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Indigenous Peoples and Sustainable Development The Role of The Inter American Development Bank
Indigenous Peoples and Sustainable Development The Role of The Inter American Development Bank
Sustainable Development:
Anne Deruyttere
Washington, D.C.
October 1997 — No. IND97-101
Anne Deruyttere is Chief of the Indigenous Peoples and Community Development Unit
of the Social Programs and Sustainable Development Department in the Inter-
American Development Bank. She gratefully acknowledges the assistance provided by
Wendy Venance and Gustavo Minc of SDS/GIS is preparing the graphs, maps and
tables.
CONTENTS
III. WHAT ARE THE MAIN ISSUES AND DEMANDS OF INDIGENOUS PEOPLES? 9
Indigenous Rights 9
Sharing in the Benefits of Development 10
Environmental Preservation and Sustainable Management 10
Culturally Appropriate Development 10
BIBLIOGRAPHY 17
I. WHO ARE THE INDIGENOUS PEOPLES?
This presentation focuses on the role of the faces in order to be more effective in fostering
Inter-American Development Bank in the the sustainable socioeconomic development of
socioeconomic development of the indigenous indigenous people. The Bank's thrust in this
peoples of Latin America. Following a brief area emphasizes the positive relationship
description of who the region's indigenous between economic development, participation
peoples are, and of the issues and concerns that and strengthening cultural heritage within a
face them, this paper presents the broad outlines framework that recognizes the rights of indige-
of a more detailed strategy document that is nous peoples.
currently being prepared. This presentation
provides some examples of what the IDB has
been doing to respond to its mandate to address Demographic Data
the needs of indigenous peoples. It also men-
tions some of the major challenges that the Bank The number of indigenous people in
Latin America and the Caribbean is es-
Table 1 timated at between 33 million and 40
Total Population and Indigenous Population million, around eight percent of the
of Central and South America by Country Hemisphere's total population. Estima-
tes vary because census data are often
National Indigenous not reliable and have to be supplemen-
Population %
Population Population ted with information from other sources.
1. Bolivia 8,200,000 4,142,187 50.51
Over 2. Guatemala 10,300,000 4,945,511 48.01 There are about 400 different ethnic
20% 3. Peru 22,900,000 8,793,295 38.39 groups in the region, each with a diffe-
4. Ecuador 10,600,000 2,634,494 24.85
rent language, social organization,
Total of these countries 52,000,000 20,515,487 39.45 worldview, economic rationality and
200,000 27,300 13.65 mode of production adapted to the ecos-
5. Belize
6. Honduras 5,300,000 630,000 11.88 ystems they inhabit. In spite of their
7. Mexico 91,800,000 8,701,688 9.47 heterogeneity, indigenous peoples share
From
3%
8. Panama 2,500,000 194,719 7.78 similar concerns and aspirations that are
9. Nicaragua 4,300,000 326,600 7.59 based on a holistic view of the interrela-
to 10. Chile 14,000,000 989,745 7.06
20% 11. Guyana
tionship between human beings and the
806,000 45,500 5.64 natural environment, and between the
12. French Guiana 104,000 4,100 3.94
13. Suriname individual and the community.
437,000 14,600 3.34
Total of these countries 119,447,00 10,934,252 9.15 Indigenous people live in all the coun-
14. Paraguay 4,800,000 94,456 1.96 tries of Latin America, with the excep-
15. Colombia 35,600,000 620,052 1.74 tion of Uruguay. Table 1 shows one
From 16. El Salvador 5,200,00 88,000 1.69 of the more conservative estimates of
0 to 17.Venezuela 21,300,000 315,815 1.48
33,900,000 372,996 1.10 the total number of indigenous people
3% 18. Argentina
19. Costa Rica 3,200,000 24,300 0.75 living in each country. Estimates for the
20. Brazil 155,300,00 254,453 0.16 Caribbean islands vary between 30,000
Total of these countries 1,770,072 0.07
and 50,000 people of direct indigenous
259,300,00
descent.
Total 430,747,00 33,219,814 7.71
Source: Instituto Indigenista Interamericano, América Indígena.
Vol. LIII, No. 4, Oct-Dec 1993.
1
Figure 1 Graph 1
Indigenous Populations Distribution of Indigenous People
in South and Central America in Latin America
(Percentage of Total Population by Country)
Guatemala
Peru
15.0% Bolivia
27.0%
12.0%
8.0% 12.0%
26.0% Others
Ecuador
Mexico
Source: Based on data from Instituto Indigenista
Interamericano, ibid.
Definitions
2
Table 2
Definitions of Ethnicity Used
in Selected Latin American Countries
It is estimated that over ninety percent of The other ten percent or so of indigenous people
indigenous people are sedentary subsistence live in tropical or dry forest areas. Traditionally,
farmers, descendants of the large pre-Columbian most of them were hunters and gatherers with a
civilizations of Inca, Maya, Aztec and other transhumant or seminomadic way of life and a
smaller societies in the arid Inter-Andean tribal organization based on small independent
plateau and Meso-American mountain regions. and loosely knit bands. Although they live in
These indigenous people, who are often grouped some of the most remote and pristine environ-
together with non-indigenous farmers under the ments, they have become increasingly vulnera-
term peasants or campesinos, cultivate small ble as a result of the pressures on their lands and
plots (minifundios) and supplement their meager natural resources caused by oil exploration,
resources with seasonal wage labor, mining mining and logging ventures, the expansion of
activities, animal husbandry and artisanal pro- the agricultural frontier or the crossfire caused
duction. by border conflicts, guerrilla warfare and the
drug trade.
3
II. WHY ARE INDIGENOUS PEOPLE IMPORTANT
TO A DEVELOPMENT INSTITUTION?
Indigenous Peoples and the Environment In fact it is interesting to observe the relationship
between the areas of pristine forest and the
Despite their difficult natural environments location of indigenous people, as the maps for
indigenous peoples have managed to sustain an Central America indicate (See Figure 2). The
existence in ecologically fragile areas with low first three maps show the advance of deforesta-
population carrying capacity. Many of these tion since the 1950's. The last map demonstrates
peoples have an intricate knowledge of their that the areas remaining under tropical forest
environments and the different plant and animal cover are also the areas traditionally occupied by
species, and have developed sophisticated indigenous peoples (Guatemala is an exception,
technologies for the sustainable management of as its large indigenous population is concentra-
these resources. ted in the highland areas).
Figure 2
Deforestation in Central America
and the Location of Indigenous People
Indigenous People
Dense Forest Cover
*Does not include coastal mangrove forest and open pine savanna.
Sources: USAID Country Environment Profiles: Moreno and Gonzales, 1985; Nations and Komer, 1983. SDS/ENV
GIS & Remote Sensing Facility. This map, prepared by the Inter-American Development Bank, has not been
approved by any competent authority and its inclusion in this document is for illustration purposes only.
4
Indigenous Peoples and Poverty municipios with low, average or high indigenous
representation: poverty levels are almost four
Recent research at the World Bank and other times higher in municipios with a large indige-
agencies demonstrates the high degree of nous population (poverty ratio of almost 80
correlation between poverty and ethnicity. 1 percent) and extreme poverty levels are 20 times
Assuming that the vast majority of indigenous higher (extreme poverty ratio of more than 40
people are among the poorest, a rough estimate percent; see Graph 3).
indicates that one quarter of all Latin Americans
living in extreme poverty are indigenous. Graph 3
However, this proportion is much higher in Poverty Incidence by Percentage
countries with relatively large indigenous of Indigenous Population in
populations such as Bolivia, Guatemala, Peru or Mexican M unicipios
Ecuador (see Graph 2 for a comparison of
poverty rates between indigenous and non-
indigenous populations in four countries). 100
Graph 2 80
40
20
0
Under 10% Ind. 10%-40% Over 40% Ind.
Ind.
Not Poor Poor
Extremely Poor
5
Graph 4 On average, they complete less than four years
Infant Mortality per 1,000 Births of formal education, versus five years for
indigenous men, eight years for non-indigenous
women and nine years for non-indigenous men
(see Graph 6).
Graph 6
Educational Attainment by Ethnicity
and Birth Cohort in Mexico
Graph 7
Formal Education by Birth Cohort in
Peru (Years of Schooling)
Educational Attainment
6
Income Levels Poverty
7
Figure 3
Percentage of the Population in Households with Unment Basic
needs and location of Indigenous People
Source: INDEC, based on the Censo Nacional de Población y Vivienda 1991 - Serie C; Población aborigen, año 1982;
Territorio (1987: XXXV); SDS/ENV GIS & Remote Sensing Facility.
Note: This map, prepared by the Inter-American Development Bank, has not been approved by any competent
authority and its inclusion in this document is for illustrative purposes only.
8
III. WHAT ARE THE MAIN ISSUES
AND DEMANDS OF INDIGENOUS PEOPLES?
Since the 1970s, in light of the strong pressures of indigenous rights in pluriethnic and mult i-
on their lands and way of life, incipient indige- cultural societies.2
nous organizations at the regional, national and
international level have been strengthened by The most important of these rights concern land
their alliance with the environmental movement. and natural resources; language, ethnic identity
They were also able to take advantage of the and cultural heritage; autonomy and participa-
space allowed to civil society organizations as a tion.
result of the democratization process in many
countries of the region. This process of streng- The right to land and natural resources refers not
thening organizations and forming grassroots merely to land as a means of production and
networks goes hand in hand with a strong economic sustenance but, most importantly, as
cultural revival process in which the generation the territory that defines the cultural and social
of younger and more educated indigenous space needed for the physical and cultural
people plays a significant role. survival of the group. Hence, the right to
communal tenure, legal recognition and demar-
Given the pressures on indigenous lands, cation of traditionally occupied lands.
resources and ways of life, indigenous people
are strong allies of the environmental movement The right to language, ethnic identity and
in the preservation of biological diversity and cultural heritage recognizes the multicultural
the sustainable management of fragile ecos- character of the nation state and the right of
ystems. The message of indigenous peoples has indigenous people to the use of their native
been prominently highlighted at important tongue, as well as to bilingual and crosscultural
international forums such as the 1992 Environ- education.
mental Summit in Rio de Janeiro. In addition,
the United Nations created a working group on A large measure of autonomy in managing their
indigenous rights and proclaimed the year and own affairs, refers to the right to their own
the decade of indigenous peoples, and ILO organizations, leadership structure, decision-
Convention No. 169 on tribal and indigenous making processes regarding economic and social
people was adopted in 1989. development, recognition of customary law, etc.
This does not mean, as is sometimes misrepre-
sented, that indigenous people aspire to establish
Indigenous Rights independent states. It means that indigenous
people be given the authority to govern their
The growing international recognition of own affairs within the national legal and
indigenous rights coincided with the democrati- political system. In recent years, Bolivia,
zation process in many countries of the region, Colombia and Guatemala have adopted measu-
and influenced the sometimes very significant res to integrate decentralized local government
gains in the legal and constitutional recognition entities with traditional structures of power and
authority in indigenous communities. The legal
2
See for example Van Cott, D.L., ed., 1994.
NACLA Report on the Americas, 1996; and Anaya,
S.J., 1996.
9
framework of the comarca, established in 1953 reform and poverty reduction strategies. This
for the Kuna people in Panama, granted one of implies a shift in focus from countries where
the Hemisphere’s largest degrees of autonomy to indigenous communities are living in tropical
an indigenous people. lowlands and are small minorities, to countries
where indigenous people comprise large sectors
The right to participation as beneficiaries and of the rural peasantry.
contributors to the political and economic
development processes in their countries,
implies that indigenous people have access to Environmental Preservation
key information and are able to participate in and Sustainable Management
meaningful ways.
In general, indigenous people have adapted well
to their ecologically sensitive environments. In
Sharing in the Benefits of Development addition they have an extensive knowledge of
the natural resources that surround them and
Realizing the limited ability of national go- have often adopted very complex methods and
vernments and international development technologies to manage their habitat in a
cooperation to earmark significant new resour- sustainable manner. Indigenous people regard
ces on concessional terms to indigenous themselves as an integral part of nature rather
projects, indigenous organizations as well as than seeing nature as being subject to human
their allies in the NGO and international donor domination. Indigenous peoples, whose territo-
community, are starting to focus on the need to ries have often suffered severe damage from
participate at the national level in the policy encroachment by mining, logging, poaching and
dialogue on development issues. This is commercial farming, or who were forced to
necessary not only to ensure that national resort to environmentally damaging practices as
development initiatives target indigenous people a result of high population growth rates, are
in preferential ways, but also to make certain invariably demanding the preservation or
that indigenous people do not suffer dispropor- restoration of their natural environments as a
tionately from the effects of structural adjust- condition for their involvement in other develo-
ment and market oriented reforms or from the pment efforts.3
impacts of large infrastructure projects (such as
highways or dams).
Culturally Appropriate Development
Indigenous peoples often have a strong
attachment to communally held and managed Past efforts to improve the situation of indige-
land and natural resources, which form the basis nous people were often based on the notion that
of their subsistence as well as their social and in order to benefit from development, they
cultural integrity. As a result, the social costs of needed to sacrifice their culture and identity, and
the structural adjustments and market-led become integrated or assimilated into the
reforms which many countries have adopted, nation=s economy and society. In addition, the
have placed indigenous people in an especially approach used to achieve this goal was very
disadvantageous position. often paternalistic and resulted in dependency on
governments, religious institutions or NGO.
The emphasis in the debate about the role of
indigenous people in national development is
thus shifting from natural resource management
and preservation issues to addressing indigenous
development in the context of social sector 3
See for example N. Paccari, 1995; Akwe:kon, 1992;
COICA, etc.
10
Recent efforts to address the specific needs and This virtuous circle between culture and develo-
demands of indigenous peoples in the context of pment can be achieved only to the extent that
poverty reduction strategies, reflect a major shift development experts understand the local culture
in thinking about the role of culture in develo- and create genuine opportunities for participa-
pment. Experience with some small-scale tion, not only in project implementation but also
development projects has shown that strengthe- in project identification and design. Although
ning cultural identity and promoting sustainable this is relevant for all target population groups,
socioeconomic development are mutually identifying the appropriate channels for effective
reinforcing rather than mutually exclusive consultation with and participation of indigenous
objectives. To the extent that development people is often more difficult than with popula-
efforts are anchored in local values, aspirations tion groups who share the same language and
and social organization, culture becomes an similar cultural codes as those of the
asset rather than an impediment to development. Adevelopment experts.@ Language barriers, fear
Thus, people more easily adopt the changes that of outsiders, cultural norms which may limit
will lead them out of poverty and deprivation. 4 direct communication, or the existence of
Ainvisible @ subgroups such as women or younger
As the Vice President of Bolivia in a recent members of the community, are all factors that
presentation at IDB Headquarters so eloquently need to be taken into account when designing
stated, development for indigenous people is methodologies and procedures for the participa-
development with identity. Culture is not an tion of indigenous groups.
obstacle to development (as was the prevailing
view for many years), but rather the start-up Thus, sociocultural analysis, or stakeholder
capital for sustainable social and economic analysis as it is often called, becomes a ne-
development, because it builds on peoples cessary condition for effective community
values, aspirations and potential rather than participation, to identify and understand popula-
imposing a development model from the top tion subgroups, the relations of power between
down and from the outside in. Development and these subgroups and the extent to which
cultural identity are thus not mutually exclusive community organizations represent interest
but rather part of the same virtuous circle of groups and can play a role in the participation
socioculturally sound and sustainable develo- and project design and execution process.5
pment.
4
See for example the experience of the Inter-
American Foundation and many NGO for case
studies of successful grassroots projects with
indigenous peoples. The IDB's Small Projects
Program also includes several highly successful
projects integrating socioeconomic development and
5
cultural identity. See Norman Schwartz and Anne Deruyttere, 1996.
11
IV. HOW IS THE IDB RESPONDING?
12
benefiting indigenous groups in order to previously known as the CMA), and sys-
adequately address their needs.6 tematically screens all Bank operations for
their potential impacts on indigenous people
Instead of simply avoiding or mitigating the at an early stage in the project preparation
negative impacts of Bank-funded projects on process.
indigenous peoples (the reactive approach), the
IDB is now pursuing a more proactive approach 3. Support to project teams on an as-needed
aimed at seeking out opportunities to foster the basis in the design and monitoring of Bank
social and economic advancement of indigenous operations that require technical expertise in
people. the area of indigenous peoples, community
development or involuntary resettlement.
13
procedures and actions in an effort to avoid, Governance will be made consistent with
mitigate and compensate for negative impacts on traditional indigenous leadership and deci-
indigenous peoples. sion-making processes.
Where possible and appropriate, the Bank will 6. An alternative development and crop
strive to mainstream indigenous needs, concerns substitution project in Colombia includes a
and demands into regular operations, partic u- specific component for indigenous peoples
larly in social sector and environmental mana- focusing on integrated development, instit u-
gement projects. That is, it will facilitate access tional strengthening of indigenous organiza-
by indigenous people to these programs, from tions, land demarcation and titling initiatives
which they have been excluded because of as well as productive activities and social
sociocultural factors, prejudice or the urban bias services.
prevalent in many of them. The seven examples
that follow illustrate how indigenous needs have 7. A program in Argentina to address the needs
been incorporated into Bank operations in recent of the most vulnerable population groups
projects. includes a component specifically designed
to provide institutional strengthening and
1. Social Investment Programs in Peru (FO N- community development to indigenous peo-
CODES), Guatemala (FIS), Guyana (SI- ples.
MAP) and Bolivia (FISE) incorporate
specific measures to remove barriers that The Bank is undertaking stand-alone initiatives
make it difficult for indigenous communities developed specifically for indigenous people to
to participate, or include targeting of address those cases where because of high
geographic areas that are largely indigenous. vulnerability or lack of appropriate mainstrea-
ming opportunities, indigenous people need
2. Primary education programs include access to resources specifically targeted to
components specifically designed to meet enable them to address their demands. Recent
the needs of indigenous people for mult i- stand-alone initiatives are described below.
cultural and bilingual education (Mexico,
Costa Rica and Guatemala). 1. The Community Development for Peace
Program in Guatemala is targeted to return-
3. A social forestry program in Nicaragua ing indigenous refugee communities. The
includes a component to support indigenous program will assist in the task of rebuilding
communities in the sustainable management social capital and community organizations.
of forestry resources.
2. The Global Facility for Small Projects
4. The sustainable development program for in Southern Mexico will assist indigenous
Guatemala's Petén region is an integrated organizations in Chiapas, Oaxaca and
participatory project which includes land Guerrero with productive activities, training
titling and sustainable forestry activities and institutional strengthening.
specifically designed for indigenous mi-
grants from the highlands. 3. Technical cooperations will finance activi-
ties to strengthen indigenous organizations
5. A program to strengthen governance in the Peruvian Amazon.
and decentralization in Bolivia supports ef-
forts to reorganize municipal boundaries 4. A leadership training program in Guatemala
to coincide with indigenous territories. will exclusively benefit indigenous women.
14
5. A process of consultation with indigenous countries is demonstrated by the fact that the
organizations and experts on the Draft OAS legislative bodies of 19 countries have already
Declaration on the Rights of Indigenous ratified their membership.
Peoples has been undertaken.
The Fondo Indígena is a tripartite organization,
6. A pilot program on indigenous health is with equal representation from the governments
being undertaken in conjunction with the of the region, the indigenous people of the
Pan American Health Organization. region and donor countries from outside the
region. Its purpose is not to duplicate efforts
The Bank will continue to strengthen its proce- already under way, but rather to contribute with
dures and actions to avoid, mitigate or compen- new initiatives or to add value to existing
sate potential negative impacts on indigenous processes or activities. Its unique role is that of
peoples. Particular attention will be paid to the a broker. It provides a forum for the exchange
effects of large infrastructure projects (i.e. roads of information, strategy definition, negotiation
and dams), and the impact of structural reform and conflict resolution at the national and
programs to reduce public sector inefficiencies international level. It also provides technical
and promote private sector initiatives. Recent expertise in the identification and design of
examples of these activities are mentioned genuinely indigenous projects.
below.
At present, the Bank is supporting the design
1. An environmental and social technical and implementation of a strategy to achieve the
assistance program has been developed to financial sustainability of the Indigenous
mitigate the potential negative impacts asso- Peoples Fund by means of creating an en-
ciated with paving the Southern Highway in dowment fund which could be administered by
Belize. The program includes community the Bank. The endowment fund would have two
development and consensus building activi- objectives. First, to generate annual revenues to
ties regarding the future of the indigenous cover nonrecoverable costs related to technical
reservations and lands. assistance, institutional strengthening, training,
project identification and consensus building
2. The PMACI program, associated with the efforts with indigenous organizations as well as
BR365 highway project in the Brazilian for the operational costs related to the Technical
Amazon, includes land demarcation and ti- Secretariat and the governing bodies of the
tling and other impact mitigation compo- Fund. Second, to use the capital of the en-
nents specifically designed to benefit in- dowment fund as leverage to generate new
digenous peoples. resources from the international financial
markets and the donor community for invest-
3. The integrated rural development program ment in productive projects and other revenue
and several roads projects in Paraguay ni - generating initiatives carried out by indigenous
clude land titling and community develop- communities and organizations.
ment initiatives for indigenous peoples.
7
Further information on the Bank's Indigenous
Peoples and Community Development Unit and
the Bank's initiatives with regard to indigenous
peoples, can be found at the following website:
www.iadb.org/sds/.
16
BIBLIOGRAPHY
Akwe:kon Journal. 1992. Indigenous Economics: Toward a Natural World Order, Cornell University.
Cárdenas, V.H. 1997. Indigenous Peoples, Development and Democracy in Latin America, IDB,
SDS/IND.
Davis S., ed. 1993. Indigenous Views on Land and the Environment. World Bank Discussion Paper 188.
Deruyttere, A. May 1994. The Indigenous Peoples Fund: An Innovative Mechanism in Support of the
Ethnodevelopment of Indigenous Peoples of Latin America and the Carribbean. IDB, Working
Paper ENP108.
Gray, A. 1991. Between the Spice of Life and the Melting Pot: Biodiversity Conservation and its Impact
on Indigenous People. IWGIA, Copenhagen.
IDB. 1994. Board of Governors, Report on the Eighth General Increase in the Resources of the Inter-
American Development Bank , AB-1704, p. 22.
Iturralde D. and Krotz E., eds. 1996. Indigenous Peoples and Development: Poverty, Democracy and
Sustainability, Indigenous Peoples Fund/IDB, SDS/IND No. IND96-102.
Moreno and Gonzales, 1985; Nations and Komer, 1983. SDS/ENV GIS & Remote Sensing Facility.
Paccari, N. 1995. La mujer indígena, medio ambiente y biodiversidad, in: Derechos de los pueblos
indígenas: situación jurídica y políticas de Estado, Torres Galarza. ed. Abya Yala, Quito.
Psacharopoulos, G. and Patinos, H. (eds). 1994. Indigenous People and Poverty in Latin America:
An Emperical Analysis. World Bank.
Schwartz, N. and Deruyttere, A. 1996. Community Consultation, Sustainable Development and the Inter-
American Development Bank: A Concept Paper. Inter-American Development Bank, Indigenous
Peoples and Community Development Unit, No. IND-101.
17
Uquillas J. and Rivera J.C., eds. 1993. Pueblos Indígenas y Desarrollo en América Latina. The World
Bank, Environment Division.
Van Cott, D. L., ed. 1994. Indigenous People and Democracy in Latin America, Inter-American
Dialogue.
Van de Fliert, L., ed. 1994. Indigenous Peoples and International Organisations. Spokesman, England.
Van Cott, D.L., ed., 1994. NACLA Report on the Americas, 1996; and Anaya, S.J., 1996.
World Bank, based on EIH 1989, ENSD 1989, INEGI 1989, PLSS 1991.
18
INDIGENOUS PEOPLES AND COMMUNITY DEVELOPMENT UNIT
Publications
Norman Schwartz and Anne Deruyttere, 1996. Community Consultation, Sustainable Development and
the Inter-American Development Bank : A Concept Paper. No. IND-101. (Available in English
and in Spanish).
Working Papers
Anne Deruyttere. Indigenous Peoples and Sustainable Development. The Role of the Inter-American
Development Bank. April 1997. No. IND96-101.
D. Iturralde and E. Krotz (eds.). Indigenous Peoples and Development: Poverty, Democracy and
Sustainable . December 1996. No. IND96-102.
Involuntary Resettlement in IDB Projects: Principles and Guidelines (Available in English, Spanish and
Portuguese). December 1996. No. IND96-101.
Lina Uribe
Indigenous Peoples and Community Development Unit
Social Programs and Sustainable Development Department
Inter-American Development Bank
1300 New York Avenue, N.W.
Washington, D.C. 20577
USA
Telephone: 202-623-1256
Fax: 202-623-1463
e-mail: linau@iadb.org
19