FINAL REP'ORT E509 Vol. 2 Public Disclosure Authorized World Bank Volume II: Social Assessment of the World Bank Sustainable Livelihoods Project December 2001 Public Disclosure Authorized Public Disclosure Authorized Environmental Resources Management 8 Cavendish Square, London WlG OER Telephone 020 7465 7200 Facsimile 020 7465 7272 Public Disclosure Authorized Email [email protected] http://www.ermuk.com FILECOPY Glossary of Mongolian terms aimag province: the highest sub-national administrative unit in the country. There are 21 aimags within the country. bag sub-district: the lowest administrative unit. bod Mongolian livestock unit equal to one cow or horse, or 6-7 sheep or goats; also used to refer to larger livestock (cattle, yaks, horses, camels). bog refers to smaller livestock (sheep and goats). duureg peri-urban district of the capital. dzud Any winter weather conditions which prevent livestock from obtaining open forage for grazing. ger round felt dwelling used by pastoral herders and residents of outer districts of urban settlements. khashaa a livestock enclosure, or a fenced enclosure around a ger, wooden house or group of dwellings. khot ail small herding group of one or a few families who customarily camp together in changing combinations. khoroo peri-urban sub district. khural elected council of people's representatives, found at bag, sum/khoroo and aimag/duureg and national levels. otor rapid winter deployment of a subgroup of the household to a distant pasture. Involves a more permanent camp and a satellite camp. sum district: the administrative level below aimag. n.b.: The Mongolian National Statistical Office (NSO) uses the term 'urban' to refer strictly to populations living in aimag centres, the capital and other larger cities. In this report the term 'settled households' includes sedentary households located both at sum and aimag centres. Acronyms used in this report IDA International Development Association LDF Local Development Fund LIF Local Initiative Fund LSPO Livelihoods Support Programme Office NPAP National Poverty Alleviation Programme MNT Mongolian Tugriks MoFA Ministry of Food and Agriculture NSO National Statistical Office OD [World Bank] Operational Directive OP [World Bank] Operational Policy PAPO Poverty Alleviation Programme Office PCD Project Concept Document PIP Project Implementation Plan SA Social Assessment SLP Sustainable Livelihoods Project Currency Equivalents $1.00 US = 1080 Mongolian Tugriks (MNT) (as of October 2001) I INTRODUCTION 1 1.1 BRIEF DESCRIPTION OF THE PROJECT 1 1.2 ROLE OF THE SOCIAL ASSESSMENT IN PROJECT DESIGN 2 1.2.1 Overall purpose and scope 2 1.2.2 Methodology 3 2 THE SOCIAL ASSESSMENT ANALYSIS 14 2.1 DEMOGRAPHIC AND SOCIO-ECONOMIC PROFILE OF PROJECT AFFECTED POPULATIONS 14 2.1.1 Overview of the core aimags 14 2.1.2 Population 16 2.1.3 Demographic trends 17 2.1.4 Poverty 19 2.1.5 Social indicators 20 2.2 ETHNICITY 21 2.2.1 Ethnic populations within the core aimags 22 2.2.2 Cultural distinctions and similarities 24 2.2.3 Language and Education 26 2.2.4 Ethnicity and social indicators 26 2.2.5 Gender and Ethnicity 27 2.3 STAKEHOLDER GROUPS 28 2.4 LOCAL LAND TENURE AND RESOURCE USE SYSTEMS 30 2.4.1 Changes in patterns of resource use 30 2.4.2 Grassland tenure arrangements 31 2.4.3 Seasonal patterns of grassland use and livestock movement patterns 36 2.5 LIVELIHOOD STRATEGIES AND PRODUCTION SYSTEMS 38 2.5.1 Livelihoods of the different stakeholder groups 38 2.5.2 Division of labour 44 2.5.3 Availability of labour 44 2.5.4 Incomes and productivity 45 2.6 RESOURCE CONSUMPTION PATTERNS 53 2.6.1 Spatial Nature of Resource Consumption Patterns 53 2.6.2 Attitudes Towards Wildlife and Biodiversity Protection 53 2.7 SOCIAL AND KINSHIP ORGANISATION OF COMMUNITIES 54 2.7.1 Social organisation 54 2.7.2 Kinship 55 2.7.3 Urban-rural links 55 2.7.4 Newforms of collaboration - herders' associations 55 2.8 CAPACITY OF LOCAL INSTITUTIONS 57 2.8.1 Fornnal and informal institutions 57 2.9 PRoJEcT RELEVANT CULTURAL AND RELIGIOUS ELEMENTS 61 2.9.1 Ethnicity 61 2.9.2 Religion 61 2.10 STAKEHOLDERS PERCEPTIONS OF THE PROJECT AS TENTATIVELY PLANNED 63 2.10.1 Pastoral Risk Management 63 2.10.2 Local Initiative Fund 64 2.10.3 Micro-credit 65 2.10.4 Project Management 65 2.11 STAKEHOLDERS' SUCCESS INDICATORS 65 3 CONCLUSIONS AND RECOMMENDATIONS 67 3.1 TARGETING 67 3.1.1 Social Impacts and Project Risks 67 3.1.2 Recommendations 69 3.2 COMMUNITY PARTICIPATION 69 3.2.1 Social Impacts and Project Risks 69 3.2.2 Recommendations 70 3.3 PASTORAL RISKMANAGEMENT 71 3.3.1 Social Impacts and Project Risks 71 3.3.2 Recommendations 73 3.4 LOCAL INITIATIVE FUNDS 75 3.4.1 Social Impacts and Project Risks 75 3.4.2 Recommendations 77 3.5 RURAL MICROFINANCE 79 3.5.1 Social Impacts and Project Risks 79 3.5.2 Recommendations 80 3.6 PROJECTMANAGEMENT 80 3.6.1 Findings 80 3.6.2 Recommendations 80 3.7 INFORMATION AND TRAINING NEEDS OF LOCAL COMMUNITY GROUPS 81 3.8 ETHNIC MINORITIES 81 3.8.1 Summary of Findings on ethnicity in the project area 81 3.8.2 Recommendations 83 3.9 INVOLUNTARY RESETTLEMENT 83 3.9.1 Findings 83 3.9.2 Recommendations 84 3.10 MONITORING AND EVALUATION 84 3.11 FURTHER STEPS IN SOCIAL ASSESSMENT 85 Tables Table 1. Sumsvisited Table 2. Population data by core aimag Table 3. Health indicators in the core aimags Table 4. Mongolian citizens by ethnicity (2000) Table 5. Population by core aimagand ethnic group (2000) Table 6. Yearly income from selected activities Table 7. Prices of essential goods and services by core aimag(2000) Table 8. Summary table: Typical livelihood strategies of households at different levels of well-being Table 9. Expected spread of benefits under SLP Table 10. Suggested indicators for measuring social impacts and participation Charts Chart 1. Herding households in the core aimags Chart 2. Net migration by regions and the capital (1995-2000) Chart 3. Patterns of migration to Kazakhstan 1991-1999 Chart 4. Incidence of poverty in the core aimags (1998) Chart 5. School attending status by core aimag and sex (2000) Chart 6. Female headed households by core aimag (2000) Chart 7. Herding households and livestock numbers in the core aimags between 1990 and 2000 Text Boxes Text Box 1. Kazakh Identity Text Box 2. Historical roots of ethnic groupings Text Box 3. Kazakh education Text Box 4. The preferences of yaks and other influences on livestock movements in Zuunkhangai sum, Uvs aimag Text Box 5. Areas of herder collaboration in 'Duulchiid" herder's association Text Box 6. A burgeoning herders' association in Omnogobi sum, Uvs aimag Text Box 7. Public Buildings in Zuunkhangai sum, Uvs aimag Annexes Annex 1: Guidelines for data collection and semi-structured interviews Annex II: Summary of Consultant's Activities in Mongolia Annex III: Social Assessment Terms of Reference Annex IV: Population breakdowns by ethnicity Population by aimag and ethnic group, 2000 Population in the core aimags, by sum and ethnic group, 2000 Annex V: Increase in livestock numbers, by species, and herding households in the core aimags, 1990 to 2000 Annex VI: World Bank Operational Directive 4.20: Indigenous Peoples Annex VII: World Bank Operational Policy 4.12: Involuntary Resettlement Acknowledgements I am grateful to a number of people in Mongolia for their assistance. Mrs. Onon, outgoing Director of LSPO, and the incoming Director, Mr. Khurelbaatar, are thanked for the direction and guidance they have given in carrying out the social assessment. The logistical support of Mrs. Pagma, Senior Operations Manager, and Mr. Gobisaipham, Financial Officer, was much appreciated and the time taken by LSPO staff mentioned above as well as Mr. Enkhtor, Director of Operations Division to voice their views on various aspects of the proposed project design contributed greatly to framing the social assessment recommendations. A debt of gratitude is owned to colleagues at the Centre for Social Development. Both Ms. Tungalag, Executive Director of the Centre, and Mr. Gantumur, Project Manager, worked with the consultant at different stages of the fieldwork in Mongolia. Their inputs were invaluable and ranged from discussions with the consultant about social issues and changes in Mongolia in relation to the SLP design, to arranging meetings and logistics, and providing interpretation. A special note of appreciation is due to Gantumur for maintaining his good humour while his skills as mechanic and navigator were tested during a journey of over five thousand kilometres. The consultant would also like to thank the local government officials, at aimag sum and bag level, and those individuals who took of their time to talk to us about their livelihoods. This report brings together the situations described and views expressed by many different people. However, opinions herein, and any errors of fact are ultimately the responsibility of the author. Natasha Pairaudeau 7 4 X7) Social Development Consultant; MA, Anthropology of Development (SOAS). Comments on this report can be direct to the author at [email protected], or [email protected]. INTRODUCTION 1.1 BRIEF DESCRIPTION OF THE PROJECT The overall goal of the Sustainable Livelihoods Project is, "to help the Government of Mongolia develop and implement a non-welfarist national anti-poverty strategy to foster secure and sustainable livelihoods for all." (PCD, p. 12). The project is to be implemented through the Poverty Alleviation Project Office (PAPO) 1 with the assistance of a World Bank IDA loan. It is planned in three phases over twelve years. Phase one is a pilot phase spread over the first four years.