Local ownership of development programmes and projects is a key theme of EC Development policy.
This part of the Guidelines therefore provides a brief introduction to the concept of ‘participation’ and briefly profiles key issues associated with supporting
‘ownership’ objectives.
Participation and ownership are fundamental to ensuring relevance, effectiveness and sustainability.
8.1.1 Objectives of participatory approaches
Empowerment
Empowerment is often a key objective of participation i.e. bringing about a more equitable sharing of power, increasing the political awareness of disadvantaged groups, and supporting them in taking actions that will allow them to take more control of their own futures.
Capacity building
People learn best by doing things for themselves.
If people are assisted to plan and manage their own affairs the outcomes are more likely to meet their real needs. Building capacity within local agencies and groups is thus an important objective of participatory approaches. Capacity building is also important because it is a precondition for the sustainability of development initiatives.
Effectiveness
Participation can be a vehicle for increasing the effectiveness of development projects or programs.
If people have a genuine stake in a development activity and are actively involved in decision making, they are likely to give a greater degree of commit-ment, and shared objectives are more likely to be met.
Efficiency
While effectiveness is about the degree to which stated objectives are met (using whatever means and inputs that might be required), efficiency incorporates the additional consideration of cost. If project activities can be undertaken in a more timely manner through a participatory approach, it will contribute to the improved efficiency of operations.
8.1.2 Principles
The following dot points highlight key principles of participatory approaches.
8.1.3 Approach
Participatory approaches emphasise behavioural principles. These include:
8. PARTICIPATION & FACILITATION
• Involving people as subjects not objects
• Respect for local knowledge and skills
• Ensuring influence over development decisions, not simply involvement
• A learning process as much as an outcome
• An approach and attitude rather than a specific set of technical skills
• reversing the traditional roles of outside ‘experts’
(a reversal of learning - from extracting to empowering);
• facilitating local people to undertake their own analysis (handing over the stick);
• self-critical awareness by facilitators; and
• the sharing of ideas and information.
Participatory techniques are not just tools. The partic-ipatory approach is also a state of mind, an attitude.
It is about having a genuine concern and respect for the values, skills and needs of others, particularly those who are least advantaged.
8.1.4 Intensity of participation
Participation may take on various forms, and occur in varying intensities depending on the nature of the activity and the roles and responsibilities of the people and groups involved. Community members or groups may simply be required to contribute labour or some cash inputs, or be represented on a manage-ment committee, or take on full managemanage-ment and decision making responsibilities and authority.
The nature, scale and scope of the project will influence the level of participation that is practical and possible, as will a realistic assessment of skills and capacity among participating communities and groups. Building such capacity is often a specific objective of participatory approaches.
Four levels of intensity might be distinguished (they are not mutually exclusive):
• Information sharing. This is the minimal level of
‘participation’ and often consists of little more than keeping people informed – i.e a one way flow of information.
• Consultation. Consultation means that there is a two-way flow of information – a dialogue.
However, this dialogue may not necessarily impact on decision making.
• Decision making. Participation reaches a higher level when it involves individuals or groups (particularly those who are usually excluded) in actually making decisions. They have the authority and responsibility to take action.
• Initiating action. The highest level of
participation is achieved when people take it on themselves to initiate new actions. To do so indicates a significant level of self-confidence and empowerment and the establishment of organisational and management capacity.
Active/high-level participation
Passive/low-level participation
• Initiating action
8.1.5 Promoting ownership
Practical ways in which EC staff and their agents can promote ownership of projects by ‘local’ agencies and individuals might include:
Process of project • Use participatory working techniques and respect local identification and knowledge and skills
formulation • Ensure local stakeholders take a lead role in the identification and formulation stages, including use of local expertise/TA where possible
• Allow time for consultation and for building consensus – don’t force the pace
• Promote appropriate cost-sharing arrangements
• Link into local planning and budgeting calendars
• Present project proposals and costs using local budget lines/cost categories
• Ensure key documents are presented clearly/concisely and in an appropriate language
Project management • Build on/use established project management or coordination arrangements structures rather than establishing separate or parallel structures
• Ensure local partners have a lead role in decision making, including as part of management/coordination committee structures
• If there is EC funded TA, make it clear how they are to be locally accountable
Project financing • Channel funds through appropriate local financial management and
arrangements accounting systems
• Decentralise the responsibility and authority for use of funds to local partners
• Establish clear local accountabilities
• Keep financing arrangements as simple as possible
Project monitoring and • Build on local information collection, recording and reporting systems reporting requirements • Prioritise the information needs of local managers who are ‘on the
ground’
• Promote monitoring as a learning process, not an ‘auditing’ tool
• Keep reporting requirements to a necessary minimum
• Ensure the burden of reporting is realistic and reasonable Project evaluation • Prepare the TOR for evaluation studies jointly with partners
• Plan joint/collaborative evaluations which involve team members from partner agencies