Imitation is the sincerest form of flattery (Replication and mainstreaming)

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Marilynn Williams
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1 ILO Mekong Sub-Regional Project to Combat Trafficking in Children and Women (TICW) Sharing Experience and Lessons Learned (SELL) series Imitation is the sincerest form of flattery (Replication and mainstreaming) SELL-7 Background and context For any (pilot) project which successfully achieves its objectives within its budget and timeframe, replication is essential if the same problem exists elsewhere and can be addressed in those areas in a similar way or with some modification. This is clearly the case for the TICW project, where replication is called for not simply of successful small rural livelihood projects as an alternative to migration and possible trafficking, but also the mainstreaming of approaches to local project management, coordination, strategy and policy development in the context of prevention, including participatory research, planning and monitoring. In this regard, promotion of the project s way of working and philosophy has been made during conferences, missions, and meetings to lobby government officials. In particular, emphasis is made on participatory approaches, consideration of the views of children and young people, holistic and integrated planning (including the allocation of government budget contributions), participatory monitoring, analysis and learning, networking and coordination, and the importance of documenting good practices, experiences and lessons learned. The importance of sharing information is also promoted horizontally for replication, upwards for mainstreaming, and downwards for empowerment. In addition to the mainstreaming of small projects and approaches, the project needs to mainstream the issue of trafficking itself into policy and planning processes, so that government departments can develop policies applicable at different levels, appropriate legislation, and essentially include the trafficking component into its poverty alleviation programmes and/or national five year plans for governmental (not just NGO) implementation, and with appropriate budgets. Implementation The TICW project has only been in operation for some three years, which, when the time consuming participatory approaches and capacity building activities are taken into account, is a short time for tried and tested methods to have been replicated already. However, the work began at different times in the five countries, so much has been learned within the project itself, especially by the later starters based on the experience of the earlier starters. For example, in Viet Nam, three integrated provincial projects were developed following the model set up in three provinces of Lao. The ILO-TICW project and its management have been designed to be replicable. They have been adapted and set up in five different country situations. The establishment of national and provincial steering committees, the conduct of stakeholder ownership exercises, the training of national staff in project management (MAMA), participatory planning techniques (OOPP) and participatory data collection and monitoring techniques all these have ensured a singular identity for the project in each country. 1 ILO TICW-project SELL-7: Replication & mainstreaming

2 To work towards replication and mainstreaming, the advocacy role of the project s sub-regional office in Bangkok has been important. The issue of combating trafficking in children and women has been raised on many and varied occasions in national, regional and international forums where project staff are invited to speak about project approaches and interventions. A representative of the All China Women s Federation spoke at the UN General Assembly Special Session on children about project approaches and achievements in Yunnan province. Others have spoken at a conference on trafficking in Rome, and at an international symposium on migration and trafficking in Bangkok. Inputs were provided to the ASEAN Labour Ministers meeting held in Vientiane in May 2002, together with the project s publication on legal labour markets and migration (TIA 1). The publication has also been used for lobbying for legal labour migration alternatives with governments (see SELL-8 for more on this). Inputs were provided to the AusAID sub-regional trafficking proposal aimed at working with ASEAN. This project will be focused on law enforcement, and will capitalise on the existing mechanisms and structures for such work, rather than creating new ones. Two other publications have been produced by expert consultants on rural skills training and micro-finance (TIA 2 and TIA 3), in order to provide project partners with relevant professional support material, and also to encourage collaboration between experts and those fighting the trafficking issue. Discussions were begun with ADB about the negative impacts of road construction on migrant labourers, with a view to mitigating the effects on HIV and trafficking in Yunnan province. Inputs were made to ILO s Global report on child labour, in which trafficking became a significant section when the report was published. Main partners in China (Yunnan), Viet Nam and Lao PDR are government departments and mass organisations concerned with social welfare, and there are similarities in the way the project is implemented in these three countries. In Cambodia and Thailand, there are national NGOs in addition to government partners, which are operational in the border areas at risk of trafficking in children and women. While having its own particular design, the project does not have a blue print, and still has flexibility for adaptation to particular situations and needs in different areas. Achievements At the sub-regional level, it has been expected that successful pilot projects could be replicated on a wider scale by government agencies, and that other agencies could incorporate the concerns of trafficking in children and women into their own policies and actions. This has been the case in most project countries, and both government and non-government donors have demonstrated their commitment by funding new or replicated projects. 2 ILO TICW-project SELL-7: Replication & mainstreaming

3 The TICW project organised national Roundtable meetings in all five countries on micro-finance and rural skills training. These brought together a range of expert service providers with project partners, mainly humanitarian organisations, and made a case for mainstreaming the trafficking issue into the policies of expert service providers in the field of rural skills training and microfinance. This reinforced collaboration and also created linkages and contacts which could help mainstream trafficking into policies, while at the same time providing expert advice to project participants. New partners were identified and linked-up, including the Industrial & Commercial Association in China s Yunnan Province; the Global Association for the People and Environment (GAPE), Consortium USA, Chamber of Commerce and Lao Women s Union in Lao PDR; the Community Development Department, Skill and Labour Development Centers, and Non-Formal Education Department in Thailand; and, the Chamber of Commerce and Industries in Viet Nam (VCCI). In Yunnan province of China, there has been successful collaboration among the various government departments in combating trafficking in children and women in the two target counties, with some nine official bureaus all having technically specific roles in contributing to prevention. At provincial level, there is now a move to replicate project experiences in particular awareness training in prevention - in six more prefectures and cities 1 of the province using government funding. This will include use of the mass media (TV) to disseminate the experience of the seven Action Programmes of the project to date. Many Bureaus have been active in replicating advocacy and awareness activities on combating trafficking in children and women - including legal literacy and self-protection for women and children, on STDs and health training for women s representatives and village doctors, raising the demand-side issues, and promoting Women s Homes as venues for women to come together for social and work purposes. County Justice Bureaus in non-target areas have been requested by the Provincial Justice Bureau to conduct awareness training focused on legal literacy, self-protection for women and children in townships, and to take legal action to assist victims of trafficking. The Women s Federation has been asked by the Yunnan Public Security Bureau to provide training to Public Security departments in other prefectures where trafficking is a reality, including how to address the demand side of the problem. The Yunnan Education Bureau has enabled the County Education Bureaus to replicate the awareness raising programme on trafficking prevention to all of the townships in the target counties. In addition, the All China Women s Federation hosted a national meeting in Beijing in October 2002 aimed at replicating in other provinces and prefectures project interventions and working methods of Yunnan Province. The meeting discussed good practices and lessons learned in the project for replication in other parts of China. Representatives from eight other provinces where trafficking is a problem participated in the event. A major financial contribution for this meeting was provided by the Chinese authorities. The meeting generated significant enthousiasm for replication. Follow up meetings to capitalize on the positive momentum are in the planning stage. 1 In Kunming, Zhaotong, Qujing, Honghe, Wenshan, and in non-target counties of Simao Prefecture. 2 A national NGO partner working in two villages of Mae Sai district of Chiang Rai province 3 An NGO project partner working with hill tribe people in northern Chiang Rai province 3 ILO TICW-project SELL-7: Replication & mainstreaming

4 In Thailand, the Hill Area Development Foundation (HADF) 2 advocates replication of its community development activities to sub-district, district and provincial level. Community organising and village capacity building has been an important aspect in rallying support to this project. A network of village operating committees (VOCs) has been built. The Mirror Arts Group 3 has received an offer from Singapore to reinforce its support to local people s involvement in the eco-tourism sector by funding the establishment of a hill tribe museum in the area. In Cambodia, the commitment to combating trafficking is clearly apparent in the shape of a national five-year plan, in which the relevant ministries (Education and Youth, Industry, Rural Development, Women s Affairs, Transport and Information) participate. However, the five-year plan is focused on rehabilitation, reintegration and awareness raising (rather than on prevention), has no budget, and is not reflected in provincial plans. A sub-committee established through the Cambodian National Council for Children (CNCC), an NGO project partner, is responsible for monitoring the implementation of the five-year plan and a national network is being built with the line ministry departments, NGOs and UN agencies, as well as coordination mechanisms from provincial to village level. These mechanisms work to coordinate provincial committees, update village baseline data, develop provincial plans to combat trafficking, and monitor, report and share information. The task of the project now is to use its experience to advocate at national level for the prevention approach. The Healthcare Centre for Children (HCC) 4 has seen its work in vocational training, life skill education, small business development and NFE shared with other NGOs and GOs and replicated in other provinces and districts with funding from other donors 5. The project and the Cambodian Centre for the Protection of Children s Rights (CCPCR) capitalized on existing training materials for local government (by the SEILA programme). It mainstreamed trafficking into these materials and used them in collaboration with the provincial and district government to set up Village Development Committees in project target sites of Sihanoukville province (where the SEILA programme was not yet operational). Based on successes sofar this model will be replicated elsewhere. In Lao PDR the authorities in the three target provinces are interested in replicating project approaches and participatory ways of working in other districts of the same provinces. The willingness of the national government to contribute funds for replication of the work is a sign of its commitment to mainstreaming the activities into its other programmes. Another agency, ILO s SEED/WEDGE unit, is also preparing for collaboration in assisting nine of the pilot villages for extension into small/medium enterprise (SME) in the 3 provinces, following a two week mission in the target sites. Such collaboration will reinforce the project sustainability and ownership and will have direct impact on the livelihood of the villagers. Their expertise will also be helpful to the project with the direct assistance interventions. The FAO backstopped pest management project in Khammouane province was so successful that representatives from the other two target provinces plan to replicate the model. Income is generated through the sale of organic fertilizer, which is made using local materials. 4 A national NGO working in three communes of Prey Veng province 5 Canadian Education Network, McKnight Foundation, CIDA. The Asia Foundation, Terre des Hommes (Germany and Holland) are considering funding to similar activities in Battambang, Prey Veng and Takeo provinces. 4 ILO TICW-project SELL-7: Replication & mainstreaming

The mid-term evaluation showed that the interventions in 22 pilot villages had been successful and had had a direct impact on illegal migration and trafficking in children and women, with limited

The Revolving Fund Scheme (US$2,500 in target villages) has shown itself to be appropriate for local government management, and was topped up by about 10 % through local government funds (for

For instance, the agreement between Thailand and Lao PDR on preventing irregular migration also includes a focus on trafficking, and offers a legal labour migration alternative to illegal border

5 The mid-term evaluation showed that the interventions in 22 pilot villages had been successful and had had a direct impact on illegal migration and trafficking in children and women, with limited resources but great commitment and ownership. The Revolving Fund Scheme (US$2,500 in target villages) has shown itself to be appropriate for local government management, and was topped up by about 10 % through local government funds (for ). - Innovative/creative In addition to mainstreaming approaches the project has made efforts to mainstream the issue of trafficking itself into a variety of government policies. For instance, the agreement between Thailand and Lao PDR on preventing irregular migration also includes a focus on trafficking, and offers a legal labour migration alternative to illegal border crossing. In Viet Nam, following a request by the authorities, the project is providing assistance in the development of a national plan to combat trafficking and sexual exploitation, thus making it possible to mainstream the issue throughout the country through the existing structures. - Effective/impact Proof of mainstreaming in China has been the ratification in June 2002 by the National People s Congress of ILO Convention 182 on the worst forms of child labour. Following lobbying by the project in Yunnan, the Labour Bureau developed a promotional video about their training and job placement services. The Education Bureau assisted 1,692 children under 17 (1,116 of whom were girls) to return to school, using only their own funds. Children in Yunnan province of China on their way home after a long day in school. Photo by HvdG (October 2001) In Lao PDR, following lobbying work by the project, a Decree on Lao labourers overseas was approved by the Minister of Justice and signed by the Prime Minister in July 2002, which effectively creates an alternative to trafficking. Lao authorities in the 3 provinces where the project is operational have indicated interest in replicating project approaches and ways of working in other districts of the same provinces. In addition, discussions are going on with the national State Planning Committee regarding topping up current village funds for the prevention of trafficking. 5 ILO TICW-project SELL-7: Replication & mainstreaming

6 In Viet Nam, following a request by the authorities, the project is providing assistance in the development of a national plan to combat trafficking and sexual exploitation, thus making it possible to mainstream the issue throughout the country through the existing structures. In Cambodia, two NGO partners (HCC and CCPCR) have turned round their approach to dealing with the problem of trafficking. Formerly their work was focused on the rescue, rehabilitation (including skills training) and reintegration of trafficked victims into society. After working with the ILO-TICW project on some pilot activities, they have now adopted the prevention approach, and are trying to attack the root causes of trafficking. Similarly, the Raks Thai Foundation, a partner NGO working in Chiang Mai province of Thailand, is replicating the prevention (rather than its existing research and rescue) approach to prevention of trafficking in children and women to 22 other villages with funding from CARE USA. - Sustainability The fact of project replication and mainstreaming of the trafficking issue means that the fight against trafficking in children and women can be guaranteed to continue into the future without material support from ILO. - Relevance Other donors CIDA in Cambodia, Bernard van Leer Foundation and Whole Child Initiative in Thailand have requested national TICW project staff to screen relevant project proposals and to provide their recommendations about whether or not to fund them. Trained staff in a project target County of Yunnan assisted a neighbouring County in the writing of an anti-trafficking proposal, which was successful in attracting UNICEF funding. The prefecture government is now prepared to replicate the target County s experience in other Counties of the prefecture. - Responsiveness The TICW project is relatively small and cannot do everything. The diagram below shows how its strategy is to use advocacy and example to influence other agencies to adopt some of its tools to enable them to contribute to the fight against trafficking in other geographical areas, and/or mainstream them into national policy, action plans, and structures. National level: Capacity building (mainly work on frameworks, structures, policies, and processes including co-ordination) & advocacy In selected provinces: Capacity building (mainly networking & co-ordination, monitoring & training) & advocacy Mainstreaming at higher level Replication in other geographical areas In selected communities: Holistic and integrated direct assistance to target groups (including targeted awareness raising, employment creation and training, participatory monitoring), and localized capacity building (including co-ordination, and linking to expert service providers) 6 ILO TICW-project SELL-7: Replication & mainstreaming

7 - Efficiency Successful mainstreaming of the issue of trafficking into government policy would imply that government departments tackle trafficking from a variety of angles in the planning and implementation with their own funding. Continued efforts are needed to make this case. If successful, it would mean that interventions will be part and parcel of government programmes and will no longer require external support. Lessons learned Advocacy and dissemination about the project in different fora has been essential so that the issue itself, as well as the manner in which the project is tackling it, can be understood, discussed and proposed for replication and mainstreaming. International organisations have a role to play in lobbying governments concerning mainstreaming and policy development. The demand side of the equation is not being addressed and needs to be, especially at the top level, where commitment can sometimes be lacking. Demand for cheap labour is not just about commercial sex work. Engaging project partners in a practical way can get them on board, and trigger changes within their own approaches and policies (e.g. in Cambodia, HCC and CCPRC adopted the prevention strategy). Adherence to a process-based approach has meant long periods of negotiation with national governments (in particular Lao PDR and Viet Nam), but has resulted in firm commitments from senior government officials and the relatively speedy initiation of activities following agreements on process. Engagement of government officials from the inception, and the creation of an enabling environment, have facilitated smooth operations and have generated interest in the results of targeted interventions. Bringing national level government officials on visits to project target sites has proved to be useful in building bridges at various levels, and in creating a better understanding at the centre of field needs. Openness and learning at the lowest possible level are crucial for documentation of lessons learnt that may help to strengthen interventions. Where possible, the project has slotted into existing government structures and mechanisms e.g. the National Steering Committee on Child Labour in Cambodia. However, problems relating to the proliferation of national committees persist, due in part to differences in opinion as to whether child labour and trafficking should be considered by the same or different committees at different levels. 7 ILO TICW-project SELL-7: Replication & mainstreaming

8 Conditions for replicability If governments are to commit themselves to mainstreaming trafficking in children and women into their policies, concerted lobbying efforts need to be made by international organisations. Context is crucial and should be accounted for before blindly moving into replication. References Legal labour migration and labour markets: alternatives to substitute for trafficking in children and women, Technical Intervention Area Summary Notes: (TIA-1) ILO-TICW. Hans Christiaan Haan Non-Formal Education and rural skills training: Tools to combat the worst forms of child labour, including trafficking, ILO, 2002 (TIA 2). Paula Francis Kelly Micro-Finance interventions: Tools to combat the worse forms of child labour, including trafficking, ILO, 2002 (TIA 3). A process-based approach to combat trafficking in children and women: Sharing preliminary experiences from an ILO Project in the Mekong Sub-Region, Hans van de Glind (2001). For detailed information on the TICW project see: Date of documentation 7 November ILO TICW-project SELL-7: Replication & mainstreaming

The whole is greater than the sum of the parts: working together (Programme coordination)

ILO Mekong Sub-Regional Project to Combat Trafficking in Children and Women (TICW) Sharing Experience and Lessons Learned (SELL) series The whole is greater than the sum of the parts: working together