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Incorporating attention to minorities into UNDP country programmes could strengthen interventions and assist governments to improve human development for all. Broadly speaking, two types of approaches are possible: targeted or inclusive. Targeted approaches focus on marginalised minority groups as the primary rights-holders in the development intervention; inclusive approaches ensure that minorities are among the rights-holders in development interventions aimed at a broader constituency. The decision to employ targeted or inclusive approaches depends on a number of variables, of which the preferences of minority groups should be a major consideration. Bearing in mind the ‘do no harm’ approach, targeted interventions might create tensions where they are seen to unjustly privilege minority groups. Conversely, inclusive approaches that do not give attention to the particular needs and rights of minorities might inadvertently exclude minorities and cause harm.
To mitigate these unwanted effects, two key steps are needed. First, proposals for country programming could entail a participatory decision-making process that includes representatives of both minority and majority groups. Second, an impact assessment of proposals for country programming could measure the possibility of direct or indirect discrimination from the proposal, consider the impact on relevant minority rights and include disaggregated data.
Policies aimed at ‘excluded groups’ or ‘vulnerable groups’ may not necessarily benefit minorities. The impact of discrimination and the factors of cultural/religious/linguistic identity frequently mean that minorities experience development differently. Minorities face different obstacles in realizing development – of which discrimination is a principle example – and in many cases have different objectives for development outcomes. These obstacles and outcomes pertain to minority rights protection and should be taken into consideration when making proposals for development interventions.
Targeted and inclusive approaches can be used concurrently. Often a combination of both approaches will maximize the benefits to minorities and minimize tensions with majority communities. For example, a programme on education could aim to support all poor people to access education; poor minorities will be among the intended rights-holders to benefit from such a programme. However, a further targeted measure is necessary within the programme parameters to ensure that the particular barriers to education experienced by minorities are taken into account in the general education programme. This means, for instance, considering whether minorities have higher poverty rates, cultural practices that are impacting on access to education, discriminatory practices in schools that dissuade minorities from participating in education and consideration of measures such as mother tongue education that could enable minorities to access education more readily. A targeted objective within an inclusive programme can deliver effective results.
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- Targeted approaches can help to reach the most marginalised minorities
- Projects for ‘vulnerable groups’ may not tackle the particular obstacles – such as discrimination – that keep minorities marginalised
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| Table 5. Targeted or Inclusive Approaches? |
| Both targeted and inclusive approaches have the potential to benefit minorities and need to be
considered carefully. The same programme can include both approaches for achieving different goals.
For example, a programme on access to health could focus on vulnerable groups but include a special component to examine why access to maternal health is disproportionately lower for minority women. When determining which approach is best suited, some guiding questions can be helpful: |
| Key question |
Considerations |
Programme response |
| Is there evidence that the minority group
is particularly marginalised? |
If yes, targeted approaches might be needed to concentrate resources and
to adapt programmes to address the particular obstacles faced by this group. |
Meet with minority communities to discuss what factors they believe are causing their marginalisation. In consultation with minorities, consider appropriate programme responses to address these factors that could be targeted or integrated into inclusive programmes. |
| Can data be produced to justify the need for targeted programmes? |
Having disaggregated data can reassure other stakeholders that targeted programmes for minorities are justified because of the high levels of inequality they experience. |
Gather or commission the collection
of disaggregated data on key human development indicators for groups affected by proposed development interventions. |
| Are there existing tensions between minorities and neighbouring groups? |
Using targeted approaches might exacerbate existing tensions. This is particularly true where neighbouring groups are also experiencing exclusion. |
Convene dialogues on development needs at the community level with all affected groups present. If necessary, create an additional space where minorities can express their concerns freely and safely. |
Have minority groups called
for targeted approaches? |
If not, they may not want targeted approaches or there may be underlying fears among the community that targeted approaches will cause tension. It is also possible that minority groups do not realise they are entitled to ‘special measures’ to overcome
discrimination against them. |
Review government practice with affirmative actions policies and
public reaction to them.
Open a dialogue with members of minority communities to determine their perceptions of possible development interventions, both targeted and inclusive. |
Are existing development interventions having an impact
on minorities? |
If inclusive approaches are not improving the human development of minorities and inequalities are growing, targeted approaches may be needed to supplement mainstream programmes. |
Monitor and evaluate existing
programmes to determine the
impact on minorities |
Is the government open to discussion on the status
of minorities? |
If the government is open, they may
be more considerate of targeted approaches. Where the government is not open, inclusive approaches that are integrative of minority concerns may be preferable. |
Open a discussion with key ministries
to determine if minorities are a government concern. If not, identify entry points, such as attention to the poorest, where more effort can be made to include minorities. |
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