Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized MULTICULTURAL SOCIETIES MULTICULTURAL NEW FRONTIERS OF SOCIAL POLICY OFSOCIAL NEW FRONTIERS DELIVERING SERVICES IN IN DELIVERING SERVICES Alexandre Marc Alexandre DELIVERING SERVICES IN MULTICULTURAL SOCIETIES NEW FRONTIERS OF SOCIAL POLICY DELIVERING SERVICES IN MULTICULTURAL SOCIETIES Alexandre Marc © 2010 The International Bank for Reconstruction and Development / The World Bank 1818 H Street NW Washington DC 20433 Telephone: 202-473-1000 Internet: www.worldbank.org E-mail: [email protected] All rights reserved 1 2 3 4 12 11 10 09 This volume is a product of the staff of the International Bank for Reconstruction and Development / The World Bank. The fi ndings, interpretations, and conclusions expressed in this volume do not necessarily refl ect the views of the Executive Directors of The World Bank or the governments they represent. 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All other queries on rights and licenses, including subsidiary rights, should be addressed to the Offi ce of the Publisher, The World Bank, 1818 H Street NW, Washington, DC 20433, USA; fax: 202-522-2422; e-mail: [email protected]. ISBN: 978-0-8213-8049-9 eISBN: 978-0-8213-8084-0 DOI: 10.1596/978-0-8213-8049-9 Library of Congress Cataloging-in-Publication Data Marc, Alexandre, 1956– Delivering services in multicultural societies / Alexandre Marc. p. cm. —(New frontiers of social policy) Includes bibliographical references and index. ISBN 978-0-8213-8049-9—ISBN 978-0-8213-8084-0 (electronic) 1. Minorities—Services for. 2. Minorities—Social conditions. 3. Multiculturalism. I. Title. HV3176.M36 2009 362.84— dc22 2009035883 Cover photo: Tran Thi Hoa, The World Bank Cover design: Naylor Design NEW FRONTIERS OF SOCIAL POLICY In many developing countries, the mixed record of state effectiveness, market imperfections, and persistent structural inequities has undermined the effectiveness of social policy. To overcome these constraints, social policy needs to move beyond conventional social service approaches to- ward development’s goals of equitable opportunity and social justice. This series has been created to promote debate among the development community, policy makers, and academia, and to broaden understanding of social policy challenges in developing country contexts. The books in the series are linked to the World Bank’s Social Devel- opment Strategy. The strategy is aimed at empowering people by trans- forming institutions to make them more inclusive, responsive, and ac- countable. This involves the transformation of subjects and benefi ciaries into citizens with rights and responsibilities. Themes in this series include equity and development, assets and livelihoods, citizenship and rights- based social policy, and the social dimensions of infrastructure and cli- mate change. Titles in the series: • Assets, Livelihoods, and Social Policy • Building Equality and Opportunity through Social Guarantees: New Approaches to Public Policy and the Realization of Rights • Delivering Services in Multicultural Societies • Inclusive States: Social Policy and Structural Inequalities • Institutional Pathways to Equity: Addressing Inequality Traps • Social Dimensions of Climate Change: Equity and Vulnerability in a Warming World v CONTENTS Acknowledgments xi About the Author xiii Abbreviations xv Chapter 1: Introduction: Culture and Services 1 Background and Defi nitions 1 Purpose and Organization 4 Chapter 2: Cultural Diversity and Public Policy 7 Migrations, Minorities, and the Demand for Cultural Recognition 8 A Growing International Recognition of Cultural Rights 12 A New Paradigm: The Concept of Multicultural Citizenship 14 Managing Cultural Diversity through Public Policy 18 Signifi cance of Cultural Diversity in Making Public Policy for Development and Poverty Reduction 22 The Risks of Taking Culture into Account in Developing Public Policy 26 Chapter 3: Cultural Diversity and Service Delivery 31 Education 31 Health Care 40 Cultural Services 46 Delivering Services through Traditional Local Governance Systems 49 vii viii • DELIVERING SERVICES IN MULTICULTURAL SOCIETIES Chapter 4: Designing and Implementing Policies That Support Cultural Diversity in Service Delivery 57 A Conceptual Framework to Guide Policies 58 No Universal Solutions 60 Understanding Political Motivations 60 Integrated and Multisectoral Approaches 62 Establishing National Frameworks for Managing Cultural Diversity 64 Establishing Clarity in Decentralization Frameworks 65 Involvement of Concerned Sociocultural Groups 66 Balance between Citizens’ Rights and Cultural Rights 67 Socioeconomic Conditions 69 Cost of Multicultural Programs 70 Long-Term Investments and Strategies 71 Evaluation 72 Chapter 5: Adapting Services to a Diverse Society 75 Appendix: What Is Cultural Identity? 79 Bibliography 83 Index 91 Boxes 1.1 Defi nitions 2 2.1 Minority Group Designations and Defi nitions 10 2.2 UN Recognition of Ethnic and Racial Rights 13 2.3 Agency: A Defi nition 17 2.4 Dominant Minorities 23 3.1 Success of Multicultural Education Reform in Papua New Guinea 32 3.2 Maori Immersion Education and Education Outcomes 34 3.3 Institutionalized Discrimination: Segregated Schooling for the Roma 36 3.4 Social Inclusion and Preschool in Albania and Kosovo 38 3.5 Considerations in Bilingual Education 40 3.6 Roma Health Mediators in Roma Communities 42 CONTENTS • ix 3.7 Traditional Medicines, Contemporary Issues 45 3.8 The Return of the Kanun and the Fis in Albania 51 3.9 Local Governance versus National Citizenship in Totontepec, Mexico 54 4.1 The Vicious Cycle of Stereotyping 70 4.2 Lack of Financing Undermines Bulgarian Native Language Policy 71 ACKNOWLEDGMENTS The author is grateful for the support and advice of Shelton Davis of Georgetown University and for input provided by Abebe Zegeye, Costanza Hermanin, Kelci Lowe, Oscar Augusto Lopez, and Vivian Andreescu. Thanks are also due to Anis Dani, Antonela Capelle-Pogacean, Dena Rin- gold, Michael Woolcock, Tim Campbell, Caroline Kende-Robb, and Steen Jorgensen for reading and commenting on various drafts; and to Lauri Friedman and Nita Congress for editing the text. This book is an out- growth of the 2006 World Bank study, “Cultural Diversity and Delivery of Services: A Major Challenge for Social Inclusion.” xi ABOUT THE AUTHOR Alexandre Marc has worked on local development, confl ict, and youth inclusion issues around the world, notably in Africa, the Middle East, Latin America, Europe, and East Asia. He is a Lead Social Development Specialist in the World Bank and manages the Confl ict, Crime, and Violence team in the Social Development Department. Previously, he was sector manager for Social Development for the Europe and Central Asia Region. In between these two Bank positions, he was Director of the Roma Education Fund, an international foundation based in Budapest that supports the inclusion of Roma children in education systems; and he was a visiting fellow at the Paris Centre d’études et de recherches internationales, where he under- took research on cultural identity and minorities. His publications include “Taking Culture into Account in the Delivery of Health and Education Services,” in Inclusive States: Social Policy and Structural Inequalities (Anis Dani and Arjan de Haan, eds., World Bank, 2008) and When Things Fall Apart: Qualitative Studies of Poverty in the Former Soviet Union (edited with N. Dudwick, E. Gomart, and K. Kuehnast, World Bank, 2003). He holds a doctorate from the Paris Institute of Political Science. xiii ABBREVIATIONS AIDS acquired immune defi ciency syndrome NGO nongovernmental organization OSCE Organization for Security and Co-operation in Europe PRI Partido Revolucionario Institucional (Institutional Revolutionary Party) UN United Nations UNDP United Nations Development Programme UNESCO United Nations Educational, Scientifi c and Cultural Organization UNICEF United Nations Children’s Fund WHO World Health Organization xv CHAPTER 1 Introduction: Culture and Services The last two decades have witnessed a growing recognition of the impor- tance of taking cultural and ethnic diversity into consideration when designing and implementing development programs. As societies around the world have become more culturally diverse, and the role culture plays in the formation of identity has become better understood, governments are beginning to pay greater attention to the management of cultural diversity and are becoming more sensitive to issues of cultural exclusion. This book explores how taking cultural