh partnership followed much the same path in Plan that there is an extensive discussion of Karnataka. The recognition of the role of voluntary the voluntary sector and ‘NGOs’, which are agencies in partnering government initiatives by generally understood to be not-for-profi t, the Centre may have had some infl uence in the professional, intermediary institutions, which initiatives taken by the Government of Karnataka manage programmes in the areas of economic to bring several NGOs into major government and social development, engage in advocacy, sponsored programmes. Though this experience welfare, rehabilitation and training. These NGOs has been a mixed one, there is ample evidence are generally not membership institutions. They that, on the whole, this collaboration between the form one set of institutions, which are part of public and voluntary (NGO) sectors in development a broader portfolio, which include institutions has helped to raise the ownership of people of like trade unions, professional associations, these programmes and the quality of people’s and environmental groups, which are largely institutions that subsequently emerged. membership institutions. However, the members of the membership institutions mentioned above One interesting feature of this process is that are largely from the middle and upper classes. the government itself has promoted a number of There is another category of institutions generally NGOs registered under the Societies Registration called community based organisations (CBOs) Act. These institutions, registered under the

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Societies Act, have government employees as The term ‘self-help group’ (SHG) is sometimes members and executives of the society. Almost used very ubiquitously to encompass all kinds all of these government sponsored societies have of group activity; a more exact defi nition of an been promoted in the context of bilaterally and SHG would be a group or collective of people multilaterally funded projects. Such organisations based on the affi nity of its members, who share a tend to further blur the profi le of a voluntary similar socio-economic status. The group manages organisation. In reality, they are part of the savings and credit to its members, provides access implementing structure of government. If we add to regular income to enable members to meet to these organisations set up by government, their livelihood needs while empowering them to other charitable societies and trusts set up by create social and political space for themselves in business houses as well as educational institutions their households and communities. Over time, a (including the Indian Institutes of Management) sustainable and dynamic SHG may evolve into and hospitals, the character of a voluntary an NGO and/or CSO. (See chapter 14 for more organisation becomes further indeterminate. As information on SHGs). A Community Based a result, several of the problems that NGOs - as Organisation is a generic commonly understood – continue to face, arise A Community Based Organisation (CBO) is a term, used very loosely from decisions taken by governments relating generic term, used very loosely to describe a to taxation and other forms of control that are private non-profi t organisation or group that to describe a private actually more appropriate to profi t making works within a community for the socio-economic non-profi t organisation societies like certain hospitals and educational development of that community. Very often, the or group that works institutions, but which, by default, extend to all CBO focuses on issues of local signifi cance such as within a community institutions since they all fall under the umbrella literacy, violence against women, child healthcare for the socio-economic category of ‘registered societies’. and livelihoods, to name a few. The term is also used to describe any group of people such as development of that NGOs, CBOs and SHGs SHGs, Village Forest Committees, User Groups, etc. community. Very often, the It might be useful to briefl y describe how this The term CBO is used mainly to distinguish these CBO focuses on issues of chapter considers these three institutions. As institutions from NGOs, which are intermediary local signifi cance such as already mentioned, the Seventh Plan Document organisations. The CBOs are usually membership is the only one which focuses on those institutions that function at a more ‘informal’ level literacy, violence against organisations which fi t the category ‘NGO’ as we (though some of them do register or may even be women, child healthcare now understand it, and which are not-for-profi t, compelled to register if they are to benefi t directly and livelihoods, to name professional, intermediary institutions which from certain types of government programmes) a few. manage programmes in the areas of economic and while the NGOs are invariably legal entities. social development, engage in advocacy, welfare, rehabilitation and training. The World Bank, for How successful are CBOs in managing community instance, defi nes NGOs as a wide spectrum of resources in a democratic, participatory manner? groups and institutions that are entirely or largely The CBOs referred to here are those that manage independent of government, and characterised community resources such as forests, irrigation primarily by humanitarian or cooperative, rather tanks, watersheds and village water supply than commercial, objectives. This description schemes. Most of these community user groups excludes organisations such as universities have been formed by NGOs working in a bilateral/ and research institutions which are often multilateral-funded project administered by the autonomous, and refers mainly to private, non- state government. The management of community profi t organisations that are engaged in activities resources through user groups is often a component to relieve suffering, promote the interests of the of the project structure. A survey of Village Forest poor, protect the environment, provide basic social Committees (VFCs) in Uttara Kannada district services, or undertake community development. indicates that many VFCs have been successful They depend on donations and voluntary service in eradicating the role of contractors who used to to run their organisations. exploit families who collected non-timber forest

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products (NTFP). However, power over these inputs (which cannot happen through just one or resources was then transferred to the powerful two training programmes targeting one or two families in the village who dominated the Village CBO representatives) and without the delegation Forest Committees. An employee of the Forest of at least some real authority. The latter scenario Department was the secretary of the committee can result in confl ict-situations with PRIs but a and was responsible for organising meetings and ‘happy’ solution has been found by converting keeping the accounts. As a result, meetings were some CBOs such as watershed committees, which not held regularly. This combination of legitimising handle substantial funds into sub-committees of the powerful and strengthening the nexus between the jurisdictional GP. Co-opting a CBO may mean the local Forest Department staff and the village that statutory requirements have been met since elite did little to improve community ownership the GP is entrusted with local developmental tasks and management of forest resources. Both NGOs but it does very little for the autonomy of the CBO. and government departments contributed to this Further, the nature of the CBO should depend on The formation of a CBO situation. As a result, it was subsequently proposed the nature of the resource to be managed. A milk does not automatically that Village Forest Committees be disbanded and society at the village level, for example, must ensure democratic that the panchayats take over the responsibility include both large and small farmers, as well as of managing these resources. Village forest landless families involved in milk production. It management of a given committees continue to function, however. is the large farmers who produce enough milk resource, even if NGOs to make the route viable. The small farmers are involved in the The performance of user groups in the and landless families are then able to sell their process. Besides, when management of irrigation tanks has also not marginally surplus production of milk to the milk matched expectations. This is due to many reasons, union. However, when the resource is fi nance for a CBO is formed at the the major one being that many of the cultivators in credit, if large and small farmers/landless families instance of government, the irrigated area of the tank are share croppers, are included in the same group, then the richer then, the top-down and therefore, do not have much interest in and more powerful people are likely to control all approach of management improving the land or maintaining the water the resources and ride roughshod over the poor. remains and the user source. Management of these facilities, which had not always been effi ciently managed earlier, Karnataka enjoys the distinction of fostering a groups’ dependence on means that the user groups will have to mobilise healthy relationship between the government government departments funds for payment of electricity and maintenance and NGOs. Such partnerships are established in for technical and charges. The performance of user groups in major the hope of greater synergy, and even though fi nancial assistance irrigation programmes has been comparatively they may bring confl icts in their wake, Karnataka impedes the evolution better; but there is still much to be done in building has chosen to manage these tensions, rather than a synergy between the government departments abandoning NGO partnerships altogether. of an autonomous, self- that manage irrigation and the people who managing CBO. use the water. The formation of a CBO does not Government–NGO partnership automatically ensure democratic management of What are the reasons for involving NGOs in a given resource, even if NGOs are involved in development programmes? There is a long the process. Besides, when a CBO is formed at history of NGOs being part of the service delivery the instance of government, then, the top-down system of the government; the major examples approach of management remains and the user are in health related programmes, women and groups’ dependence on government departments child care, and more recently in programmes for technical and fi nancial assistance impedes the funded by the Ministry of Rural Development. evolution of an autonomous, self-managing CBO. Involvement of NGOs offi cially in multilateral/ bilateral programmes raises the level of The conclusion is not that the CBOs have no cooperation to another level. The NGOs become place in development strategy, but that they not only implementers; they also fi nd a place in cannot be expected to discharge their functions designing and managing programmes together competently without systematic capacity building with government at all levels.

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The Government of Karnataka was the fi rst to BOX 13.1 take this step; the watershed project in Gulbarga Characteristics of NGOs’ activities (1986) was the fi rst in the country in which the GoK, a bilateral agency (Swiss Development NGOs are characterised by the diversity of their activities. They are also associated with effi cient, Cooperation) and an NGO (MYRADA) were participatory service delivery systems. Government-NGO partnerships seek to build on the offi cially involved in a triangular partnership. indisputable strengths of the good performing NGOs. These are: (i) the willingness to work However, a conceptual framework is required in remote areas among marginalised people, (ii) the ability to set in motion, a participatory which provides an institutionalised basis for such process in the identifi cation of needs, the design and implementation of programmes, (iii) the collaborations to work effectively. readiness to use and mobilise local resources, (iv) a non-hierarchical approach to working with people, (v) cost effective service delivery, (vi) freedom from red tape and (vii) freedom Assuming that the basis for Government-NGO to innovate. partnerships is the comparative advantages that each can bring into the programme, the relationship should either thrive on mutual respect – including But then, the government is not the only spaces for disagreements and compromises in the organisation that may push NGOs in a certain interests of the partnership goals – or go separate direction. Many NGOs are dependent on donor ways: there is not much space for a middle path, funds and the increasing competition for donor and to take on the roles of contractor-supplicant funds squeezes out the smaller NGOs. Donors, defeats the purpose of coming together; at any in turn, may impose standardised formats, and rate, it cannot be called a ‘partnership’. this results in NGOs losing their key strengths: diversity and fl exibility. Governments, in turn, One issue that has been worrying many NGOs is accuse NGOs of secrecy and lack of whether the ability to remain true to their core regarding donors and the use of funds. A more objectives will be diluted when the government serious concern for many governments is the issue is the fi nancing agency. How far is the NGO of mandate and . Marshcall notes prepared to go in questioning the assumptions of that NGOs must be very clear about who they the programme under implementation? There is derive their mandate from and to whom they are no doubt that the ability of the NGO to question accountable. Professing to speak for the people or will depend very much on: a) the size of the acting as alternatives to elected governments is NGO, especially at the grassroots in terms of the misleading and undermines the credibility of NGOs. area covered and people directly involved in its While tensions can erupt in the wake of successful programmes; b) the NGO’s credibility based on social awareness programmes initiated by NGOs, its past performance and those involved with it when the power elites may feel threatened (e.g. at Board level and senior management positions; anti-arrack agitations, anti-dowry actions), such and c) the ability of the NGO to negotiate with tensions can be seen to be producing outcomes government without polarising and publicising the that promote equity and social justice. It is more issue. All NGOs do not have these features, nor are problematic when NGOs and elected bodies come all these strengths equally obvious in those NGOs, into confl ict. In Karnataka, however, the very which have them. successful ‘Gram SAT’ training of PRI functionaries was implemented with NGO participation, so, it The ability to infl uence policy is also conditioned by is possible for PRIs and NGOs to harmonise their the bidding process. NGOs argue that bidding for developmental activities. contracts to implement programmes announced by the government ties the hands of the bidding Categories of NGOs in agency and puts it at a disadvantage if it were Karnataka to question the contents and implementation NGOs are usually categorised according to their strategies of programmes. However, NGOs do bid main activity. However, the history of NGOs shows for contracts and the government then deals with that many NGOs start with a particular activity, NGOs as contractors. but broaden their portfolio as they progressively

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respond to people’s concerns, which are not in Karnataka, which brought out profi les of 530 compartmentalised. Most NGOs however, are NGOs, indicates that of the 530 NGOs surveyed, mobilisers of people and providers of services. the largest numbers are engaged in development, From this basis, they move to catalysing social followed by social service and health. It also shows change and infl uencing gender relations. An that the majority, by far, are situated in central and analysis of the Directory of Voluntary Organisations south Karnataka. (Table 13.1)

TABLE 13.1 Category index of NGOs Main category Sub category No. of NGOs Culture 5 Media and communication 7 Culture and Arts Recreation and adventure 2 Total 14 Education – General 14 Scholarships for education 2 Non-formal education 1 Primary and secondary education 1 Education Value education 4 Skills/Vocational training 9 Research and scientifi c education 1 Education – others 12 Total 44 Alternative/indigenous healthcare 2 Blood services 2 Cancer-related 3 Community health 5 Disability 5 Services for the intellectually impaired 14 Services for multiple disabilities 6 Physically impaired/Cerebral palsy 11 Speech and hearing impaired 6 Visually impaired 6 Health and Rehabilitation Eye care 1 Family planning 1 HIV/AIDS 5 Hospitals 1 Leprosy 4 Mental health 5 Substance abuse rehabilitation 7 Health – General 11 Health – Others 2 Total 97 Social Service - General 49 Care of the elderly 21 Social Service Childcare, orphanages, adoption 29 Street children 2

(Table 13.1 Contd...)

284 Karnataka Human Development Report 2005

(Table 13.1 Contd...)

Main category Sub category No. of NGOs Crisis intervention, counselling 14 Destitute and abandoned 3 Total 118 Alternative energy 2 Animal and bird care 5 Ecology and environment 9 Environment Organic farming and marketing 2 Tribal communities and forests 9 Environment - Others 1 Total 28 General Development Organisations 61 Agriculture 4 Alternative tourism 1 Drinking water and sanitation 3 Handicrafts support 2 Development Housing 1 Rural development 63 Entrepreneur development 6 Slum development 13 Total 154 Child labour 9 Civic organisations/Civil liberties 5 Consumer interests and concerns 3 Dalit issues 5 Law and Advocacy Women, Gender, Rights 19 Human Rights and Legal Aid 3 Devadasis and sex workers 2 Law and Advocacy - others 1 Total 47 Documentation and research 3 Development research fellowships 1 Grant-making (Indian) 1 Grant-making (International) 1 Management, HRD, Evaluation 2 Networking and advisory services 4 Support organisations Literature (publishing/marketing) 1 Training 7 Accounting/Auditing/Legal Advice 1 Fund raising 2 Support – Other 4 Total 27 Religion – support and promotion 1 Religion Total 1 Total of all types 530 Note: This is by no means a complete list of NGOs in Karnataka and the lack of reliable data is a serious constraint. Source: Bangalore Cares: Directory of Voluntary Organisations in Karnataka, 2000.

285 Voluntarism and NGOs

Conclusion People have certain expectations of their elected It may be asked why NGOs should not take over representatives that NGOs cannot substitute. NGOs, more government functions when they have so with their indubitable strengths, play a signifi cant many advantages. The answer is that most NGOs role in advocacy, building CSOs and CBOs and are small, and hence, lack institutional capacity, implementing services at the grassroots in a have access to limited funds and all too often, participatory manner. This is their great contribution: are capable of dealing only with single issues. building a dynamic and responsive civil society and Besides, the government cannot transfer its enabling the poor and the vulnerable to speak for responsibilities for poverty alleviation, food security, themselves. This will become evident in the chapter social security and basic social services to NGOs. on self-help groups.

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