Regional Environmental Technical Assistance 5771
Poverty Reduction & Environmental Management in Remote Greater Mekong Subregion (GMS) Watersheds Project (Phase I)

NGOs IN THE GMS

Involvement Related to Poverty Alleviation
and Watershed Management

Lao PDR

Gunilla Riska

CONTENTS

1 INTRODUCTION

The review of NGOs working with poverty alleviation and watershed management in some selected watershed areas, has been done within the limited time of a short-term consultancy. The aim is to get an understanding of the development of NGOs in Lao PDR to-day, with an aim to find organisations of interest for the project in its second planning phase and during implementation.

2 GENERAL

The main increase in international NGO assistance occurred after the adoption of the New Economic Mechanism (NEM) by the Government of Lao PDR in 1986. Although the Constitution of 1991 approves of the establishment of associations and organisations local NGOs are not officially recognised.

The Government officially acknowledges the importance of international NGOs and their possibilities in reaching vulnerable populations with efficient interventions, however, some mistrust still exist. The number of international NGOs in Lao PDR is growing slowly compared to the situation in e.g. Vietnam and Cambodia and there are to-day approximately 80 international NGOs present in Lao. The NGOs work in close co-operation with specific government counterparts and can through the local government reach down to local community and village level.

In the past, the work consisted of support to infrastructure development in rural areas as well on health, humanitarian aid and relief, although agriculture also has been a major recipient for a number of years. Since 1996, integrated rural development has been the biggest recipient, with main focus on human resource development. Assistance from the NGO community has increased more than ten times from USD 1.3 M in 1986 to more than USD 16 M in 1996 (UNDP, 1998).

3. LEGAL FRAMEWORK

Decree No 71/PM of April 28, 1998, pursuant to Law 01/95 and made public in English in May 1999, gives the administrative framework for the operations on international NGOs in Lao PDR. The Ministry of Foreign Affairs shall outline detailed regulations and recommendations on the application of this decree, which contains information pertaining to operations, rights and obligations of international NGOs as well as minimum budget specifications.

All matters pertaining to the activities of international NGOs are under the responsibility of the Ministry of Foreign Affairs, Department of International Organisations.

According to the Constitution, adopted in 1991, it is possible to form associations and organisations, however no law exists to implement the Constitution when it comes to local NGOs, which are still to be recognised by the government. The few organisations which internationally could be defined as NGOs, and receive financial support from international NGOs, are registered in line ministries in other capacities.

4. COORDINATION

4.1 Government-NGOs

Projects suggested by the NGOs for implementation have to be approved by the line Ministry, whereupon the Ministry of Foreign Affairs issues official approval. The NGO personnel will then be designated to line ministries, departments or government agencies. These authorities will have a say in the planning, implementing and monitoring of the projects. The government has shown some openness to decentralising decisions regarding community development supported by NGOs. Contracts for NGO development projects go through provincial and district authorities. Some, confusion over the new procedures, however, still exists and has led to major delays for many projects.

A Memorandum of Understanding is signed between the NGO and the government agency responsible for overseeing of the project.

The Government has a tight control on who is working in the NGOs, which e.g. are requested to hand in three candidates when selecting new international staff. Decision on whom to employ is made by the Government. This also goes for short-term consultants who will need a go ahead from the Ministry of Foreign Affairs based on the recommendation of the line ministry. The approval of new projects and the decision on employment often takes long time and the mechanism is considered bureaucratic by the NGOs.

Matters related to aid management, monitoring, supervising and managing foreign grants and loan-assisted projects are designated to the newly constituted Committee for Investment and Foreign Economic Co-operation (CIFEC). Functions related to planning and statistical co-ordination are assigned to the newly created State Planning committee (SPC).

A Directory of NGOs present in Lao was published in 1997. An updated version will be due in July 1999.

4.2 Networking among the NGOs

Networking among the international NGOs is fairly weak, although the NGO community has made efforts to co-ordinate activities and exchange ideas.

To improve co-ordination between NGOs, Government and other organisations an NGO Forum existed between May 1994 and August 1996 when the permission to operate was withdrawn by the Government with reference to the regulations to be drafted by the Government for the NGOs. Co-ordination between NGOs has thereafter been done through informal meetings and sectoral co-ordination group meetings. Some of these groups were established in the beginning of the 90’s. Participating in these sectoral groups are NGO staff, and especially their Lao staff, personnel from other international organisations and government staff.

The following sectoral groups have been established:

• Community Health Action Modular Participatory Approach (CHAMPA)
• Gender Development Group (GDG)
• HIV/AIDS Group
• Lao Training Network (LTN)
• Sustainable Agricultural Forum (SAF)
• Technical Advisory Group (TAG)

SAF, which was established in 1991, is a membership organisation project providing training, workshops and study tours to community development workers promoting sustainable agriculture. Members of SAF are: CUSO, working in Laos since 1989; Community Aid Abroad (CAA), supporting community-based rural development initiatives since 1988; CIDSE, operating in Laos since 1978; Japan International Volunteer Centre (JVC) working in Laos since 1988, and Mennonite Central Committee (MCC) active in Laos since 1975. SAF is networking with Terra in Thailand and IIRR (International Institute for Rural Reconstruction) in the Philippines.

CHAMPA, which started in 1990 as a project under CIDSE, still remains under the legal umbrella of CIDSE, although it is independent in terms of funding and management, and is looking for funding from international NGOs outside Lao PDR. A consortium of approximately 15 NGOs support CHAMPA, which has developed a national training strategy for village health volunteers. CHAMPA is networking within the CIDSE system.

To foster good relations and development for women, the Gender Development Group (formerly WID Group) meets regularly to discuss gender issues and to improve co-ordination and co-operation among NGOs, international organisations and the Lao Women’s Union. The group is under the umbrella of World Education.

Co-ordinates and shares information on HIV and Aids among NGOs, international organisations and Government officials. The group meets every three months.

Meets monthly to share experiences on training.

Networks among the NGOs and other projects working with irrigation schemes.

Different forms of regional networking exists; several of the international NGOs have regional linkages to draw experience from other programmes in the region, some of them regularly exchange views and experiences with colleagues in sister organisations in neighbouring countries. These are e.g. Care, Save the Children, Oxfam, Action Faim, Food for the Hungry, NCA and CIDSE. E.g. NCA, which has established a Regional Office in Vientiane, and is developing a NCA Regional AIDS Strategy through a network of individuals and institutions in Lao PDR, Vietnam and Thailand and Myanmar. Co-operation with Cambodia will start this year.

In addition the networking with sister organisations other forms of regional networking exist, e.g. TERRA of Thailand is which together with CUSO, Lao providing financial support to CFSU, the Community Forest Support Group with CFP (The Community Forest Project) as an extension. CFP was established by the Department of Forestry, being the implementing agency, to support Community Forestry Activities.

5. ROLE OF NGOs

5.1 International NGOs

Today there are some 80 international NGOs working in Lao PDR, either directly in projects financed by their own organisations or as executing agencies for or in co-operation with bilateral or multilateral donors or funders. Most of them have started operations during the 90’s.

The international NGOs in Lao PDR, work closely with government counterparts, mainly with the local government but also national level and primarily through the Ministries of Agriculture and Forestry, Health, Education, and the local organisations Lao Red Cross, Lao Women’s Union and to a growing extent with the Lao Youth Union.

In the past the work consisted of support to infrastructure development in rural areas as well on health, humanitarian aid and relief, although agriculture also has been a major recipient for a number of years. Today, integrated rural development is the biggest recipient, with main focus on human resource development. Strengthening the capacity of Lao partner-organisations, government as well as private is considered a focal point.

In order to engage more Lao citizens in NGO work, many international NGOs are involving their local colleagues directly in the operation of their organisations’ programmes and in two cases the international NGOs are run by Lao citizens. Since 1997, CIDSE’s (Comite International pour le Development et la Solidarite) country representative and core management team consists of local LAO nationals. This is a result of CIDSE’s policy of encouraging local initiatives, the government’s supportive attitude, and the team’s organisational and management capacity. Also Community Aid Abroad, CAA, is headed by a Lao citizen. The government has recognised the benefits.

NGOs have recognised the importance of women issues and gender matters and two NGOs, i.e. CAA and SCF-A are working with Lao Women’s Union at central level while e.g. Japanese Volunteer Committee (JVS), Quaker Services Laos (QSL), Save the Children Australia (SCFA), World Education (WE) and Family Planning International Assistance (FPIA), CIDSE, SCF-UK, NCA and ESF work closely with local LWU units, incorporating women-s concerns into their work both at provincial and lover levels. Many of these projects have provided funds to women for vocational training, improvement of agricultural production, animal husbandry and handicrafts; health education on basic hygiene and sanitation; environmental protection; and non-formal education for improvement of literacy and life skills. More recently, activities have been developed which specifically target gender issues.

Pure advocacy NGOs as e.g. in the neighbouring countries of Thailand and Cambodia are not present in Lao PDR. The Government expects the NGOs to work in accordance with Government’s political framework and do not accept critical voicing. However, introducing new ways of approaches, innovations and development models is accepted.

NGO assistance has been relatively province directed. The major recipients of NGO assistance during 1997 were Vientiane province and municipality, and the provinces of Phongsaly, Savannakhet and Sayaboury.

Several NGOs implement projects or project components with financing from bilateral and multilateral agencies.

Among the largest NGO contributors are World Vision, Care International, The Consortium, Handicap International, Mines Advisory Group, Norwegian Church Aid, Quaker Service, and Save the Children-Australia.

5.2 International NGOs at selected watersheds

The Lao mission to the RETA 5771 Mid Term Review meeting in February 1999 selected three watersheds to be short-listed and further studied. These watersheds are Nam Ou in the province of Phongsaly, Se Kong in Attapeu, and Nam Beng in Oudomxay province, with Nam Ou as first priority. Several NGOs are working in these provinces, mainly with health and capacity building. The watershed of Nam Ou, located in Phongsaly province is considered as the first priority of the watersheds. In addition the location for one possible regional project between Lao PDR and Vietnam was identified in the Nam Ou watershed. Several NGOs with a long history in Lao PDR work in these provinces.

5.2.1 Phongsaly province

The Mennonite Central Committee, which started operating in Lao PDR already in 1975, is involved in integrated rural development activities as well as in strengthening the capacity of district Government staff and Lao MCC staff. Save the Children UK, which also has a long history in Lao PDR – since 1972 – is supporting Lao PDR through an education programme which assists the implementation of Government reforms in upgrading teaching skills, school improvement and management and strengthening co-operation between schools and community. SCF UK has a pre-school in-service training. The Church World Service is assisting in the development of rural minority villages through non-formal education activities and programmes which upgrade and train primary school teachers.

5.2.2 Attapeu province

Several NGOs are operating in Attapeu province with issues mainly concerning health and human resource development.

Health Unlimited is strengthening the provincial primary health systems through training and upgrading health facilities. HU is also implementing a malaria programme.

Source: Directory of NGOs in the Lao PDR, 1997

5.2.3 Oudomxay province

Also in Oudomxay province the main NGO activities concern health and capacity strengthening. Within the health sector Care International, Enfants d’Ailleurs and Swiss Red Cross. Ed’A is implementing a health project with the aim of improving the medical situation of mothers and children in two districts. The project operates at provincial, district and village level.

Church World Service is assisting in the development of rural minority villages through non-formal education activities in order to upgrade and train primary school teachers. Also Ecole sans Frontier, ESF, work with non-formal education, e.g. training of trainers in literacy courses, and education and training on Credit and Agriculture.

Forages for Smallholders Project works with the development of local systems of supply of planting material, and training in forage agronomy, seed production and supply. The Quaker Service Laos, which began its work in Laos in 1973, has two programmes in the province; A Community Development Programme which supports villagers to identify, develop, implement and evaluate their own community development plans, and a Small Scale Irrigation programme, which aims at helping farmers plan, construct and manage irrigation systems.

Source: Directory of NGOs in the Lao PDR, 1997

5.3 Local organisations

According to the Constitution, community-based organisations, associations and foundations can be established in Lao PDR on a voluntary and financially self-supporting basis. Some professional associations, trade associations, religious associations, farmers associations, Red Cross etc are operating, however only few some non-profit development oriented organisations are present.

One reason for this is that the Government does not yet approve of or understand the concept of local NGOs. E.g. the non-profit aspect has led to discussions regarding taxation. As some mistrust towards the NGO community in general exists, the local organisations fear that voicing their views will be considered negatively by the government. They are not very happy to be quoted and prefer to work in isolation. Also their interest to work with a loan-funded project is limited. Among those few organisations working with development matters and who operate like NGOs are e.g. the Participatory Approach Training Centre, the Credit Group and the Handicap Association.

However, in addition to these groups several mass organisations participate in development matters. They are closely linked to the Party and have a network stretching from top level down to grassroots level.

Due to shortage of trained people in Lao, all local organisations face problems caused by lack of capacity, competence and professionalism. This becomes more evident today, when the growing number of internationally funded development projects are draining the resources of qualified staff.

Among the mass organisations, i.e. Lao Women’s Union, Lao Youth Organisation, Lao Patriotic Front for Reconstruction, Lao Trade Union, the Women’s Union is of special interest for RETA 5771 as the Government has specifically entrusted them with the task of upgrading the role and status of women and actively involving them in the development process.

Lao Women’s Union is constitutionally recognised as the country’s sole women’s organisation with an institutional network throughout the country. As LWU has the responsibility for overseeing the implementation of programmes related to women’s development it co-operates closely with other ministries, international donors including NGOs. Not all NGOs, however, go through LWU.

From being a purely political organisation funded by the Government, LWU has moved to development work at grassroots level. The government subsidies have been cut down and LWU is looking for funding elsewhere. The union has an extensive grassroots network and reaches more than half of the adult population.

The Union has offices in the provinces as well as the districts. The staff is trained in participatory working methods, project planning, implementation and monitoring.

LWU is responsible for establishing Gender Resource Information and Development Centres in four provinces i.e. in Vientiane Municipality, Savannakhet, Sayaboury and Xiengkhuoang. The project, which is funded by UNDP and NORAD, was approved by the Government in 1997. The centres will e.g. share information and experiences on gender matters, promote gender knowledge through training and mass media campaigns. Each GRID centre will have a resource library. The gathering of gender disaggregated data will be undertaken in co-operation with National Statistics Centre.

6. CONCLUSIONS

6.1 General Conclusions

6.2 Co-operation with RETA 5771

REFERENCES

The country report is based on interviews and the following literature:

1. Directory of NGOs in the Lao PDR. 1997
2. Development Co-operation Report 1997. UNDP. Vientiane April 1998.
3. Country Report on Women in the Lao PDR. National preparation Committee for the 4th World Conference on Women .Beijing 1995
4. Jacquelin Chagnon. Women in Development. Lao PDR. Asian Development Bank. July 1996
5. Asian Development Bank. Shifting Cultivation Project.
6. Loes Schenk-Sandbergen and Outhaki Choulamany-Kamphoui. Women in rice fields and offices: irrigation in Lao. Gender specific case-studies in four villages. Empowerment. 1995
7. Asian Development Bank. NGOs in Lao. Draft
8. Various booklets and Annual reports