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Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized Public Disclosure Authorized SOCIETAL DYNAMICS AND FRAGILITY NEW FRONTIERS OF SOCIAL POLICY Societal Dynamics and Fragility Engaging Societies in Responding to Fragile Situations Alexandre Marc, Alys Willman, Ghazia Aslam, Michelle Rebosio, with Kanishka Balasuriya © 2013 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW Washington DC 20433 Telephone: 202-473-1000 Internet: www.worldbank.org Some rights reserved 1 2 3 4 16 15 14 13 This work is a product of the staff of The World Bank with external contributions. Note that The World Bank does not necessarily own each component of the content included in the work. The World Bank therefore does not warrant that the use of the content contained in the work will not infringe on the rights of third parties. The risk of claims resulting from such infringement rests solely with you. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorse- ment or acceptance of such boundaries. Nothing herein shall constitute or be considered to be a limitation upon or waiver of the privileges and immunities of The World Bank, all of which are specifically reserved. Rights and Permissions This work is available under the Creative Commons Attribution 3.0 Unported license (CC BY 3.0) http://creativecommons.org/licenses/by/3.0. Under the Creative Commons Attribution license, you are free to copy, distribute, transmit, and adapt this work, including for commercial purposes, under the following conditions: Attribution—Please cite the work as follows: Marc, Alexandre, Alys Willman, Ghazia Aslam, Michelle Rebosio, with Kanishka Balasuriya. 2012. Societal Dynamics and Fragility: Engaging Societies in Responding to Fragile Situations. Washington DC: World Bank. DOI: 10.1596/978-0- 8213-9656-8. License: Creative Commons Attribution CC BY 3.0 Translations—If you create a translation of this work, please add the following disclaimer along with the attribution: This translation was not created by The World Bank and should not be con- sidered an official World Bank translation. The World Bank shall not be liable for any content or error in this translation. All queries on rights and licenses should be addressed to the Office of the Publisher, The World Bank, 1818 H Street NW, Washington, DC 20433, USA; fax: 202-522-2625; e-mail: pubrights@ worldbank.org. ISBN (paper): 978-0-8213-9656-8 ISBN (electronic): 978-0-8213-9708-4 DOI: 10.1596/978-0-8213-9656-8 Cover photo: istockphoto.com Library of Congress Cataloging-in-Publication Data has been requested. 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 pol- icy needs to move beyond conventional social service approaches toward 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 pol- icy 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, cohesive, resilient, and accountable. This involves the transformation of subjects and beneficiaries 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 climate 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 • Living through Crises: How the Food, Fuel, and Financial Shocks Affect the Poor • Social Dimensions of Climate Change: Equity and Vulnerability in a Warming World • Societal Dynamics and Fragility: Engaging Societies in Responding to Fragile Situations CONTENTS Acknowledgments xi Acronyms and Abbreviations xiii Overview 1 Method and Approach 2 Key Findings 3 Operationalizing the Findings: Recommendations for Putting Social Cohesion at the Center of Development Efforts in Fragile Situations 7 References 10 Chapter 1. Understanding Fragility 11 Approach of the Study: Seeing Fragility from a Societal Perspective 13 Study Methodology 16 Organization of the Book 18 Notes 19 References 20 Chapter 2. Understanding State–Society Connectedness 23 State Building and Citizenship 24 State–Society Interactions 26 Social Cohesion and the State–Society Relationship 31 Notes 32 References 33 Chapter 3. Social Cohesion: A Convergence across Groups 39 Understanding Convergence across Groups 40 Convergence and Cohesion 42 Divergence, Bridging Failures, and Bonding Failures 49 Some Societal Dynamics Are Especially Counterproductive to Convergence across Groups 53 vii viii • CONTENTS Unintended Effects of Economic and Political Factors on Convergence 56 Going Forward: Building Social Cohesion in Fragile Situations 59 Notes 60 References 61 Chapter 4. Perceptions of Injustice and Social Cohesion 65 Perceptions of Injustice, Measurable Inequalities, and Intergroup Tensions 66 Different Criteria for Assessing Fairness 67 Contextual Factors Exacerbate Perceptions of Injustice across Groups 72 Notes 84 References 85 Chapter 5. Social Cohesion and Interactions between Institutions 89 Constructive Interactions between Customary and State Institutions, and Social Cohesion 90 Problems Associated with Unconstructive Interactions Observed in the Field 95 The Role of Civil Society in Improving Interactions between Customary and State Institutions 106 Moving Forward: Understanding How Social Cohesion Affects Broader Relationships in Society 110 Notes 110 References 111 Chapter 6. Changing Relationships and Social Cohesion 115 Population Movements 116 Generational Relationships 127 Challenges to Gender Relationships 135 Notes 138 References 139 Chapter 7. From Concept to Practice: Fostering Social Cohesion to Reduce Fragility 143 Defining a New Approach: Placing Social Cohesion at the Center of Development Strategies 144 CONTENTS • ix Prioritizing Social Cohesion through a Flexible Programming Approach 147 Creating Space to Support Voice and Mediation between Various Understandings of World and Society 150 Improving Analytical Methods and Tools to Better Assess Societal Dynamics and the Context in Which They Operate 154 Combining Social and Political Analysis 159 Notes 166 References 167 Chapter 8. Designing Policies and Programs to Build Social Cohesion 169 Addressing Perceptions of Injustice across Groups 170 Improving Interactions among Institutions 186 Supporting Civil Society in Improving the Relationship between State and Society 193 Strengthening State Capacity to Engage Positively with Society 197 Notes 203 References 203 Appendix 1. Background Papers Prepared for This Book 207 Appendix 2. Authors and Advisers of the Background Papers 211 Index 213 ACKNOWLEDGMENTS The report in this book has been prepared by a team led by Alexandre Marc, Lead Social Development Specialist, and comprising Alys Willman, Ghazia Aslam, Michelle Rebosio, and Kanishka Balasuriya. Research sup- port was provided by Benjamin Petrini, Megumi Makisaka, and Shonali Sardesai. The team was assisted by Joyce Chinsen. Lauri S. Scherer pro- vided editorial support. The work was carried out under the general direc- tion of Cyprian F. Fisiy and Elisabeth Huybens. The team was advised by a panel of experts comprising Ozong Agbor- sangaya-Fiteu, Ian Bannon, Christina Biebesheimer, Anna Bjerde, Nora Dudwick, Paul A. Francis, Varun Gauri, Bernard Harborne, Deborah Hannah Isser, Markus Kostner, Stephen N. Ndegwa, Vijayendra Rao, Caroline Mary Sage, Radhika Srinivasan, Graham Teskey, and Michael Woolcock. Many others inside and outside the World Bank provided helpful com- ments, wrote background papers and other contributions, and participated in consultation meetings, including Mary Amuyunzu-Nyamongo, Edward Aspinall, Gary Barker, Patrick Barron, Pilar Domingo, Deval Desai, Barry Hart, Dirk Kohnert, Kathleen Kuehnast, Sabine Kurtenbach, Elham M. Manea, Louis Herns Marcelin, Roland Marchal, Jennifer Olmsted, Beatrice Pouligny, Paul Richards, and Ashutosh Varshney. External review was provided by Frances Stewart. Internal peer review- ers were Christina Biebesheimer, Anna Bjerde, and Vijayendra Rao. The study team gratefully acknowledges the contributions of the German Development Cooperation, both during the analytical phase and by providing operational experiences from the field, which has been made possible through the kind support of Claudia Pragua of the German Minis- try for Economic Cooperation and Development. Much of the background