Posted November 1997
Participation in practice
Lessons from the FAO People's Participation Programme
The limits of "conventional" projectsHow do some conventional projects discriminate against the poor? A classic example comes from Nigeria, where a large scale agricultural development project channeled assistance to "progressive" farmers and chose to work through the existing socio-economic structure, assuming that this would win local cooperation. Result: subsidized credit to buy tractors and pay for labour and fertilizer helped to create a small class of "overnight farmers", mainly wealthy city dwellers. Most inputs went to richer landowners, while subsidized fertilizer encouraged farmers to abandon traditional manuring practices. And none of this led to production increases: per hectare yields of staple crops was the same for project participants and non-participants.
The basic fault in the conventional approach is that the rural poor are
rarely consulted in development planning and usually have no active role
in development activities. This is because the vast majority of the poor
have no organizational structure to represent their interests. Isolated,
undereducated and often dependent on rural elites, they lack the means to
win greater access to resources and markets, and to prevent the imposition
of unworkable programmes or technologies. The lesson is clear: unless the
rural poor are given the means to participate fully in development, they
will continue to be excluded from its benefits. This realization is provoking
new interest in an alternative rural development strategy, that of people's
participation through organizations controlled and financed by the poor.
The WCARRD concept of rural development
People's participation in rural development is by no means a new concept.
It was formulated in the mid-1970s, amid growing awareness that development
efforts were having little impact on poverty. At the World Conference on
Agrarian Reform and Rural Development (WCARRD), held in Rome in 1979, the
international community identified the reason for this failure - the lack
of active participation of the poor in programmes designed, supposedly,
to assist them.
WCARRD declared that participation by rural people in the institutions that
govern their lives is a basic human right. If rural development was to realize
its potential, the Conference said, disadvantaged rural people had to be
organized and actively involved in designing policies and programmes and
in controlling social and economic institutions. WCARRD saw a close link
between participation and voluntary, autonomous and democratic organizations
representing the poor. It called on development agencies to work in close
cooperation with organizations of intended beneficiaries, and proposed that
assistance be channeled through small farmer and peasant groups.
Participation in practice
Since WCARRD, developing countries have suffered economic set-backs unforeseen
in 1979. With their economic survival at stake, many countries have been
forced to cut back on rural development, giving priority to growth ahead
of WCARRD's concern for participation and equity. During this same period,
however, great progress has been made in the elaboration of participatory
principles and methodologies. Spurred by WCARRD, the Food and Agricultural
Organization launched the People's Participation Programme, or PPP, in 1980.
Since then, PPP has implemented pilot projects throughout the developing
world in an attempt to test and develop an operational method of people's
participation for incorporation in larger rural development schemes.
The experience of PPP has demonstrated that true participation is possible only when the rural poor are able to pool their efforts and resources in pursuit of objectives they set for themselves. The most efficient means for achieving this objective, FAO has found, are small, democratic and informal groups composed of eight to 15 like-minded farmers. For governments and development agencies, people's participation through small groups offers distinct advantages:
The pivotal role of people's participation in development is now re-emerging in economic and social development thinking. One striking example of this trend comes from the World Bank. In its proposed strategy for sustainable development in Africa, the Bank calls for a "people-centred" approach that will improve the poor's access to productive assets, allow them to participate in designing and implementing development programmes, and foster their involvement in institutions from village to national level. UNICEF has proposed similar measures in its strategy for structural adjustment "with a human face", stressing people's participation in the formulation of development policy, and efforts to make full use of local potential. FAO believes that the participatory approach described in the following pages will be an essential part of any strategy to meet the challenges ahead.