P Prriivvaattee S Seeccttoorr P Prroom moottiioonn iinn C Coonnfflliicctt E Ennvviirroonnm meennttss –– FFiirrsstt E Exxppeerriieenncceess ffrroom m tthhee P Prriivvaattee S Seeccttoorr P Prroom moottiioonn P Prroojjeecctt ((P PS SP P)),, N Neeppaall Authors: Armin Hofmann (GTZ Nepal), Daniel Bagwitz (GTZ Nepal) and Helmut Grossmann (Free-lance Consultant), Kathmandu / Frankfurt, January 2006 TTaabbllee ooff C Coonntteennttss Introduction_______________________________________________________________ 2 Background: The conflict between Maoist rebels and the ruling elites is fought on the poor people’s back. ____________________________________________________________ 2 The Conflict has severely affected the private sector, thus aggravating structural problems. 3 The GTZ Private Sector Promotion Project approach: Sub sector promotion, Local Economic Development, Chamber Support ______________________________________________ 4 The Sub-sector or Value Chain Promotion approach can be used to get a better understanding of an on-going conflict and to design conflict transformation activities of the private sector. _____________________________________________________________ 5 The Local Economic Development (LED) Approach is suitable for avoiding new conflicts and for addressing the root causes of on-going conflicts ______________________________ 11 Business Promotion and Location Development in the context of LED can be adjusted to become conflict sensitive. __________________________________________________ 14 Outlook: Private sector promotion in conflict environments has to directly benefit disadvantaged people . ____________________________________________________ 17 Outlook: Private sector promotion in conflict environments has to win the support of larger businesses and their organisations. ___________________________________________ 17 1 IInnttrroodduuccttiioonn In recent years much has been published on the subject of private sector promotion in post-conflict countries. However, very few experiences have been documented with regard to private sector development operations in on-going conflicts. This short paper describes how the Nepal-German Private Sector Promotion Project (PSP) tries to address the ideology-based conflict between the government of Nepal and the Maoist rebels. There may be a number of lessons to be learned for other similar projects in conflicts around the world. B Baacckkggrroouunndd:: TThhee ccoonnfflliicctt bbeettw weeeenn M Maaooiisstt rreebbeellss aanndd tthhee rruulliinngg eelliitteess iiss ffoouugghhtt oonn tthhee ppoooorr ppeeooppllee’’ss bbaacckk.. Since 1996 Nepal is facing a violent conflict between the Nepalese government and the militant Communist Party of Nepal. The so-called Maoists (they are not supported by the Chinese Government) aim to abolish monarchy in order to establish a communist republic1. Today they control about 80% of rural Nepal, except the district headquarters and the Kathmandu valley, thus effectively crippling the supply of public services. Only selected donors, NGOs and International NGOs as well as the private sector are in a position to operate in the Maoist-controlled areas. The conflict has become increasingly violent: an estimated 12.000 people have already been killed and many more people suffered from human rights violations conducted by Maoists and the Security Forces. The common people are trapped between the conflicting parties. Especially in rural areas the warring parties press the population for support. As a consequence the number of internally displaced persons increased significantly; many young people have joined the Security Forces or the Maoist army to earn a living; others have migrated to urban centres or left the country. The volume of remittances from overseas workers (mostly in India, Arab countries and in Malaysia) has jumped from USD 139 million in the year 2001 to USD 808 million in the year 2004: this accounts for almost 14% of GDP and 55.8% of total 1 However, in December 2005 the Maoists have agreed with political parties to join a democratic system. 2 foreign currency reserves. Human capital has become Nepal’s number one export. 25% of all Nepalese households receive remittances. However, very poor households are rarely amongst those that benefit. TThhee C Coonnfflliicctt hhaass sseevveerreellyy aaffffeecctteedd tthhee pprriivvaattee sseeccttoorr,, tthhuuss aaggggrraavvaattiinngg ssttrruuccttuurraall pprroobblleem mss.. After a decade of privatisation and liberalisation the private sector has become Nepal’s largest employment provider outside the primary sector (more than 65% of the working population still depends on small scale agriculture and forestry). The Nepali private sector has two distinct faces. On one side there is a small number of larger firms in the hands of powerful business families. On the other there is a large number of micro and small enterprises (99% of all enterprises according to UNDP definitions) with very little power at all; many of them belong to the informal sector. Overall, the Nepali private sector is not very well developed when compared to Nepal’s big neighbours and competitors, China, Bangladesh and especially India. There are many structural reasons for this slow development in the private sector. The conflict in the country has aggravated that situation. Many larger enterprises have been targeted by the Maoist rebels directly because they are perceived as capitalist exploiters and part of the ruling elite. Some of the companies have shut down or re-located their operations. Others meet the demands of the Maoist leaders (e.g. by increasing the salaries of their workers) and pay a tax charged by the rebels. There is also an indirect impact on the private sector: due to frequent strikes and curfews many enterprises lost income opportunities and faced increased costs; oversees importers are sceptical to enter business contracts, raw material supply is hampered and sales commitments cannot be met. As a landlocked country Nepal heavily depends on road-transport, connecting it to the markets and ports of Bangladesh and India. In addition, public and private investments are being delayed due to the political uncertainty. The structural problems are not being addressed by the public sector. Between 1999 and 2002 the number of manufacturing enterprises is reported to have dropped from 3557 to 3213, thus decreasing the employment in manufacturing industries by almost 3% (from 187,316 to 181,943). 3 TThhee G GTTZZ P Prriivvaattee S Seeccttoorr P Prroom moottiioonn P Prroojjeecctt aapppprrooaacchh:: S Suubb sseeccttoorr pprroom moottiioonn,, LLooccaall E Eccoonnoom miicc D Deevveellooppm meenntt,, C Chhaam mbbeerr S Suuppppoorrtt As mentioned above, the Maoist rebels have effectively destroyed public services in 80% of the country; only some donors, NGOs and International NGOs as well as the private sector are in a position to implement development programmes. Since the private sector is not party to the conflict, its structures (associations and chambers) provide an excellent entry point to many regions and sections of the society, thus ensuring outreach and sustainable impact. The GTZ Private Sector Promotion Project tries to capitalise on the private sector’s organisational structures in order to combine classic income and employment promotion with conflict transformation. The purpose of the project is to enhance the competitiveness of Nepal’s private sector to generate income and employment growth, by facilitating competitiveness in selected sub sectors and value chains, business membership organisations to provide quality services, local economic development initiatives. Operating from a joint project office with the Rural Finance Nepal (RUFIN) Project, knowledge and resources both in the fields of private sector promotion and rural finance are combined. Activities are carried out with local intermediaries in order to transfer knowledge, improve structures and thus achieve high sustainability. The PSP and RUFIN Projects are jointly implemented by the Governments of the Federal Republic of Germany and His Majesties Government of Nepal. 4 TThhee S Suubb--sseeccttoorr oorr V Vaalluuee C Chhaaiinn P Prroom moottiioonn aapppprrooaacchh ccaann bbee uusseedd ttoo ggeett aa bbeetttteerr uunnddeerrssttaannddiinngg ooff aann oonn--ggooiinngg ccoonnfflliicctt aanndd ttoo ddeessiiggnn ccoonnfflliicctt ttrraannssffoorrm maattiioonn aaccttiivviittiieess ooff tthhee pprriivvaattee sseeccttoorr.. A product (or a service) is generally created in a process linking primary producers, input suppliers, buyers, processors, sellers and consumers in a value chain. The value chain promotion approach attempts to optimise the value chain in such a way that the demands of the end-consumers are fully met by harmonising value chain actors, improving quality and productivity. This will increase the competitiveness of the product against similar products, allow targeting niche markets and create growth and new employment. The Private Sector Promotion Project aims at upgrading value chains in favour of income distribution for the poor, e.g. by upgrading primary processing according to market demand. Typically the value chain approach follows the following sequence: 1. Identification of sub sectors and value chains to be promoted 2. Analysis and mapping of the value chains / sub sector 3. Development of an upgrading strategy 4. Implementation 5. Assessment of results In a conflict environment the value chain promotion approach can be very useful to identify conflict transformation opportunities and to design conflict-sensitive activities. Conflict-relevant issues can be considered in each step of the above sequence. C Coonnfflliicctt--sseennssiittiivvee iiddeennttiiffiiccaattiioonn ooff vvaalluuee cchhaaiinnss The first conflict-relevant issue to be considered is the selection of value chains which will receive project support. Possible criteria for selecting value chains are: Importance for the livelihood of conflict-relevant target groups (e.g. in tea production in Eastern Nepal) Support for conflict affected regions that provide primary inputs (e.g. herbs and medicinal plants from the west of Nepal) 5 Relevance of the value chain for the national or local economy Market demand and growth with regard to the products of the value chain Competitive advantage of the value chain Potential for employment creation within the value chain Conducive policy environment Donor involvement and linkages with other development projects Based on a scoring exercise the PSP has selected six sub sectors which are important for rural people and the economy: bamboo, honey, orthodox tea, herbs and medicinal plants, Lokta (hand-made) paper and mandarin oranges. In addition, the hand knotted carpets sub sector was chosen, in particular due to its importance for employment in Nepal. 6 C Coonnfflliicctt iissssuueess iinn tthhee aannaallyyssiiss ooff vvaalluuee cchhaaiinnss A sub sector is typically analysed on micro, meso and macro levels and with regard to actors and functions. The following illustration shows a simplified analysis of actors in the Nepal Orthodox Tea Sub sector. Figure 1: Orthodox Tea Sub Sector, Mapping of Actors M A R K E T I N C O M E O R I E N T A T I O N D I S T R I B U T I O N 7 The value chain mapping exercise is typically conducted in a workshop with stakeholders and can be extended to include a conflict analysis. Various questions can be addressed: e.g. which actors are affected by a conflict and how they are affected; which conflict causes exist (within the sub sector or externally); what kind of risks actors face and how they influence or could influence the conflict. During the workshop value chain actors can also be introduced to the subject of conflict transformation. The analysis of a value chain can highlight the impact of the conflict along the value chain and assess risks of supply chains being affected. In particular, the important role of natural resources in a conflict context can be analysed as part of any value chain (e.g. mining, extraction of timber or non-timber forest products). Finally, conclusions need to be drawn from the analysis for a strategy to decrease tensions, risks and conflict affectedness. D Deevveellooppm meenntt ooff aa ccoonnfflliicctt--sseennssiittiivvee vvaalluuee cchhaaiinn uuppggrraaddiinngg ssttrraatteeggyy A strategy for upgrading a value chain should also decrease or transform conflict. Drawing from conclusions of the analysis, objectives, milestones and activities can be identified and prioritised. The systemic analysis conducted generally leads to a multi track approach to conflict transformation. When designing activities a do no harm check is recommended. IIm mpplleem meennttaattiioonn ooff ccoonnfflliicctt--sseennssiittiivvee vvaalluuee cchhaaiinn uuppggrraaddiinngg The key to conflict-sensitive value chain upgrading is dialogue and win-win improvements. Optimising a value chain often leads to better product quality, decreasing transaction costs and increasing profits. This may be a good opportunity to convince business people to invest into better working conditions for their labourers and to support skills upgrading. Since value chains often suffer from mistrust, lack of communication and coordination between the actors, one “side-effect” of the participatory process is the building of trust and cooperation for a common goal. Value chain actors may include members of the conflicting parties. 8 The value chain approach widens the perspective of actors beyond their immediate environment. It promotes dialogue between different regions and even with foreign companies and buyers. This may provide an entry point for new perspectives on the conflict and possible solutions. - Even the warring parties may change their interference with local industries once they realise that it is generally the poor that lose most when value chains are affected. Value chains which address international social or ecological concerns can be used as examples for conflict-sensitive practice (e.g. child-labour issue in the Nepali carpet industry). This can open up avenues for market-driven improvements to the selected industry. The value chain approach involves larger firms and maybe even international companies: their involvement could be an incentive for local companies to start CSR activities. Moreover, the involvement of prominent business leaders could be used to win them as “peace agents”. However, facilitators of participatory value chain discussions have to bear in mind that the negotiations between value chain actors can also create new conflicts or increase existing conflicts, e.g. when one or a few powerful business people dominate the others in the value chain or when people, who benefit from the status quo, lose their advantage through the optimisation of the value chain. A Asssseessssm meenntt ooff rreessuullttss The assessment of results is done in line with the projects monitoring and evaluation system. In order to specifically assess the conflict transformation efforts, indicators are defined according to the objectives from the strategy. Permanent monitoring and evaluation is essential in order to guarantee that activities have led to the desired outputs for all parties involved. If deviations occur, another do no harm check is advisable. E Exxppeerriieennccee ffrroom m tthhee hhaanndd kknnootttteedd ccaarrppeett ssuubb sseeccttoorr The following example from the PSP-Project in Nepal illustrates the usefulness of the value-chain approach for conflict sensitive development and conflict transformation : Nepal’s carpet exports in 2003/04 were valued at US$ 74 million. Nepal’s share of the world market is around 6%. Due to international pressure a large share of the 9 carpets are produced without child labour and marketed with the “Rugmark” label to certify the absence of child labour in the manufacturing process. The industry contributes about 2.3% to the country’s GDP. It is very labour intensive and employs around 300,000 people, of which around 45% are women. Over the past several years, Nepal's carpet exports have been declining sharply due to lower demand and increasing competition. To make things worse, the Maoist rebels have attacked carpet manufacturers, claiming that their workers are being exploited. The PSP-project has been promoting the carpet industry since 2001, but has only recently started to look at the industry in a conflict-sensitive manner. Previous support has been focused on carpet design, marketing training, visiting of fairs, various studies and public relations as part of a trade promotion component. The analysis of the value chain has helped to identify many new areas for intervention. The impact of the conflict and opportunities to address some of the root causes of the conflict in the value chain have been identified with the help of a sub sector map. The project realized that a mere focus on the export-side of the industry does not adequately address the conditions and causes of the conflict. The future project support therefore has the objective to sustain and promote employment and incomes by enhancing the competitiveness of the hand-knotted carpet sub-sector. This is in contrast to the earlier objective which was more focused on export performance. The project has e.g. kicked off a discussion amongst carpet manufacturers to find ways to the pass on benefits from the sub-sector to the poor. An idea being pursued is to shift weaving from factories in the capital to the weavers’ homes in rural areas, for reasons of safety and convenience of the labourers. Issues of Corporate Social Responsibility (CSR) will increasingly play a role in the project’s approach to the industry. CSR and particularly child labour is an international concern, but it is also an issue taken up by the Maoist rebels. The biggest challenge for the PSP-project is to maintain and deepen the dialogue between all stakeholders in the value chain (including the foreign buyers) so that a common vision for the sub-sector, including conflict transformation aspects, can be developed and pursued. 10 TThhee LLooccaall E Eccoonnoom miicc D Deevveellooppm meenntt ((LLE ED D)) A Apppprrooaacchh iiss ssuuiittaabbllee ffoorr aavvooiiddiinngg nneew w ccoonnfflliiccttss aanndd ffoorr aaddddrreessssiinngg tthhee rroooott ccaauusseess ooff oonn--ggooiinngg ccoonnfflliiccttss Local Economic Development (LED) enables actors from institutions of a given location (municipalities, local chambers etc), as well as national level bodies, to jointly analyse competitiveness of localities and implement activities to stimulate the local economy. The “hard core” of LED combines business promotion and business location development, thus linking private sector promotion with regional or urban development. The PSP-Project in Nepal found that the LED approach2 is suitable for conflict environments because it is transparent, action-oriented and participatory, involving all relevant stakeholders in planning, implementation and monitoring. “Normal” LED tools can easily be adjusted to meet the requirement of “do no harm” and to contribute to crisis prevention or conflict transformation. The so-called PACA tool (Participatory Appraisal of Competitive Advantages) 3, which is often used to kick off a LED process, can be very useful in the conflict context. PACA follows the following sequence: Figure 2 The Sequence of PACA Source: mesopartner 2 3 Developed by mesopartner (www.paca-online.de) PACA has been developed by mesopartner (www.paca-online.de) 11 PACA typically is facilitated and implemented by a local champion involving all relevant stakeholders – private sector, public sector and civil society – to identify competitive advantages and coordinate implementation. The PSP has managed to create a “team of champions” in its pilot location Lekhnath, consisting of municipality, chamber and a local development society that has identified competitive advantages and implemented 18 activities in 7 sub sectors within 6 months without any interference of Maoist separatists. By applying this participatory approach in a very transparent way, all parties involved seem to have agreed to the benefit of LED. Although it can not be proven, it is fairly certain that also sympathizers of the Maoist movement have been involved and benefited of the activities, suggesting that the dialogue during interviews and workshops can contribute to conflict transformation or crisis prevention. The PSP-Project considers a number of ways to make PACA conflict sensitive: Select disadvantaged regions or regions in conflict for LED activities, however making sure that local actors are motivated to start a LED process. The local champion and the LED team should be acceptable to all conflicting parties and neutral towards the conflict. Ideally, they already play an active role in crisis prevention, conflict transformation or peace building. The entire LED and PACA process should be made transparent and public right from the beginning. It is important that the monitoring feedback is also made transparent and public. In the pre-exercise hypothesis workshop as well as during planning workshops and during later monitoring a “do-no-harm” check should be done for each activity. A “team of local champions” should ensure that no politicisation takes place before, during or after the LED Exercise. Participation at workshops must be carefully considered and prepared; otherwise there might be a risk that a workshop is hijacked. In particular kickoff and final presentation workshops should not offer a stage for agitators. The workshops and the workshop participants should be acceptable to all conflicting parties. Participants of the workshops should include representatives of or speakers for disadvantaged groups. Their concerns must 12 be heard (e.g. by using meso cards during exercises) but expectations should be realistic and managed during the exercise as not every good idea can be financed or implemented, which might lead to frustration. The concept of conflict-sensitive development should be presented at the kickoff workshop and again at the presentation of results and the beginning of planning workshops. Conflict issues could be part of the interviews with local stakeholders (e.g. asking entrepreneurs about the impact of the conflict on their business) and the results should be presented during the planning workshop in a positive manner (e.g. observed coping strategies, which could be used as further ideas for activities). LED facilitators have to bear in mind that dialogue between various stakeholders can also create new conflicts or increase existing conflicts, esp. when it comes to the investment of scarce public funds. Therefore, they should be familiar with moderation and conflict management techniques. 13 B Buussiinneessss P Prroom moottiioonn aanndd LLooccaattiioonn D Deevveellooppm meenntt iinn tthhee ccoonntteexxtt ooff LLE ED D ccaann bbee aaddjjuusstteedd ttoo bbeeccoom mee ccoonnfflliicctt sseennssiittiivvee.. The target group of LED activities are firms. Typically activities for supporting firms are, as illustrated in figure 3, concerned with direct business promotion, focusing on existing enterprises, start-up enterprises or attracting external companies (see chart below). Figure 3: Activities around the target group of LED Source: The Hexagon of LED, developed by mesopartner Following measures can make LED business promotion more conflict-sensitive: Support only enterprises which apply socially responsible business practices or are willing to do so. Support entrepreneurs from different social groups (or conflicting parties). Cooperate with business development service providers which are willing and able to contribute to crisis prevention, conflict transformation or peace building. 14 Include the concerns of employees and unemployed people in business promotion activities. Ensure the support programme also benefits people who are in the focus of the conflict (e.g. unemployed youth, ethnic minorities, etc.). Attract external companies that are willing and able to play a lead role in corporate social responsibility (CSR). Link enterprises to markets or franchisers that foster social and ecological responsibility (e.g. organic foods and fair-trade buyers in Europe). Support suitable business networks: e.g. promoters of CSR and conflict transformation activities. Include conflict information in location-marketing to attract investors who are willing to contribute to crisis prevention, conflict transformation or peace building. LED business promotion includes strengthening locational advantages, which makes a location more attractive for entrepreneurs and employees. In this context business promotion is combined with regional or urban, ecological and social development: Figure 4: Strengthening location advantages Source: The Hexagon of LED, developed by mesopartner 15 Following measures can make LED location development more conflict-sensitive: Since location development always affects the entire community it is essential to identify and plan in a participatory manner and communicate any activities very clearly on the basis of facts. Ensure that local resources are tapped e.g. construction and supply contracts financed by public investment are benefiting the local economy. Ensure that environmental regulations, real estate development (e.g. new industrial estates) or the upgrading of transport and communication facilities do not create new conflicts or make existing conflicts worse (“do no harm check”): e.g. research people’s dependency on natural resources, clarify property rights and usage, look into potential military use of infrastructure. Making local government more efficient and responsive should not only benefit entrepreneurs but all citizens. Improvements to housing, environment, schooling, and cultural, health and social facilities should benefit all social groups and conflicting groups. Infrastructure development should employ as many local companies and people as possible, especially from disadvantaged groups and from both conflicting parties. Social and ecological problems can be turned into business and income opportunities. However, support for such measures must consider informal “rights” of people, esp. disadvantaged groups and conflicting parties (e.g. establishing modern recycling systems may disadvantage traditional wastecollectors). Infrastructure development may be used to integrate disadvantaged groups into mainstream society or to promote dialogue between conflicting parties: e.g. community centres, market places, social housing programme, roads / bridges / public transport to remote areas. 16 O Ouuttllooookk:: P Prriivvaattee sseeccttoorr pprroom moottiioonn iinn ccoonnfflliicctt eennvviirroonnm meennttss hhaass ttoo ddiirreeccttllyy bbeenneeffiitt ddiissaaddvvaannttaaggeedd ppeeooppllee .. Based on their first experiences the PSP Project will focus on three aspects in future: identifying conflict decreasing measures within value chains by mapping the chains with a focus on conflict, ensuring quick and visible impact of all private sector promotion measures to help disadvantaged groups and thus address the root causes of the conflict; supporting business membership organisations in their effort to win their members for CSR, to improve the image of the private sector and to build trust between the private sector, public sector and the civil society; supporting the National Business Initiative to become the lead agent for peace. PSP has realised that private sector development in a conflict environment must produce quick and visible impact for the poor, for people living in the conflict affected areas and for disadvantaged groups. The former Project focus on trade promotion was not sufficient to substantially improve the lives of these people; the Project now looks at the entire value chain – enhancing market orientation and distribution of income to the (rural) primary producers. Owners of larger companies are directly encouraged by the Project to plough back some of their profits into corporate social responsibility measures. Furthermore, the Project decided to support additional subsectors which are more directly relevant for poor and disadvantaged people (e.g. handmade paper, bamboo, tea and herb production). O Ouuttllooookk:: P Prriivvaattee sseeccttoorr pprroom moottiioonn iinn ccoonnfflliicctt eennvviirroonnm meennttss hhaass ttoo w wiinn tthhee ssuuppppoorrtt ooff llaarrggeerr bbuussiinneesssseess aanndd tthheeiirr oorrggaanniissaattiioonnss.. Business membership organisations play an important role in local, regional and national economic development. PSP cooperates with these organisations to promote corporate social responsibility (CSR) amongst their members. CSR activities must be win-win for the companies, their employees and the surrounding local communities. PSP hopes that the public image of the private sector will thus change, from being seen as “dividers” to being seen as a “connectors” in the conflict context. This new image will help to build trust between the private sector, public sector and 17 the civil society. Based on this trust local, regional and national dialogue for peace may get started. In 2003 some courageous business leaders established the National Business Initiative (NBI), gathering the major business membership organisations to rally for peace and promote corporate social responsibility practices amongst their members. At present 16 trade associations are members, including the Federation of Nepalese Chambers of Commerce and Industries (FNCCI). Thus this organization represents the largest union of the private sector country-wide and is a legitimized body of the civil society, which underlines the importance of the topic "peace" for the private sector. The NBI has its own secretariat, which organizes and coordinates the peacebuilding activities of the initiative. Through its network NBI will reach out to the formal business community, the public sector and the civil society. The PSP-Project supported this peace initiative from its very beginning. The overall goal/vision is to qualify the NBI to play an active role in overcoming the national conflict and securing peace. In the case of Nepal, the following factors make the private sector a partner in peace-building: the private sector in Nepal is not a party to the conflict private sector actors enjoy access to the conflicting parties the business community is in a position to mobilise resources to support a peace-building process governments, both present and future, will need to work closely with the private sector to address economic issues the private sector has an effective network and presence throughout the country. The sustainability of the NBI initiatives is ensured by the fact that the NBI members obligated themselves to cover the costs of the initiative. The vision of PSP is to make the private sector the leader for conflict transformation in Nepal. One day the trust and platform created by the private sector may be instrumental to initiate peace talks between the warring parties. Further more, the private sector may play a crucial role in the subsequent post-conflict rehabilitation phase. 18