Quang Tri - World Banksiteresources.worldbank.org/INTVIETNAM/Resources/Quangtri_Eng.pdf · Quang...

2003

MOLISA

Participatory Poverty AssessementQuang Tri

Poverty Task Force

MINISTRY OF LABOUR, INVALIDS AND SOCIAL AFFAIRSGERMAN AGENCY FOR TECHNICAL COOPERATION

Institutional Capacity Strengthening for Vietnam Poverty Alleviation Strategy2 Âinh Le,Ha Noi, Viet Nam.Tel: (84-4) 826 4012Fax: (84-4) 826 7367

Photos: GTZ, MOLISA

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Quang Tri Participatory

Poverty Assessment

Hanoi, February 2004

Quang Tri Participatory Poverty Assessment

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Foreword by the Poverty Task Force In May 2002, the Government of Vietnam finalized its Comprehensive Poverty Reduction and Growth Strategy (CPRGS) and embarked on a process to make the CPRGS a reality at local levels of Government. Through information campaigns and a series of regional workshops, officials from key national ministries have been explaining to representatives from local authorities how local level planning processes could be made more pro‐poor, more evidence‐based, more outcome‐focused, better aligned to resource allocation decisions and better monitored.

During 2003 the Poverty Task Force (PTF) supported Participatory Poverty Assessments (PPAs) in twelve provinces in Vietnam. These PPAs used a common research framework and methodology to investigate issues around poverty that were not well captured by the available quantitative date. The intention was to produce research which could be used, together with data from the Vietnam Household Living Standards Survey, to inform the CPRGS secretariat on progress to date in implementing the CPRGS. The PPAs were also designed to provide information for new regional and national studies of poverty and these have now been published separately. The regional poverty assessments will, in turn, be used as an instrument in building capacity in pro‐poor planning processes at sub‐national levels of Government.

Eight donors contributed financial and human resources to support the PPAs underlying the preparation of this report and its complementary RPAs. These are the ADB, AusAID, DFID, GTZ, JICA, SCUK, UNDP and the World Bank. Each of the donors played a leading role in one of the regions of Vietnam. The distribution of regions among donors, summarized in Table A, was based on the donors’ trajectory in the field. By choosing regions where they are well‐implanted, through projects and technical assistance activities, donors could take full advantage of the insights accumulated while working there.

Several teams conducted the PPA work in 43 communes scattered across the entire country. Among them were two international NGOs (Action Aid and SCUK) and various local NGOs and research institutes, including CRP, the Institute of Sociology (IOS), the Long An Primary Health Care Center, the Rural Development Service Center (RDSC) and Vietnam Solutions. In addition, two of the donors carried out the research by setting up teams of local researchers under their direct management. The local knowledge and expertise of these NGOs and research institutes was key to the quality of the exercise. A coordinating mechanism was set up for the PPAs. Members of most of the research teams were involved in drawing up the research framework and establishing a common understanding of what was to be achieved from the field research. The latter was


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piloted by several of the teams and the research outline was modified to reflect the lessons learned. The final research framework covered the following areas of investigation:

• Perceptions of and trends in poverty, poverty dynamics and vulnerability; • Progress in strengthening democracy at the grassroots level, especially the

degree to which poor households can participate in a meaningful way in planning and budgeting processes;

• Challenges in the delivery of basic services, focusing on how poor households interact with service providers and how poor households can be empowered to claim their rights to basic services more effectively;

• The current mechanisms for delivery of social assistance (linked to the targeting work above) and how they might be improved;

• How the reform of the public administration is taking place at local levels of Government;

• The challenges of migration and the link between household mobility, poverty and access to services; and,

• Information about the environment of the poor and how it is changing.

These PPAs are now being published as a series. A separate report will synthesise the findings across the 43 communes and provide a more aggregated analysis of these themes. Another report summarizes the approach to the research, the methodology use and sets out the detailed research questions.

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Table A: Partnerships for the Regional Poverty Work

PPAs Region Provinces included in the region

Donor in charge of the RPAs

Province District Communes

Team in charge of the PPAs

Bao Thang

Ban Cam Phong Nien

Lao Cai

Muong Khuong Pha Long Ta Gia Khau

Ageless Consultants

(funded by DFID)

Vi Xuyen

Cao Bo Thuan Hoa

Northeast Uplands

Ha Giang , Cao Bang, Lao Cai, Bac Kan, Lang Son, Tuyen Quang, Yen Bai, Thai Nguyen, Phu Tho, Vinh Phuc, Bac Giang, Bac Ninh, Quang Ninh

Northwest Uplands

Lai Chau, Son La, Hoa Binh

DFID and

UNDP

Ha Giang Dong Van Sang Tung Thai Pin Tung

Action Aid

(funded by UNDP)

Hai Duong Nam Sach Nam Sach Nam Trung

Dan Phuong Tho An Lien Ha

Red River

Delta

Ha Noi, Hai Phong, Ha Tay, Hai Duong, Hung Yen, Ha Nam, Nam Dinh, Thai Binh, Ninh Binh

WB

Ha Tay My Duc Te Tieu Phuc Lam

RDSC (funded by WB)

Nghi Loc Nghi Thai Nghe An

Tuong Duong Tam Dinh

IOS (funded by JICA)

Hai Lang Hai Son Hai An

North Central

Thanh Hoa, Nghe An, Ha Tinh, Quang Binh, Quang Tri, Thua Thien Hue

GTZ and JICA

Quang Tri

Gio Linh Gio Thanh Linh Thuong

Team comprising MOLISA, ILSSA and independent researchers

(funded by GTZ)

Son Ha

Son Ba Son Cao

Central Coast

Da Nang, Quang Nam, Quang Ngai, Binh Dinh, Phu Yen, Khanh Hoa

ADB

Quang Ngai

Tu Nghia Nghia Tho Nghia An

Vietnam Solutions (funded by ADB)


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Table A: Partnerships for the Regional Poverty Work (continued)

PPAs Region Provinces included in the region

Donor in charge of the RPAs

Province District Communes

Team in charge of the PPAs

EaHleo Eaheo Ea Ral

Dacrlap Đao Nghia Quang Tan

Central

Highlands

Kon Tum, Gia Lai, Dak Lak

ADB

Dak Lak

Buon Ma Thuot city Ea Tam town

Action Aid (funded by ADB)

Binh Chanh District An Lac Township Tan Tao

HCMC

District 8 Ward 4 Ward 5

SCUK (Funded by itself)

Ninh Phuoc Phuoc Hai Phuoc Dinh

Southeast

HCMC, Lam Dong, Ninh Thuan, Binh Phuoc, Tay Ninh, Binh Duong, Dong Nai, Binh Than , Ba Ria-Vung Tau

WB

Ninh Thuan

Ninh Son Luong Son My Son

CRP (Funded by WB)

Tam Nong Phu Hiep Phu Tho

Dong Thap

Thap Muoi Thanh Loi

Thanh Phu

My Hung Thoi Thanh

Mekong River Delta

Long An, Dong Thap, An Giang, Tien Giang, Vinh Long, Ben Tre, Kien Giang, Can Tho, Tra Vinh, Soc Trang, Bac Lieu, Ca Mau

UNDP and AusAid

Ben Tre

Mo Cay Thanh Thoi

Long An Primary Health Care

Centre (Funded by UNDP and AusAid)

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Acknowledgement This poverty participatory assessment (PPA) is a product of the Vietnamese‐German Cooperation Program. It has been completed with valuable inputs from a number of specialists working in central agencies/institutions, research institutes, the Department of Labor, Invalids and Social Affairs, non‐governmental agencies. The following experts and professionals have collaborated under the direct monitoring of the Vietnamese‐German Cooperation Program: MOLISA‐GTZ Poverty Project: Dr. Ngo Huy Liem, adviser Institute of Labor Science and Social Affairs: Ms. Nguyen Thi Lan Huong, Deputy Director, Team leader of the research group; Ms. Tran Thi Tuy Hoa and Mr. Nguyen Minh Tuan, both researchers;

National Program for Hunger Eradication and Poverty Reduction (HEPR)/ Employment Office: Mr. Thai Phuc Thanh, Ms. Le Minh Giang, both specialists;

Vietnamese‐German Cooperation Program: Ms. Nguyen Thi Nga, senior program officer; Mr. Nguyen Hai Truong and Mr. Nguyen Manh Tuan, both program staff

Institute of Sociology: Ms. Dinh Thi Phuong Thao, Ms. Nghiem Thi Thuy, researchers;

Yen Bai Department of Labor, Invalids and Social Affairs: Mr. Nguyen Binh Minh, Mr. Phan van The, Mr. Pham xuan Tung, specialists

Action AID Hatinh: Ms. Nguyen Thi Huong, Ms. Phan Thi Ha, Ms. TuThi Nga, program officers.

Quang Tri Department of Labor Invalids and Social Affairs: Mr. Nguyen Tri Thanh, Mr. Nguyen Tri Dzung, Mr. Nguyen Minh Son, specialists.

Gio Linh District People’s Committee: Mr. Nguyen Dang Phuc, Ms. Le thi Thuy, officers

Hai Lang District People’s Committee: Mr. Nguyen Manh Hung, officer


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Table of Contents

Foreword by the Poverty Task Force.......................................................................... iii Acknowledgement........................................................................................................ vii Executive Summary .........................................................................................................1 Survey Findings ...............................................................................................................3 Overview ..........................................................................................................................7

I. Profile of Quang Tri Province .............................................................................7 II. Selection of Survey Sites .......................................................................................8

Chapter I: Inter‐Relation Between Economic Growth, Poverty and Employment ...............................................................................................10

1. Difficulties in HEPR work in Quang Tri Province ..................................10 2. Poverty under both Fiscal and Non‐Fiscal Aspects ................................11 3. Causes of Poverty ........................................................................................12 4. Poverty Trend ...............................................................................................12 5. List of the Poor: the Procedure ...................................................................15 6. Opportunity Generation through the Labor Market .............................17

Chapter II: Basic Social Services for the Poor ........................................................21

I. Education ..............................................................................................................21 1. Various Policies in Support of Education for the Poor are Existing .....21 2. Education network, facilities and teachers .............................................24 3. Access to Educational ..................................................................................26 4. Drop‐outs Rate among Poor children .......................................................26

II. Health Care .........................................................................................................30 1. Current Status of Health Care Network....................................................30 2. Health care in Support of the Poor ............................................................32 3. Difficulties in Delivering Health Care Support Services to the Poor ...33 4. Difficulties Faced by the Health Sector in Implementing Decision

139 in Quang Tri Province...........................................................................37 III. Agriculture‐Forestry‐fishery Extension‐Plants Protection and

Vetevinarian Services .......................................................................................37 1. Agriculture‐forestry‐fishery Extension‐Plan Protection and vet7 Play a

Crucial Role in Poverty Reduction Activities in Quang Tri Province ..38 2. Role of Social Organizations in Agriculture Extension ..........................40 3. Involvement of the Poor in Agriculture Extension Activities ...............41 4. Problems, Difficulties Facing Agriculture Extension Activities ...........42

Chapter III: Quality and Targeting of Social Assistance .......................................42

1. Social Subsidy in Quang Tri Province is Badly Needes ..........................47 2. Regular Subsidy8 ..........................................................................................49 3. Emergency Aid..............................................................................................52 4. Exemption from Obligations, a type of Social Subsidy ..........................55


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5. Informal Social Support ..............................................................................57

Chapter IV: Current Patterns of Participation in Local Decision‐Making .........59

1. The Implementation of the Grassroots Democracy ................................59 2. Understanding of grassroots democracy ..................................................59 3. Impact of grassroots democracy on the communication process .........60 4. Impact of Grassroots Democracy on the Participatory Decision‐

Making Process and the Supervision of Programs and Policies ............63 5. Grassroots democracy reduces the number of petition cases.................66 6. GDD and the improvement of relations between organization and

the community ..............................................................................................67 7. Decentralization and Empowerment ........................................................69

Chapter V: Part A – Public Administrative Reform (PAR) ...................................71

1. Implementation Process and Administration Reform Model ...............71 2. One‐door Policy for Land Allocation and Issuance of Certificates of

Land use right .............................................................................................71 3. The Impact of Public Administration Reform (and One‐door Policy). 72 4. Difficulties/challenges in the Implementation of the Public

Administration Reform................................................................................76 5. Some Issues ...................................................................................................77

Chapter V: Part B ‐ Implementation of the Enterprise Law ..................................79

1. Increase of Newly Established Enterprises .............................................79 2. Preferential Policies to Attract new Enterprises ......................................80 3. More Labor in Growing Enterprises ..........................................................80 4. Some difficulties in job Creation for the poor ...........................................81

Chapter VI: Migration ..................................................................................................82

1. Status of Migration in the Province ...........................................................82 2. Migration Goals ............................................................................................85 3. Impact of Migration .....................................................................................85 4. Problems and Difficulties of Migrants .......................................................88

Chapter VII: Environment ...........................................................................................90

1. Environment‐Issues Related to Daily Life .................................................90 2. Environment Protection Activities Raise Income......................................91 3. Scarce Virgin Forest (about 15%), and Depletion of Natural Resources due to Over‐exploitation ..............................................................................92

4. Environmental Pollution ..............................................................................93 5. Living Environment of the Poor .................................................................94

Chapter VIII: Measures for Growth and Poverty Reduction in the years Ahead......................................................................................................97

Annex: Poverty Assessment in Quang Tri Some Survey Findings ....................106

Excutive Summary

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Excutive Summary “The Comprehensive Poverty Reduction and Growth Strategy”(CPRGS) was ratified by the Government of Vietnam in May 2002. This document was considered a basic legal framework to enable the integration between growth and economic development objectives, hunger elimination/poverty reduction and social justice. To prepare for the mid‐term review of the strategy implementation, GTZ has collaborated with other donors to conduct a poverty assessment among 12 selected provinces, covering the most important elements of economic development and HEPR. In Quang Tri Province, chosen as one of the assessment areas, the inter‐sectoral assessment team conducted site activities from July 12 to 22, 2003 under the technical assistance and direct monitoring of GTZ, after reviewing available data on the poverty status and other related matters pertaining to the province of QuangTri. Methodology: (i) Participatory assessment was used as the key tool in collecting information; (ii) Secondary data were also collected and analyzed, including statistics on poverty and other related matters, information from development strategies and annual reports, bi‐annual reports submitted by relevant agencies. The assessment covered seven key areas: (i) Poverty and employment; (ii) Basic social services (health care, education and agriculture extension); (iii) Quality and targets of social protection programs; (iv) Participation and empowerment; (v) Administrative reform; (vi) Environment (vii) Migration Chapter I examines the current status of poverty and several HEPR trends existing in QuangTri Province, according to ideas exposed by different respondents including the community and local authorities at various levels. “Non‐physical” aspects of poverty were also analyzed in this chapter to correctly identify the poor or poor groups. The correct identification of target groups aims at facilitating policy‐making and guaranteeing a sustainable monitoring mechanism. The “vulnerable” characteristics of the poor particularly in the context of a diversified economy and the increasing trend of employment mobility are also analyzed in this chapter, as well as strategies to support the poor in order to reduce their “vulnerability”.


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Chapter II reviews the delivery of basic social services to the poor, with focus on health care, education and agricultural extension services. While quantitative data and administrative reports usually refer to tendencies, the results of this survey analyze the quality of the services provided, including an assessment made by the poor of the capability of the service network, the poor’s accessibility to the services and their satisfaction levels. Chapter III assesses the quality of the social protection services with focus on both the formal and informal networks. It also analyses the accessibility to social assistance of the poor; policies/schemes adopted by the Government as well as other networks to help households and the community at large avoid, mitigate and eliminate risks. Chapter IV deals with issues of participation and empowerment. It evaluates people’s participation ‐ particularly of the poor, women and ethnic minorities ‐ in the implementation process of Decree 29 regarding democracy at grassroots level in budget planning and other planning schemes. Chapter V engages in a discussion on the administrative reform, the change from administrative units to public services to ensure more transparency and efficiency. The pilot experiment of the “one‐door” policy in granting land use rights and its impact are presented in this chapter, as well as its impact on poverty alleviation. Chapter VI and VII focus on migration and the environment in which the population are living. They analyze how those issues impact economic growth and the HEPR program in the community. In order to collect the information needed, the research team discussed with more than 200 staff representing various agencies, institutions and unions as well as interviewed more than 250 people representing among others poor and ethnic minority households.

Survey Findings

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Survey Findings 1. Consultations with local authorities and people in eight villages of two

districts, i.e., Gio Linh and Hai Lang, show that economic growth and poverty reduction are closely related. That Quang Tri has maintained a high growth rate (over 9% per annum) over the last years has created a momentum for broad‐based poverty reduction. The poverty incidence has declined on average by 2% per annum.

2. Poverty reduction achievements, however, are not sustainable. Poverty tends

to concentrate in mountainous, coastal areas and plains with inadequate infrastructure. Most households are low‐income, on the threshold of poverty and thus utterly vulnerable as soon as adverse events occur (drought, crop failure, sickness, accident).

3. The causes of poverty in Quang Tri are diverse. They include: poor economic

potential, harsh natural conditions, heavy effects from the war, inadequate infrastructure, sluggish adjustment of policies towards economic development, and limited capabilities of the poor themselves.

4. Typical features of poor households in Quang Tri include: lack of production

tools and business experience, vulnerability to sickness, large families, household members with disabilities, single households or beneficiaries of social policies. Most of them are poorly educated and work mainly in agriculture where productivity is low and unstable. Poor resources make the poor vulnerable to calamities, crop failure, epidemics, sickness, etc.

5. Poverty reduction is seen as one of the urgent and long‐term tasks of the

Quang Tri provincial government. The province has declared that the poverty reduction strategy should include: transformation of economic structures, diversification of incomes, and provision of direct support to the poor (individuals, households, areas) through the national poverty reduction program and other supports. But difficulties still abound, due to poor infrastructure and the slow pace of economic development, the undeveloped labor market and high risks faced by key industries. This poses significant challenges to poverty reduction activities and economic growth in the years ahead.

6. As other provinces, Quang Tri has actively implemented policies to support

the poor such as health care and education policies. Such policies have contributed to improve the poor’s access to the public education system and ensured timely assistance in case of sickness. Nevertheless, consultations with people reveal that there is a great need for subsidization of medical expenses. Most people are not fully aware of the government’s support policies. Wide


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distances, high cost of services, and the low quality of such services are major hurdles to the health care program in support of the poor. Most of the poor do not rely on the health care services within their vicinity (village, commune level). In regard to education, the higher the grade, the higher the percentage of drop‐outs by students belonging to poor families. The main reasons include high tuition fees (high in relation to the economic conditions of the household), travelling distance and enrollment quota in public schools. Furthermore, a significant percentage of drop‐outs is attributed to the fact that the children have to assist their families to earn a living.

7. Agriculture‐forestry‐fishery extension, plant protection and veterinary activities in

the past years have actively contributed to the dissemination of scientific and technical progress in the production process, the prevention of epidemics among plants and livestock, and positively transformed economic structures. Productivity of plants and livestock keeps increasing. Economic sub‐zone models have been developed and contribute to economic growth. Consultations with the people show however that extension activities are far from meeting existing needs and do not reach the effectiveness level required. The selection of appropriate plants and livestock is a tedious process, the percentage of failed experiments high. The reasons include: poor infrastructure (lack of water, electricity), inadequate network, lack of full‐time staff at commune level, limited budget, and the community’s low educational level. Models that link input and output have not been established. Extension clubs and cooperatives have not played their roles to the tilt within a supposedly market‐oriented economy.

8. A province heavily damaged by the war and natural disasters, Quang Tri has

a significant number of target groups in need of social support. Only a small percentage however is receiving regular or ad‐hoc subsidies, most of which are extended by the State. The role of social organizations and non‐governmental organizations in providing such support is limited. In addition, the quality of support is not high due to its narrow scope, complicated approval procedures, and slow delivery. Consequently, the significance of such support is low. The reasons include: limited budget (conditional on allocations from the central budget), conservative mentality of local officials, and limited participation of organizations and people in identifying and proposing potential beneficiaries.

9. Along with other provinces nationwide, Quang Tri has actively implemented

the Grassroots Democracy Decree down to the commune level as well as the delegation of powers and decentralization. Consultations show that people are getting more information and are allowed to participate in the process of planning economic development policies at village and commune levels. There are however limitations, such as the concentration of information at higher levels, the limited understanding of the concept of “democracy” by the community, and people’s participation merely in the implementation phase

Survey Findings

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and in fulfilling their obligations to the village and commune while participation in the supervisory process is limited and superficial.

With regard to participation and empowerment, the decentralization and delegation of powers are not comprehensive, due to the lack of financial and budget decentralization.

10. Quang Tri is also piloting administrative reforms with the establishment of the

one‐door policy for the issuance and transfer of certificates of land use right. The success of the pilot phase has facilitated the expansion of the model to other districts. Difficulties faced by the system include: an inadequate budget for operations, lack of coordination among agencies, incapacity and even lack of desire for change on the part of executive officials. But most of the respondents did not feel the impact of this service, as access to information is limited and the scope of the pilot phase restricted.

11. Organized migration mechanisms have helped re‐distribute human resources to

exploit potential resources of economic sub‐zones and improve the living standards of migrants. The poor, however, have few opportunities to participate in this program if they fail to fulfill their obligations to the local government.

In addition to organized migration, free migrants in search of better pasture and income opportunities are playing an increasingly important role. Many people in Quang Tri have migrated freely to settle in new areas. Mention should be made of the rising trend among the youth to look for jobs elsewhere in other provinces. Free migrants face various difficulties as they are poorly educated and not eligible for support from the local governments of both the departure and destination places. Such free migration, however, contributes largely to poverty reduction.

12. The natural environment in Quang Tri is facing deterioration due to excessive

exploitation, pollution as a result of toxic chemicals and industrial development, local perceptions and outdated customs. The living environment of the poor is even more threatened due to dilapidated housing conditions, limited access to clean water, lack of basic infrastructure such as toilet, electricity, road, etc. Measures taken to protect the environment have not been effective despite various efforts.

13. To ensure economic growth and sustainable poverty reduction, the following measures

should be implemented in the years ahead: a. Increase expenditures from the provincial budget for economic growth to

create a foundation for sustainable poverty reduction (create opportunities to increase incomes and reduce vulnerability, etc.)


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b. The quality and activities of poverty reduction should be upgraded to include a re‐definition of the poverty line, identification of beneficiaries and better direct support programs.

c. Additional investment should be made in medium‐ and small‐scale

infrastructure (especially road, electricity, and irrigation) to ensure a successful transformation of the economic structures.

d. There should be a breakthrough of extension activities. Extension work should

be transformed into services, with more effective participation of extension clubs and cooperatives, etc. Best practices should be identified and duplicated; the “five‐stakeholders” model should be adopted to mitigate risks for farmers.

e. The scope of beneficiaries and issues should be further expanded in the fields

of health care and education targeting poor households and individuals. f. The scope of beneficiaries should be expanded and the level of regular social

assistance raised. Improve the quality of ad‐hoc support. Strengthen recovery capacity of poor households through the establishment of communal risk‐cover funds.

g. People’s participation should be increased in commune activities, especially in

budget planning, construction of infrastructure works, political campaigning, etc. Facilitate and strengthen the voice of the people, to ensure that they can effectively exercise their supervisory role.

h. Information about the “one‐door” policy should be disseminated effectively in

order to accelerate the pace of land allocation and issuance of certificates of land use right. Develop plans to expand this service to other areas such as business registrations, issuance of personal identity cards, marriage/birth certificates, etc.

i. Organized migration programs should be made more effective. Provide

support to free migrants, both in and out of the province, and to overseas labor.

j. Prevent the degradation of the natural environment. Improve the living

conditions of the poor.

Overview

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Overview I. Profile of Quang Tri Province A small‐scale and poor province, Quang Tri is situated in the Northern coastal central area with a total natural area of 4,745 square kilometers. The province counts 608,967 inhabitants as of December 31st, 2002. The provincial GDP growth rate in 2000, 2001 and 20003 was 9 %, 7.5 % and 8.4 % respectively. Achievements in poverty reduction have been witnessed over the past years due to the commitment and management of local authorities, the cooperation of various sectors and unions as well as the efforts made by the poor themselves. The poverty incidence in 2003 went down to 17.1 %, decreasing so far by 2.5 % per annum. Nevertheless, infrastructure in poor communes and isolated areas has been neglected. To date, only 30 % of agricultural areas have access to an irrigation system and only 50 % of the population have access to clean water. One commune in the province does not have access to electricity.


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The poverty incidence has decreased significantly by an average of 2.5 % per annum.

Poverty incidence Total number of households

National poverty line

1996 22,7 % 24.759

1998 18,7 % 21.813

2000 13,2 % 16.123

New national poverty line

2001 24,4 % 29.951

2003 17,1 % 21.616

International poverty line

2001 52 %

Source: Department of Labor, Invalids and Social Affairs, Quang Tri Province There are nine administrative units in Quang Tri Province, i.e. two provincial towns: DongHa and QuangTri; seven districts: Vinh Linh, Gio Linh, Cam Lo, Trieu Phong, Hai Lang, Huong Hoa, Dakrong. Or a total of 136 communes, wards and towns.

II. Selection of Survey Sites: Two districts were selected for the survey, namely Hai Lang and Gio Linh districts 1. Profile of Hai Lang District

Hai Lang District shows many of the typical economic characteristics of Quang Tri Province with four “economic areas” i.e. potential handicrafts industry, aquaculture, forestry development and husbandry, and shore fishing.

Commune selection in Hai Lang District

Commune 1: Ah An • Coastal area with 100 % of natural

area as sandy land and 70 % of households doing shore fishing as livelihood.

• Non‐agricultural activities are being developed, as well as industrial husbandry and planting models.

• High poverty incidence: 24 %

Commune 2: Hai Son • Situated uphill, land for agriculture

is available. 60 % of households are into forestry production.

• Changes of plant and animal structures

• A great number of people migrate for work.

• Transportation difficulties • Poverty incidence: 16 %

Overview

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2. Profile of Gio Linh District

The economic growth rate in Gio Linh District is good with 11 % per annum, higher than the provincial average. However the poverty incidence is very high with 18 %. Gio Linh is a mountainous district with Van Kieu as ethnic groups.

Commune selection in Gio Linh District:

Commune 3: Linh Thuong • 100 % of the population are Van kieu ethnics

• Obsolete production, poor transport,

• Backward customs and traditions • Poverty incidence: 62.7 %

Commune 4: Gio Thanh • Agriculture production • It is possible to develop non‐

agricultural occupations • Poverty incidence: 22,4 %

Profiles of villages and communes surveyed (2 villages per commune)

Total households

Total number of poor households

Poverty incidence

1. Linh Thuong Commune 244 153 62,7

- Cu Dinh 39

- Dong Don 40

2. Gio Thanh Commune 638 143 22,4

- Hoang Ha 83

- Tan Minh 75

3. Hai Son Commune 981 155 15,8

- Khe Muong 63

- Tan Dien 83

4. HaiAn Commune 924 228 24,6

- Tan Tay An 158

- Thuan Dau 114


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Chapter I: Inter-Relation Between Economic Growth, Poverty and Employment

”... High quality growth is promoted to rapidly reduce poverty. Growth will create more opportunities for the poor and poor communities to escape from their poverty. Economic growth will pave the way for hunger eradication and poverty reduction on a large scale. If reallocation schemes or national solutions for poverty reduction are applied without growing the economy, sustainable poverty reduction can not be assured. With the aim to ensure high and sustainable growth, it is necessary to shift and diversify the agricultural production structure, develop more occupations, promote the development of small and medium enterprises, promote the development of non‐agricultural activities to generate more jobs and generate more income for the poor.... ʺ. (CPRGS, May 2002, page 46) 1. Difficulty in HEPR work in Quang Tri Province 1. HEPR progress in Quang Tri Povince is being impeded by the following

factors: slow economic growth, poor infrastructure, complicated geographical conditions and limited education level.

Economic growth: The total area of land for cultivation in the province is small and the land is infertile. Markets to consume provincial products are not yet available. Seedlings and small animals for husbandry that can provide high yields are in shortage. Production methods are obsolete and yields are small. Rice is the key type of crop, but the productivity is very small with 0.35 tons per hectare per annum. Other plants provide poor productivity and are being planted on a small scale. Infrastructure: Infrastructure is neither sufficient in terms of quantity nor adequate in terms of quality. The population hardly has access to communication systems. Irrigation systems, kindergartens, health care centers, electricity and clean water are in great shortage. Geographical location: There are plain, coastal as well as mountainous areas in the province. There are two mountainous districts and three other districts have both mountainous and plain areas; Education level: The education level is very low with a lack of business knowledge. Particularly, there are two ethnic minority districts namely Huong Hoa and Dakrong.


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2. HEPR is considered as both urgent and long‐term HEPR was identified by the Provincial People’s Committee in Circular 03/CT‐UB dated March 19, 1996 as “one of the urgent tasks/programs to be completed. This program should be regarded as a targeted program; an objective to be achieved during the socio‐economic development process of the province by each sector, each organization, each community and each household”. To date, achievements have been recorded, but there are still untold challenges to be addressed in the future.

The HEPR Program in Quang Tri Province for the period 2001-2005 focuses on the following objectives

‐ Reducing the poverty incidence to below 12 %. ‐ Providing essential infrastructure for poor communes. ‐ Providing basic social services for 75 % of the poor. Source: Provincial Steering committee for HEPR program

2. Poverty under both Fiscal and Non-Fiscal Aspects 3. Answers given by the population to questions such as “What is poverty? Who

are the poor? Why are they poor?” are important inputs for policy and mechanism formulation more attuned to the needs of the poor. In general, the respondents believe that they are facing great difficulties in their lives, their incomes are unstable and very close to the poverty line. The majority do not use the terms “rich”, “better‐off”, they prefer using instead the terms “better households” “households with less worries” or “households with stable economic conditions”.

We do not have rich households here but we have “better households”. If some households have a 2‐floor house, it does not mean that they are rich. We have to build another floor to save ourselves from the floods. Money to construct the second floor is from the flood prevention program. Respondents from Tan Dien Village, Hai Son Commune, Hai Lang District

4. Many respondents comment that poverty is also seen in terms of “resources”

or “assets”. The poorest household will be the ones possessing nothing. They have no property, their houses are temporary, they lack means of production (cow or buffalo for cultivation), have a high number of children, disabled, sick members, are elderly or lonely, etc.


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Figure 1: Poverty characteristics

3. Causes of Poverty 5. The poverty survey conducted by the Department of Labor, Invalids and

Social Affairs in 2002 found that the causes of poverty (at household level) are as follows:

• Poor knowledge and experiences (poor education level): accounting for 34,95 % of total poor households;

• Lack of capital for production and husbandry (high risks, in debts, no access to source of capital): 19,09 %

• Lack of labor (a high number of small children, poor health conditions, lonely, disabled): 18,11 %

• Sickness, disabled (due to the war, mines, toxic substances.. ): 9,44 % • Lack of land for agricultural cultivation • Natural calamities (flood, drought) 4. Poverty Trend 4.1. Along with economic growth, poverty has been reduced broad-based.

6. In the 1999 ‐ 2002 period, the average GDP in the province increased by 8‐9 % per annum. Shares of forestry‐agriculture‐aquaculture, industry, construction‐services in GDP were 48 %; 11.9 % and 40.1 % in 1996, and 42.9 %; 18.5 % and 38.6 % in 2002, respectively. This structural shift paved the way for poverty reduction activities.

Poverty

Food shortage (From 3-4 months/year)

Unsettled dwelling house

Lack of living conditions

Sickness (Malaria, tuberculosis,)

Lack of production means

(No buffalo)

Low level of education (Illiteracy adults, school

dropped out children)

Many children (3‐5 children)

Lack of capita/ Deptness

Risks and disaster


13

7. Poverty has been reduced sharply in the province, including mountainous and ethnic minority regions.

• In the period 1 (1996‐2000)1, the poverty incidence was reduced from 22.75 %2 to 13.25 % by the end of 2000, or 2 % annually.

• In the period 2 (2001‐2005)3, the poverty incidence was reduced from 24.4 % to 17.1 % (as of end of 2002) and it is expected to fall to 14.0 % by the end of 2003.

4.2. The quality of life, especially in food security, has improved.

8. According to peopleʹs observations, most of them usually had in the past (in the last five years) rice mixed with cassava or sweet potato, even for three to six months, especially during the rainy season.4 To date, most households can afford undiluted rice, leaving cassava for the livestock. Apart from food security, the quality of life has changed, among others, housing conditions, the quality and quantity of home appliances in both poor and rich household groups.

4.3. The sustainability of poverty reduction activities, however, is not high

9. Quang Tri is a province that has greatly suffered from the war. The rate of policy households is high (about 11 % of poor households). After the war, the ratio was one dead or injured for every five persons. There are currently 6,000 disabled children, more than 600 orphans, about 2,000 elderly without family support. Among the poor, 21 % (more than one fifth) of households are headed by women.

10. The number of households close to the poverty line is still high. In 2002, besides 21,616 poor households, there were 8,000 households close to the poverty line, and about 9,000 households who had escaped poverty but were not yet steady. The income level is low, as people rely solely on agricultural production. It is therefore likely that they will relapse into poverty at the least shock. For those close to the poverty line, being ʺinʺ or ʺoutʺ of poverty is but an infinitesimal step. The poverty incidence usually increases sharply right after a natural calamity, risk or disease occurs. Therefore, the likelihood for most to escape from poverty for good is not high.

1 Target Program for Hunger Eradication and Poverty Reduction in Quang Tri, 1996‐2000 Period, 2 according to the poverty line of 1998‐2000 Poverty line of 1998‐2000 (1751//QD‐LDTBXH): Rural, mountainous, coastal areas: VND 55,000/person/month Rural areas in plain regions: VND 70,000/person/month Urban areas: VND 90,000/person/month 3 National Target Program for Hunger Eradication, Poverty Reduction and Employment, 2001‐2005 Period. 4 In this area, almost all production activities are halted in the rainy season (for about 6 months)


14

11. Uneven poverty distribution. Poverty mostly exists in mountainous, coastal areas or plain areas where infrastructure is poor. In 2002, the poverty rate was the highest in mountainous areas at 45.5 %. In plains, midland regions, and enclosed coastal regions, it was 19 % and 24.7 %, respectively. Poverty is very acute in mountainous areas which account for one half of the total provincial area, with 13 % of the total provincial population living there. The poor in mountainous areas account for 80 % of the total poor population. The income level is equal to only 40 % of the average income in the province, i.e. nearly 85$/year5.

12. Poor infrastructure. In the province, there are 36 villages in difficult circumstances and border villages. A proposal is being submitted to the government to acknowledge another 29 poor villages in plain areas.

Poor infrastructure in poor regions

• in 4 villages, there are no roads for cars to access the village center; • 15 villages lack small irrigation systems; • in 22 villages, less than 50 % of households use clean water; • in 21 villages, there are no power lines to the village center; • 22 villages do not have a village market or central market. Provincial Hunger Eradication and Poverty Reduction Steering Committee, 2001

4.4. Overall, living standards have improved but improvements are not

equally distributed.

13. Consultation results seem to support the finding of other studies that some groups benefit more from economic growth than others.

• Group with ʺbetter‐offʺ tendency: This group makes use of its natural advantages such as labour force (grown‐up children), good health conditions, better educational level, wide social connections. It can also get involved in forestation programs, water surface out‐sourcing, or animal‐crop restructuring programs. Besides, parents can send their children to other provinces to earn higher incomes.

• Households doing exclusively agricultural activities, who are slightly better‐off. Households living in mountainous areas or in poor lowland areas have limited arable land and find it difficult to intensify farming practices because of water, electricity and irrigation shortages. Apart from that, as prices of agricultural products remain stagnant while prices of inputs increase (fertilizer, labour, etc.), their net income is only at subsistence level. While production can be ʺdiversifiedʺ through animal husbandry practices, large‐scale production (suitable to conditions in mountainous areas) requires capital and know‐how which are in short supply.

5 Report of the Provincial Planning and Investment Department


15

• Group with ʺworse‐offʺ tendency is comprised of lonely, elderly people (the majority are women). The future of such people does not look promising because the older they get, the weaker and more prone to diseases they become. They have no other means of survival than state subsidies (even subsidies are rare). As a matter of fact, many households will probably never be better‐off because they either have small children, or their grown‐up children are also poor and gone to other pastures without the possibility to care for their own parents.

14. This opportunity gap is the reason for the widening income gap among households. Poor households feel that they are disadvantaged in many aspects and it seems increasingly difficult to catch up.

• Better‐off households are getting richer. A majority of televisions, motorcycles, permanent houses belong to better‐off households. While many children from better‐off families are attending universities, children from poor families cannot afford to attend upper secondary schools.

• As better‐off households have capital and do not need to worry about their housing conditions, they can afford to buy power‐boats and better fishing nets for off‐shore fishing to improve their production, and thus incomes.

• Poor households can only ʺstickʺ to farming and planting activities, which are risky and of low income. The income gap between the poor and their better‐off counterparts derives mainly from non‐farming activities.

15. Gloominess is the common feeling among poor households. Theoretically, household economic development is the usual ʺescape wayʺ, but it is not easy to do so in practice. The poor do not lack self help, but they cannot ʺdo it aloneʺ. They do not rely too much on the State, but they need more support, especially in infrastructure, knowledge in animal husbandry‐crop re‐structuring.

ʺWe do not see our lives getting better. As long as we do not have electricity, we will remain poor and the older and weaker we get, the poorer we become. People of Hoang Ha village, Gio Thanh, Gio Linh

5. List of the Poor: the Procedure 16. A list of poor households is made twice a year in Quang Tri Province.

Consultation meetings at various villages, districts show that ʺthe list of poor householdsʺ is a collective product (including the voice of the poor), the selection procedure is complicated rather than a simple assessment of income levels (the selection procedure is presented in Appendix 2).


16

Figure 2: Process to select poor households in Linh Thuong Village, Gio Linh:

17. Although this selection procedure produces a ʺlist of the poorʺ, there are still

problems. It was found that there was a discrepancy between the list of the poor classified by the village and the list of households receiving poverty certificates. Therefore, not every ʺpoorʺ household as classified by the community is recognized as ʺpoor householdʺ and provided a poverty certificate.

18. There seems to be a ʺquotaʺ imposed on the number of poor households There are some doubts that many localities impose a ʺquotaʺ on the number of

poor households and the poverty incidence is pre‐determined by higher levels. The following opinion of an officer working in poverty reduction shows that ʺquotaʺ imposition is partially due to striving for a given target, and partially because of ʺlimited resourcesʺ.

In practice, those who are classified as ʺaverageʺ, are still poor. However, because income levels among households differ just slightly, one should select poorer households to be under policy coverage, otherwise, the whole village will be classified as poor. An officer working in poverty reduction in Gio Thanh village, Gio Linh

19. Some households are recognized as poor but have yet to receive their certificates It is noteworthy that some poor households are yet to receive their poverty

certificates because they are still indebted to the village. Since the possession of such a document is a condition to access basic services, most of the poor want to get it. As for the local government, this is a good chance to ʺask the poor to exercise their citizenshipʺ.

Training course on

poor household criteria

Meeting with village officers, hamlet leader

Hamlet reviews the list of households to identify survey

sample (Total 188 poor households plus

37 new poor households)

Survey of sample households (total 225 households)

DOLISA provides Poverty

Certificates to 143 households

Submit the list to district office of

labor, invalids and social affairs

District authority approves the list of

village poor households (3) (Only 143 h h ld )

Public meeting for comments

Village meeting to draft list of

poor households (1)

Village authority adjusts list of poor households (2)


17

We provide poverty certificates only to those who are not indebted. Village worker at Tan Minh Village, Gio Thanh, Gio Linh

20. Despite impediments, most people and officers are happy with the current selection

procedure that involves people participation.

Poor and non‐poor households can participate in the selection process to protect their rights. Many households were included in the survey sample. As people know each other very well, including each other’s income levels, examination and selection were made fairly and equitably. People of Tan Dien Village, Hai Son, Hai Lang

6. Opportunity Generation through the Labor Market 6.1. Economic diversification plays the leading role in economic growth

and poverty reduction. In Quang Tri Province, it is not easy to do so

21. Most villages surveyed lack arable land, especially land for rice growing. Apart from that, adverse climate, water and electricity shortages have caused incomes from rice production to decrease. There is a paradox that with over 85 % of the population earning their living from farming, people do not seem to appreciate crops in their economic activities. Even some people think that ʺfarming is the cause of povertyʺ, or in other words, poverty is characterized by “farming activities”.

Only the poor are engaged in farming, not many better‐off people do farming. The poor rely on farming, but the more they do farming, the poorer they become because their health gets worse (due to lack of plough power), while income is negligibleʺ. People at Hoang Ha village, Gio Thanh, Gio Linh

22. Sloping agriculture along with forestation and farm economy are escape ways, but not easy. There are still many problems in models of industrial crops such as the small rubber farms in Vinh Linh and Gio Linh Districts, the pepper farms of Cam Lo and Huong Hoa Districts, or fruit farms, coffee farms, etc. They include seed research, assistance in product care and marketing. Moreover, these models are not relevant to the poor, since the latter do not have enough capital and know‐how.

‐ Pepper: In recent experiments, unstable. It is not relevant to the poor as it requires water, fertilizer and seed. ‐ Peanut: Seeds provided by the PLAN Project, but productivity is low (thick shell, small grains) Officer at Linh Thuong Village, Gio Linh


18

23. Apart from that, there are forestation projects to increase forest coverage and natural environment protection. However, in the immediate term, income generation for the poor from forestation is very difficult.

In the beginning, more labor force is required for ground clearance, hole digging, planting, caring of infant trees. Income, thus, is higher. In subsequent years, (currently) less labor is needed. Therefore, income is reduced. It will be generated from forestation in 6 to 7 years from now (9‐year contract), which is a long period of time. Better‐off households might not have problems, but the poor have to find other sources. People at Tan Dien Village, Hai Son, Hai Lang

24. There are changes in animal husbandry thanks to the provincial animal

husbandry incentive policy. In some areas, focus has been laid on animal husbandry (such as Hai An and in some villages in Hai Son, Hai Lang), where the number of households breeding on a large scale is increasing (breeding farms of more than 100 fowls, ducks, or 7‐10 pigs, or 3‐5 buffalos). However, most households still feel that ʺthe breeding business is vulnerableʺ because of the risks involved, especially epidemics while there is a lack of veterinarian staff.

Land is in surplus but it is not easy to develop animal husbandry. As the poor are not knowledgeable, the probability of animals dying from epidemic diseases is high (risk probability up to 40 %). Many borrowed capital to run an animal husbandry business but failed, consequently, they are indebted. Village officer at Linh Thuong Village, Gio Linh 25. Fishing generates the major source of income for people living in coastal areas

such as Hai An, Hai Khe (Hai Lang District), this possibility however is contracting for the poor because of increasing risks.

Deep‐sea fishing becomes more difficult In recent years, most fishermen (more than 70 % of households in Hai An Village) using small boats for fishing near the shore have not been able to catch fish as the fish population is getting depleted. They have to do chance fishing, relying on an unstable income ranging from VND 20,000‐30,000 per day (including cost of lubricant, ice cube of 7,000 to VND 10,000 per day). They can do fishing 20 to 25 nights per month and 6 to 7 months per year only. Higher incomes from deep‐sea fishing require bigger boats, better nets for long‐distance fishing (over 25km) which the poor cannot afford. People at Hai An Village, Hai Lang

26. To date, labor structure changes are slow. Off‐farm employment in the province is a ‘golden’ chance to increase incomes. But for the poor that chance is immaterial as they are the least qualified.


19

The chance to be an employee of ATI is not available to poor households although everybody wants to be employed by ATI6 to get a high income. Employees can earn on average VND 700,000 per month, even when they do simple work such as digging sand to create a lake. However, only those who finished Grade 9 are qualified. All of us (poor households) are not qualified enough. People at Hai An Village, Hai Lang 27. More incentives are given to local business development through policies to

attract domestic and foreign investments under the motto of ʺIndustrial Promotionʺ. However, more conditions should be made available for business development such as water, electricity, transport, etc.

How will occupations be developed in our village without electricity, better inter‐village roads?. If electricity is available, we can at least run a milling business to attract labour. People at Hoang Ha Village, Gio Thanh, Gio Linh 28. Encouragement and creating favorable conditions for people seeking jobs in

other provinces is a normal development which finds increasing support from local authorities. In fact, many have migrated to other provinces, especially to Ho Chi Minh City, Binh Duong and Dong Nai to earn their living. Unofficial data show that from Hai Lang District alone, more than 1,000 farmers went to look for employment elsewhere in 2002 and this figure may be higher in 2003. Apart from that, attention is paid to organized labor export. However, not everybody, especially the poor, has such a chance.

Necessary conditions for seeking employment elsewhere are health, skills and relatives. Moreover, many people are not allowed to migrate because they are still indebted. People at Gio Thanh Village, Gio Linh 6.2. The poor are facing their own difficulties

29. Findings of the 2002 poverty survey showed that loans, training in business are important measures to fight against poverty. Despite the increasing amount of outstanding debts (as per report of the banking system), the poor have hardly access to capital (especially those who are poor because of poor health, loneliness).

American Technologies Inc.


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• Everyone needs a loan but no one lends money • Many poor do not borrow money because of the high interest rates they cannot afford to pay.

• Cannot access substantial loans: Sometimes, one cannot even borrow VND 300,000, how can we borrow a bigger sum for business.

• Bank staff unwilling: It seems that they discredit the poor??? • Complicated procedure: One cannot borrow money because the instructions

given by the bank staff are unclear. • It is easier for the rich than the poor to borrow money Summary of opinions from various villages.

Chapter II: Basic Social Services for the Poor

21

Chapter II: Basic Social Services for the Poor I. Education One of the targets to improve resources for the poor is to provide more equal, accessible and higher quality basic services for the population including the poor. It is reinforced in CPSGS that it is necessary to improve the equity policies and mechanisms to ensure equal access to education, particularly primary and lower secondary education for children of poor households, poor communities and children of ethnic minorities. It is important to ensure gender equity and increase education access for girls… (Page 87). 1.Various Policies in Support of Education for the Poor are Existing 1.1. Education in Quang Tri Povince has improved.

30. Investment in education has increased and as a result education indicators have improved. Positive changes are seen in terms of total enrollment. The total number of pupils at lower and upper secondary schools is increasing and changes are also seen in the structure of enrollment.

Table 1: Total enrollment by level by year

1996-1997 2000-2001 2001-2002 2002-2003

1. Total number of pupils 120.524 146.635 152.584 158.875

2. Structure 100,0 100,0 100,0 100,0

Primary level 60,8 56,2 55,2 50,4

Lower secondary level 31,4 31,7 31,1 34,7

Upper secondary level 7,9 12,1 13,7 14,9

Source: Provincial Statistical Yearbook, Quang Tri Province, 2002

31. The enrollment rate by education level is increasing, but the current trends indicate that the higher the education level, the less the enrollment rate.

Table 2: Pupil enrollment rates by education level (Unit: percent)

2001-2002 Education

level

Enrollment rate

(1996-2000)

%

Pupil percentage

Percentage of female

pupils

Percentage of ethnic

pupils

Percentage of

graduates Pre-school 9,50 19,92 X X x Primary 92,00 95,30 47,82 9,80 100,00 Lower secondary

85,00 89,78 45,53 6,04 97,05

Upper secondary

70,00 75,00 44,16 1,51 90,03

Source: Education and Training Development Plan, 2001‐2005.


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• The enrollment rate in pre‐school doubled from 9.5 % in the period 1996‐2000 to 19 % in 2001‐2002.

• As in other provinces, Quang Tri was the 18th province to eradicate illiteracy in 1995. 99.48 % of the population are recognized as literate. The enrollment rate in Grade 1 in 2001‐2002 was 95,3 %.

• Lower secondary compulsory education under the new standards is available in 3 districts out of a total of 9 districts and the provincial town.

• The enrollment rate at lower secondary level is 75 % and the graduation rate is highly satisfactory with 90 %.

• A model of continuing education center is being developed. There is one center operating in each district/town, providing education services to 2,000 to 3,000 participants.

• Many districts have applied for tuition fee reduction for poor students studying in vocational schools. Career guidance services have been provided in approximately 60 % of the lower secondary and upper secondary schools.

1.2. Effective solutions to support children of poor households 32. To further promote comprehensive education development, a great number of

supportive measures have been taken by concerned agencies, sectors and local authorities at all levels to enable poor children to access education services.

Figure 3: Support for poor students/pupils

33. Beneficiaries of direct support policies include pupils/students from poor households, ethnic minorities and households in difficulties

Poor students/Pupils

State ‐ Tuition fee exemption ‐ Tuition fee reduction

Schools, Local authorities And Unions

‐ Encouraging students/pupils not to drop out ‐ Reduce fees and charges ‐ Providing clothes and study supplies ‐ Providing scholarship for well performing students/pupils

Students’ Parents Association ‐ Encouraging students/pupils not to drop out. ‐ Discussing with schools regarding fee/charge amounts ‐ Mobilizing other external support

International cooperation projects ‐ Providing school supplies. ‐ Providing scholarships


23

• Exempting 100 % of tuition fee for children of poor households at lower secondary schools; Exempting 100 % of tuition fee and fee for school construction for children of war invalids; Children from ethnic minorities are allowed to study in boarding schools and provided with VND 160,000 per month to cover board and lodging. They are also provided with school supplies.

• Apart from the support from school, associations, unions and local authorities at various levels conduct campaigns to collect clothes for poor students. In 2002‐2003, 50 sets of clothes were provided by Hai Son School; Some schools have set up funds, e.g. a Fund to Support Poor Friends has been set up in Gio Thanh School, providing support to 30 pupils.

• Tuition fee exemption/reduction is also applied in some districts in higher education services such as vocational training (e.g. Gio Linh Vocational Training Center has granted fee exemption/reduction to poor students).

• The costs born by students learning in continuing education centers are often higher than that of upper secondary schools. To increase access to education, the province has issued supportive policies to reduce collected fees/charges by 50 % in the case of poor students.

1.3. It is easier for the community to see the impact of support activities

conducted by international organizations/donors because the support is direct.

34. The province has received a significant amount of support from various governments and international organizations with regard to education i.e. WB, ADB, UNICEF, PLAN, Germany, USA. In some cases, projects provided direct support to students/pupils and the household beneficiaries were very happy. Ethnic pupils in Linh Thuong Commune, Gio Linh District for instance, have received enough money to buy books from Grade 1 to 9 from PLAN. In addition, the Taiwanese Charity Organization has provided financial support to 33 poor pupils to buy books and clothes. The total annual amount of support per pupil is approximately VND 840,000.

35. While the beneficiaries highly appreciate such kind of international support, the scope is however limited and poor children are not a priority target. Replication/expansion would be difficult.

1.4. The role of Teachers-Parents Associations

36. There is a parents’ association in every class but members are often village heads, chairpersons of various unions/mass organizations or parents of well‐performing pupils. There is hardly a poor parent in the parents’ association. As a result, some regulations adopted by the parents’ association are not applicable to poor households.


24

The parents’ association has asked members to make a financial contribution to buy some gifts for teachers on the occasion of Teachers’ Day, November 20th, as well as to set up a fund for other activities when the school year is about to finish. Pupils sometimes have to make similar contributions although they cannot generate any income when they are at school, i.e. contribution to the fund for calamity relief, fund to support those who contributed in the war. It is recommended that there should be a representative from the poor in the parents’ association, so that decisions and regulations are more appropriate. People living in Thuan Dau Commune, Hai An, Hai Lang.

2. Education network, facilities and teachers 2.1. The education network has reached every commune/ward of the

province. However, rural areas and isolated communities still have to overcome various difficulties.

37. The education network is now expanding and is being improved to meet local education needs, particularly of those living in isolated areas, coastal areas, ethnic minorities and the poor.

• There are 113 kindergartens; 158 primary schools; 82 lower secondary schools; 20 upper secondary schools; 10 continuing education centers; 9 technical and career guidance centers; 5 boarding schools and 5 semi‐state schools.

• There are nurseries and kindergartens and at least one primary school in each commune/ward.

• There are 2 – 4 lower secondary schools, at least 1 continuing education center and 1 technical and career guidance center in each district

Education and Training Plan for 2001 – 2005 – Department of Education and Training

38. However, primary and secondary schools are still in shortage, particularly in

isolated villages and communities that are far away from commune centers. In many cases, pupils have to travel a long distance to get to school.

Some pupils have to travel 3 – 4 kilometers to get to the primary school and in some cases, they have to travel 20 kilometers to get to the lower secondary school. They travel a longer distance to upper secondary schools. The majority of children from poor households do not have any means of transportation and they often are exhausted and unable to concentrate when they reach school. Ideas expressed by a staff of the Education and Training Section in Hai Lang District.

2.2. Although facilities for education and training have significantly

improved, further improvements are needed.

39. Multi‐floor schools have been constructed in almost every community and facilities have improved thanks to the program to construct multi‐floor


25

schools. Basically, schools and classrooms have improved and become more modern. But 13.9 % of classes are made of bamboo and the majority of classes are semi‐permanent.

Table 3: Classroom conditions in Gio Linh District

Education level

Number of classrooms

Percentage of permanent

classrooms

Percentage of semi-

permanent classrooms

Percentage of temporary classrooms

Number of additional

classes needed

Preschool/ kindergarten

130 4,60 63,10 32,30 59

Primary 244 46,00 54,00 0,00 112 Lower

secondary 116 77,60 22,40 0,00 112

Source: Reports prepared by the Education and Training Section, 2002‐2003, Gio Linh District 2.3. Basically, the current volume of teachers is sufficient to meet

provincial needs. Nevertheless, some areas are now facing a shortage of teachers.

40. The number of primary teachers is sufficient to meet provincial needs. In 2002‐2003, the average number of teachers per primary class is 1,1, the pupil/teacher ratio is 24,8/1. Teachers at lower and upper secondary levels on the contrary are in great shortage.

Table 4: Teachers – Pupils, 2002-2003

Number of Ratios

Teachers Pupils Classrooms Teacher/ class

Pupils/ teacher

Pupils/ classroom

Primary 3.232 80.154 2.814 1,1 24,8 28,5 Lower secondary 2.335 55.131 1.388 1,7 23,6 39,7 Upper secondary 1.201 23.612 534 2,2 19,7 44,2 Source: Provincial Statistical Yearbook, Quang Tri Province, 2002 • Additional 229 teachers are needed in Hai Lang, accounting for 22 % of the current number of 1,030 teachers managed by the Education and Training Section in Hai Lang District 2. • At pre‐school level during the period 1996‐2000, only 17,5 % of nurseries and 9,7 % of kindergartens fulfilled the standards set by the education sector. Interview findings, education sector, Hai Lang District

2 Report from the District Education and Training Unit, Hai Lang District, 2002‐2003.


26

3. Access to Education 3.1. In general, everyone should have access to education services, but the

higher the level, the lower the enrollment rate.

41. A decreasing enrollment rate in higher education levels exposes the area to challenges and difficulties that have to be addressed to fulfill the target of compulsory lower secondary education. Official statistics show that the current enrollment rate at lower secondary level is 89,78 %, excluding the drop‐out rate. Only three quarters of this figure continue in higher education (upper secondary level).

3.2. Female and ethnic students do not have equal access to education

42. Female access to education services has improved with 44.16 % of total enrollment at lower secondary level (see table 2). Nevertheless, this rate tends to decrease at all levels in both absolute (number of girls attending schools) and relative numbers (girls proportion of total enrollment rate at each level). This tendency implies that policies in the future must focus on active communication to encourage families to treat their children equally.

43. More emphasis should be given to children of ethnic minorities. Ethnic minorities

account for 10 % of the provincial population. Ethnic children account for 9,8 of primary enrollment figures and decrease to 6.04 % in lower secondary schools, dropping to only 1.55 % at upper secondary level (see table 2). It implies that ethnic pupils have difficulty accessing education, although they are entitled to preferential policies such as tuition reduction/exemption or enrollment in boarding schools.

3.3. The illiteracy rate is high in some areas 44. Although national and provincial statistics indicate that illiteracy has been

liminated, this indicator has not included those who are over 35 years old. In fact, the majority of the poor over 35 years old are illiterate.

The majority of women who are 35 up in my village are illiterate and we have never attended any training/education course. According to you, how long will it take for us to be able to read and write??? Population of Cu Dinh Village, LinhThuong Commune, Gio Linh District 4. Drop-out Rate among Poor Children 45. Similarly to other provinces, there is an educational gap between poor and

non‐poor groups in Quang Tri Province although the poor have been provided a wide range of support measures. This gap has been described by local people living in Cu Dinh Village, Linh Thuong Commune, Gio Linh District in the following diagram.


27

Figure 4: Education pathway between poor and non-poor households

46. The education level of the poor is much lower than that of the non‐poor

group.

Table 5: Education and technical levels of the poor

Number of poor people Percentage (%)

1. By education level (population from 5 years up)

Illiterate 21685 24,52

Graduating primary school 34097 38,56

Graduating lower secondary school 26113 29,53

Graduating upper secondary school 6538 7,39

2. By technical level (population from 15 years up)

No technical level 48945 97,98

Primary technical level 211 0,42

Technical worker 153 0,3

Secondary technical level 273 0,05

College 88 0,18

University 283 0,57

Source: Ministry of Labor, Invalids and Social Affairs, Poverty Survey 2002 It can be said that poverty and education are closely related. By the end of 2002, approximately 60 % of the provincial population from 5 years and above were graduates from primary school and 25 % of the poor are illiterate. Only 7.4 % are upper secondary graduates; 29.5 % lower secondary graduates. Almost 98 % of the poor over 15 years do not possess any technical skills.

Kindergarten Primary Lower secondary

Upper secondary

Tec. Sec. Schools Uni. Kindergarten Primary Lower

secondary Upper secondary

Boarding school

Contng education

Education in Cu Linh Village

Poor households

Better‐off households

Boarding school

Contng educatio


28

4.1. “ I cannot afford the tuition fee” is the primary reason for poor children not to attend school.

47. Findings from interviews with the local population, schools and teachers show that although various kinds of support have been granted to the poor (e.g. tuition and other support), such support is limited and cannot “help much”. Education fees and charges are often too much for the poor to afford.

Table 6: Education expenses

Item of expenditure Primary Lower secondary

Upper secondary

Contributions to school 1 Fee for school construction x x x 2 Tuition x x 3 Fee for youth/teenager unions x x x 4 Health insurance

(collecting fee for insurance agency)

x x x

5 Teaching Support Fund x x x 6 Fee for exams x x x 7 Fee for inter-class teenager union x x x 8 Contribution to parents’ association x x x 9 Contribution to fund to support

those who had contributed in the war

x x x

10 Support for natural calamities x x x Other school expenses 1 Buying uniforms x x x 2 Name tags, pictures for pupils cards x x x 3 Electricity x x x 4 Water x x x 5 Sanitary facilities x x x

6 Vehicle parking fee x x 7 Buying textbooks x x x 8 Buying school supplies (ink, paper,

bag, pens etc.) x x x

9 Extra classes x x 10 Other expenses x x x

Total number of items 17 20 20 Total expenditures (thousand VND

/pupil/year) 200 300 500

Note: ‐ (x) indicate expenditure at corresponding level. ‐ Total estimated amount of expenses for each level, estimate made by respondents. ‐ Total expenses for pupils in the semi‐state schools are estimated at VND 1 million.

48. In addition, the family has to pay for other charges such as “payment for public work”; contribution to the national defense fund; contribution to develop high building, contribution to the fund to support those who contributed during the war, contribution to the natural calamity prevention fund, children protection fund, etc. As a result, it is even more difficult for the poor to send their children to school.


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The majority of poor children drop out when they complete primary school due to economic difficulties. More girls quit than boys. Education expenses are too much for the poor to afford. Expenses at primary level are VND 175,000; at lower secondary level VND 255,000. If pupils go to a semi‐state school, they have to pay VND 60,000 per month, excluding other expenses. People of Tan Minh, Gio Thanh, Gio Linh. The drop‐out rate at lower secondary level does not decrease. Poor children are likely to drop out more often. Out of 11 people participating in the group discussion, children of 6 respondents had quit school. In 2002, there were three children attending upper secondary schools but they are not from poor households. Mr.Thien, Commune head, Tan Tay An, Hai An, Hai Lang. 49. Tuition fee reduction/exemption accounts for only a small fraction of total

expenditures. As a result, the majority of the poor do not see the benefits from government support and according to them, more support is needed.

50. Pre‐school education is considered an important component in the education system. But by being non‐compulsory, no fee reduction/exemption is applied. Poor children are less likely to have access to pre‐school education due to the fact that they cannot afford the tuition fee and other costs for equipment and facilities.

Each household has to pay VND 200,000 for pre‐school. However, they cannot afford other costs such as purchasing other essential facilities, tables and toys for the children. Pre‐school courses are private and the families have to pay monthly fees. We are poor and do not have any job, we are at home and take care of our children. We cannot afford to send our children to attend pre‐school classes. People of Thuan Dau, Hai An, Hai Lang. 4.2. The quota for upper secondary schools is small. Schools cannot absorb

every student.

51. The number of upper secondary schools in the province is insufficient. On average, there are 2‐3 upper secondary schools per each district/provincial town. They often have a quota under which they receive a certain number of students. Additional needs cannot be met. Many poor believe that current enrollment policies create a “double disadvantage” for their children. Poor children often have deficient grades and are not good enough to enroll in public schools, they have to study in non‐public schools which are often very far from their houses. In addition, they have to pay monthly tuition fees to enroll in those courses.


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There are three public upper secondary schools in Hai Lang District. The lower secondary school graduation in 2002‐2003 was 1,860 but the upper secondary school quota was 986, equivalent to 53 %. The remaining pupils have to study in semi‐public schools and in continuing education centers. Poor children cannot afford to study in private or semi‐public schools because tuition fees in those schools are often three times higher than that of public schools. Rector of an upper secondary school, Hai Lang District 4.3 Reasons for drop-out: to generate more income for the family;

parents’perceptions in some areas, particularly among ethnic minorities.

52. When the children attend school, there will be opportunity costs that are not accepted by every family. As a result, many poor children have to drop out to earn a living.

There are only seven pupils attending upper secondary schools at the moment. Many parents believe that their children are old enough to work. Boys should start fishing and girls can work as maids in other families. It is easier for girls to find work at this age, resulting in higher drop‐out rate among girls. 85 % of drop‐outs at this age are girls. They work as maids in big cities. Commune Head of Tan Tay An, Hai An, Hai Lang.

II. Health Care ʺPoor health and morbidity will directly influence the income and expenditures of the poor and they will not be able to escape from the poverty cycle. It is necessary for the Government to adopt appropriate policies and solutions to reduce the burden in health examination and treatment for the poor. It is vital for the Government to ensure budget availability to implement supportive policies for the poor. ʺ, CPRGS, 2002, pages 25, 90). 1. Current Status of Health Care Network 1.1. The health sector in Quang Tri Province is making great efforts to

provide higher quality services

53. To create most favorable conditions to increase access to health care services to the poor, the health sector in Quang Tri Province is making great efforts to provide basic social services to the entire provincial population, particularly ethnic minorities living in mountainous and isolated areas.


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Key activities in the health sector in 2002: • Control of the spread of epidemics • Malnutrition rate of children below 5: 31.1 % (a decrease from 36.1 % in

2000 and 34.8 % in 2001). • Health insurance available for the poor: 50/136 communes and 3

communities in Huong Hoa have access to health insurance. • Covering treatment costs for the poor at various levels Report in 2002, Department of Health, Quang Tri Province 1.2. The health care network is set up at every level, including village

level

54. Reports by the provincial health staff found that the health care network is divided into various levels and the heath care sector is now able to provide comprehensive care packages. To date, there are health care centers in 136 communes. In addition, there are inter‐communal and other types of health care centers available, therefore local people can select the services that are most appropriate and affordable.

Table 7: Health care centers, number of beds and health staff in Quang Tri Province

2000 2001 2002 2003

1. Number of health care centers 158 163 160 160

Hospitals 8 8 8 11

Inter-regional health care centers 17 18 15 13

Health improvement centers 1 1 1 0

Commune/ward health care centers 129 136 136 136

2. Number of beds 1475 1497 1451

Hospitals 720 740 755 885

Inter-regional health care centers 154 154 170

Health improvement centers 30 30 30

Commune/ward health care centers 541 551 496

3. Number of health staff 1511 1521 1654 1797

Doctors 276 280 308 413

Source: Provincial Statistical Yearbook, Quang Tri Province and provincial reports 1.3. Health staff has been deployed down to commune health care centers

but they often stay at higher levels. In some cases, village health staff/workers are not efficient enough

55. Health staff has been deployed down to the commune level with a total of 2,200 staff including 1,797 health staff and 413…. On average, there are 6.8 doctors per ten thousand people. Survey results however found that qualified health staff members are insufficient with 79 doctors/136 communes. Discussions with Hai Lang and Gio Linh Districts found that the


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number of health staff in these two districts is insufficient and they tend to work at “higher levels”.

56. There is one health worker for every village/hamlet. This village health worker is responsible for monitoring diseases and epidemics in the village so that appropriate measures can be taken. Those health workers are also responsible for conducting campaign activities and offer counseling in case of common diseases. They are also responsible for family planning and malnutrition activities. However, services offered by village heath workers are not qualified enough due to the fact that they have not received regular training.

There is one heath staff in my village and she has been trained for three months. She is only able to assist in delivery. She does not know how to inject and does not know which medicine/drug should be given to sick people. People in Dong Don Village, Linh Thuong, Gio Linh 1.4. International support plays an important role in strengthening the

local medical network.

57. International support plays an important role when local resources are scarce and not adequate enough to meet local needs. Many international organizations such as World Bank, PLAN, the Netherland‐Vietnam Health Care Committee etc. have donated a total amount of VND 7.2 billion to further develop the health care system in Quang Tri Province to provide better health care services to the local communities.

2. Health Care in Support of the Poor 2.1. Health status and common diseases encountered by the poor

58. Findings from interviews/discussions show that the number of people (particularly the poor) being affected with communicable diseases is increasing. Common diseases include flu, malaria, tuberculosis, digestive disorders (dysentery, diarrhea), stomach pains, nervous break‐downs, painful bone diseases, etc. It is easy for the poor to be affected with those diseases because they have to work in a harsh environment and live a poor life. Many women, particularly poor women, have gynecological problems. The malnutrition rate among poor children is very high.

Over 50 % of the women in the district coming for medical examination are affected with gynecological problems. Over 30 % of children less than 5 years old suffer from malnutrition out of a total of 6,000 children in the district Official of the District Committee for Population – Education and Children, Gio Linh District Those who are going to the forest to collect iron often have malaria. Due to poverty, many poor people are infected with digestive disorders, lung diseases and tuberculosis People in Cu Dinh Village, Linh Thuong


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2.2. The approach of paying actual expenditures in health care is appropriate in Quang Tri, a poor province

59. The poor granted with poverty certificates and targets of Program 135 are entitled to special policies from the Government. They are 100 % exempted from medical examination fees when they go to public heath care centers. If they have to be hospitalized, they do not have to pay for medical treatment and hospitalization.

60. To reduce complicated procedures in medical examination/ treatment, public heath care centers require the poor to submit their poverty certificates and identity cards (other alternatives are student cards or a letter of recommendation sent by the corresponding health care center in case a poor person does not have any piece of paper for identification). A recommendation letter from the commune people’s committee is not necessary.

61. Other types of support include free examination and treatment for the poor. To date, 8,062 poor have received free medical examination and treatment and 900 poor children and disabled have received charity treatment/examination.

3. Difficulties in Delivering Health Care Support Services to

the Poor 3.1. More adequate information regarding rights for health

examination/treatment should be provided to the community

62. During the interview, the poor were asked whether they were provided adequate information regarding their rights for medical examination/treatment. Majority of the respondents understood that they had rights entitling them to support policies from the State, i.e. receiving free medical examination and treatment. The community was aware of the government support and they would feel much safer if they received medical support from the government.

Poor households with poverty certificates feel safer because they know that they will be exempted from medical examination/treatment expenses. Although there are complaints in terms of quality of the services provided, the poor are very happy when they can receive medical services free of charge. Many poor people would have died because they were too poor to afford medical treatment. Poor women in Dong Don Village, LinhThuong Commune, Gio Linh District 63. Many however are not aware of their rights. Ethnic minorities and women do

not get much information and they sometimes confuse the information they receive.


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It seems to us that those who paid for services often stayed in the hospital longer than we did. They received a better treatment . The poor with certificates have to wait for a longer time to receive medical examination. We are poor, therefore they do not want to provide services to us. Poor women in Dong Don Village, Linh Thuong Commune, Gio Linh District.

3.2. Although procedures have been simplified, many poor have difficulties

in completing documents

64. One of the strengths exposed in the health care network of Quang Tri Province is that the poor do not have to get a commune recommendation letter to receive medical examination and treatment. However, they encounter other difficulties before they can receive state medical support.

Poverty certificates do not have pictures of every member. Each time when a member of the household needs medical services, he/she has to present an ID card. In case he/she does not have an ID, a recommendation letter of the commune/district people’s committee is needed. It takes one or two days to get this recommendation letter because unless he/she meets the official in charge, he/she cannot get the letter. The poor in Dong DonVillage, Linh Thuong Commune, Gio Linh District

3.3. Distance to service provision centers

65. Health officials interviewed assumed that distance to health care centers was not an issue of concern for the poor. The province manages to develop a good health care system down to the grassroots level. Health staff are qualified, a provincial general hospital and central general hospitals are available in the province. Patients can go to commune health care centers with the farthest distance of 3.5 kilometers and they can also go to the central general hospital in Hue City, which is 60 kilometers away.

66. However, many poor respondents said that distance is one of the impediments because they have to travel a long distance to get to the health care center where they want to receive services.

• Majority of the health care centers are located in central areas whilst the poor often live far away from such centers. As a result, it is difficult for the poor to have access to medical services.

Our village is 4 kilometers away from the commune health care center. We are too poor to have any means of transport and we have to walk to the commune health care center. Women and children are suffering a lot. It is very exhausting to carry a newborn baby to the commune health care center for immunization. We have to travel even further to the hospital if we have to be hospitalized. People in Dong Don Village, LinhThuong Commune, Gio Linh District


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• Free medical examination/treatment is not applied at commune level. It is only valid at inter‐commune or district health care centers. The poor, particularly those living in mountainous areas, might have less chance to have access to free medical examination/treatment.

67. It is necessary to analyze the objective reasons for not utilizing the services provided at commune health care centers. Although they are closest to the community, they seem to be further in terms of services utilization. When people have common diseases, they often go to the pharmacy to get medicine under the instructions of the pharmacist without any prescription. Only when they get seriously sick do they visit public health care centers and they often prefer visiting inter‐communal clinic or the hospital directly.

We do have commune health care centers but they only provide immunization services and natal care services. Hardly do we see any treatment offered by the commune health care center. If anyone comes for treatment, he is often referred to the district level. There is a rumor that a wrong type of medicine was prescribed by the health staff at the commune health care center. It is scary. Ethnic minorities in LinhThuong Commune, Gio Linh District 3.4. High costs for health care services. Budgets to subsidize medical

examination/treatment for the poor are not allocated on time. Needs of the poor are not met

How to ensure budget allocation to subsidize medical treatment/examination for the poor is an issue of concern. Health care centers have to depend on the “progress” of budget allocation from higher levels. Budget allocated to conduct free medical examination/treatment for the poor is granted by the financial unit in Hai Lang District and it is a separate budget line. If the budget is allocated on time and is adequate, the poor will be provided better services and can be hospitalized in case they need treatment. If the allocated budget is neither available nor adequate, the poor will not be provided services. Budget is often late for the first 6 months and the interests of the poor often ignored during this time of the year. Health official, Hai Lang District 69. The poor cannot afford medical costs. Many women, particularly those in

mountainous areas, deliver at home partly because it is tradition and partly because they cannot afford the costs of delivery at the health care center. Findings from the interviews and discussions with poor women in Hoang Ha Village, Gio Thanh Commune show that majority of the village women deliver at home because they cannot afford the cost of VND 50,000 to 70,000 for each delivery.


36

Pregnant women in the village often have regular anti‐natal care therefore they can give birth at home with the assistance of the traditional midwife if it is an ordinary delivery and it is free. If they go to the health care center for an unusual delivery, they will be referred to higher levels. I myself have delivered my 10 children at home. They are all healthy and are going to school. Poor people in Hoang Ha Village, Gio Thanh Commune, Gio Linh District 70. The allocated budget is neither adequate nor timely, resulting in poor quality

of services provided to the poor. The poor on the contrary do not fully understand those reasons for not being provided services and no one has ever explained to them those reasons.

You can stay at the hospital only for a few days if you use the poverty certificate. Sometimes you are asked to leave although you are not yet completely recovered from your illness. The poor in Hoang Ha, Gio Thanh

71. The budget amount to support the poor is inadequate. In addition,

remuneration for the health staff providing such services is too mediocre to motivate them and ensure good quality services.

In our district, remuneration for health workers is not available. Health workers think they are doing charity work, therefore they do not feel very much responsible. Staff members at commune level are provided with some allowances, but the amount is not encouraging enough to motivate them. Allowances for staff at district health care centers are not encouraging either. Each member receives only VND 3,000 for a night shift. This certainly cannot be an adequate compensation. Health official in Gio Linh 2 District 72. In general, officials are making great efforts to improve the health status of the

population, including the poor. There are however cases when staff members are ignorant and not thoughtful enough in taking care of the patients. Many poor people suppose that they have neither received high quality health services nor been treated equally when they are using free services.

In 2002, Mr. Ho Dien and I had malaria and we both went to a health care center that is a branch of the district heath care center. We are both poor households. We shared a room. When we registered, I did not use my poverty certificate but paid VND 55,000 while Mr. Dien produced his certificate. I had three injections and was cured. Meanwhile Mr. Dien was only given pills. Mr. Dien has been to the center three times for treatment but the malaria is not yet over. People in Dong Don Village, Ling Thuong Commune, Gio Linh District


37

73. The attitude toward the poor is not helpful and many poor households do not use their certificates to request for medical examination/treatment.

I know that I do not have to pay if I give them my poverty certificate. But this certificate can only be used for common ailments. I was told by other people in my village that if I wanted to completely recover, I had to pay. I did follow their advice. The poor ethnic minority in Cu Dinh Village, Linh Thuong Commune, Gio Linh District 4. Difficulties Faced by the Health Sector in Imolementing

Decision 139 in Quang Tri Province 74. Decision 139/2002/QD‐TTg is not yet widely applied in Quang Tri Province.

The Department of Health is now waiting for a new regulation on health care issued by the provincial authority. It is planned that Quang Tri Province will spend VND 5.3 billion in 2003 to buy medical insurance cards for the poor. Medical subsidy to the poor is effected by shouldering actual expenses.

75. 18 percent of households in Quang Tri Province were classified as “poor” by the end of 2002. If the province decides to buy heath insurance cards for them, a substantial number will be needed. This means a huge investment, while services may not necessarily be efficient.

• The value of each health insurance card is small • Many poor will not use the cards. They simply do not need them or they do

not have the conditions to use health insurance cards • The duration of the health insurance card does not match the duration of the

poverty certificate. It is supposed to be used for three continuous years while the certificate is valid for only two years (2003‐2004).

III. Agriculture-forestry-fishery Extension – Plant Protection

and Veterinarian Services As an agriculture‐based province with 85% of the population engaging in agricultural production ‐ of which over 70% come from rice production ‐, where the natural climate, land conditions are unfavorable with constant threats from natural calamities, agriculture extension plays an important role in transferring technology and instructing how to run a business for the general public and for the poor in particular.

To implement Decree 13‐CP dated 2 March 1993 of the Government regarding agriculture extension, Quang Tri Province has organized an agriculture extension system (agriculture, forestry, fishery) to provide more support to households to expand production, improve agricultural productivity and develop the rural economy. In recent years, agricultural extension activities have been developed, and the network is expanding and strengthening. However, more efforts are required to meet actual needs.


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1. Agriculture-forestry-fishery Extension-Plant Protection and vet7 Play a Crucial Role in Poverty Reduction Activities in Quang Tri Province

1.1. The structure of the agriculture extension system is organized

vertically, from province down to the village level.

76. Agriculture extension activities belong to two sectors, i.e. agriculture, rural development and fishery. Agriculture extension system is organized from the province level down to the village level(see figure 5).

Figure 5: Agriculture Extension Structure

77. As per the current model, research activities are centralized at provincial level

through three centers, i.e. Seeds Center, Aquatic Breed Center, and Aquatic Resource Protection Office. These activities are funded by the regular budget (from the central and provincial governments) and by projects/programs.

1.2. Agriculture extension activities start from actual needs at grassroots

level

78. As depicted in Figure 6, the agriculture extension plan is developed by the district agriculture extension station, based on the provincial economic

7 Referred to Agriculture extension for short

Agriculture and Rural Dev. Dept. Fishery Department

Agriculture extension

Vet Office Plant Protection

Seeds center Aquatic breed center

Plant Protection Station

Agriculture extension station Vet stations

(9 stations)

District agric. office (Fishery officers)

Vet workers at hamlets

Plant protection organizations at

villages

Agriculture extension

club

Farmer association‐cum‐ Agriculture extension workers

Vet officers

Village Peopleʹs Committee

Vice President Social‐cultural officers


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development plan such as high‐quality rice at plain areas, shrimp breeding on sand, lotus‐fish model, rice‐fish model, etc.

Figure 6: The station develops plan based on needs of village

: Plan development

: Co‐operation

1. Major agriculture extension programs in the province ‐ Develop areas specialized in industrial crops: rubber, pepper, fruit trees, coffee, etc. So far, there are 9,158 hectares of rubber crops, 3,329 hectares of coffee crops and 2,025 hectares of pepper crops. ‐ Structural changes in plant‐animal husbandry: Shrimp breeding in Vinh Linh, Hai Lang, Trieu Lang, Trieu Phong Districts. So far, more than 100 hectares specializing in tiger‐prawn breeding have been created. ‐ Reproductive French duck model, cow feeding; goat feeding, intensive pig feeding in some mountainous districts. ‐ Model for a shift from upland rice to water rice in many districts; 2. Recent forestry projects ‐ Gardening project (2001‐ 2003): Total costs: VND 700 milion (funded by OXFAM); ‐ Program 661, bare hill forestation with total costs of VND 1,500 million, including concentrated and scattered planting. 3. Plant protection network: There are currently 13 plant protection groups in 20 villages. HEPR Steering Committee of Quang Tri Province, Summary report at regional meeting on HEPR.

District station for agriculture

extension plan dev.

Village (Agric. extension

needs)

Provincial Peopleʹs Committee

Provincial plan dev. (Agriculture and Rural Dev.

D Fi h D )

District Farmer Association

District plan dev. (Agriculture office)

President of Village Farmer


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2. Role of Social Organizations in Agriculture Extension

2.1. The Farmers’ Association plays a core role in agriculture extension at grassroots level

79. The Farmers’ Association is the main contact point for agriculture extension activities at district level. At village level, members of the Farmers’ Association act as agriculture extension workers.

During the 1996‐2000 period, the Farmers’ Association with the movement ʺFarmers doing good business, mutual co‐operation to overcome poverty and legitimate enrichmentʺ has mobilized VND 32.6 billion to lend to over 37,100 people. At the same time, training in agriculture extension and guidance in doing business have been provided to the poor. A pilot model of selling insecticides and fertilizers to farmers with deferred payment ‐ with special privileges given to the poor ‐ was tested (in total, 800 tons of fertilizer and 200 bottles of herbicide were given to 815 households. Representative of the Provincial Farmers’ Association 2.2. The Women‘s Union integrates agriculture extension with lending for

women, especially for poor women

80. The Women’s Union plays an important role in implementing models for poverty reduction and focuses on policy dissemination, establishment of credit groups for poverty reduction, provision of training and guidance to poor women in business.

The Women’s Union with the movement ʺcredit and savings groups, women help each other to develop household economyʺ has established more than 3,200 credit and savings groups by the end of 2000 with over 18,000 members and VND 3,45 billion in savings. Apart from that, the Women’s Union has conducted various training courses on business for its members. In 2002, 257 training courses were conducted with 11,997 participants. Officer of the Women’s Union in Quang Tri Province

2.3. Co-operatives and agriculture extension clubs in new form were

established, but are facing difficulties

81. In the transition to a market‐oriented economy, co‐operatives and agriculture extension in new form are considered as a complementary model to the current agriculture extension system. In light of Directive 68/CT of the Standing Party Committee on the Renovation of co‐operativesʹ operations, clubs and co‐operatives have been established on a voluntary basis. Their main function is to provide information on science, technology and carry out agriculture extension services (input, output).


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New form of co‐operatives In 2002, the agriculture extension station in Gio Linh District formed three co‐operatives with a total cost of VND 780,000 per co‐operative. In 2003, further 11 co‐operatives were established. Each co‐op has two collaborators with a monthly allowance of VND 50,000. Training costs for farmers are funded by the central agriculture extension office through projects such as intensive apiculture, agriculture diversification, and intensive pig feeding (at three locations). In Hai Lang District, there are currently about 55 co‐operatives and 24 well‐run production groups. In some villages, there is a club of ‘good businessmen’. Consultations at Hai Lang District 82. However, co‐operatives in new form only function as a production supervisor

without providing good services. New club models are under pilot implementation supported by international projects and organizations.

The district pays great attention to strengthening and improving the operational effectiveness of co‐operatives in light of the legal framework. However, there are many difficulties because services are not available: (i) vet services are incomplete (ii) in terms of seed services, co‐operatives only act as an intermediary to sign contracts with the suppliers to provide seeds according to the needs of co‐operative members (no benefit); (iii) ineffective irrigation and electricity services (iv) over 40 co‐operatives provide raw‐material supply services with negligible profits but often have problems with tools owners; (v) No co‐operative is able to provide product selling services. Report on the socio‐economic situation in 2000 and 2001 of Hai Lang People ‘s Committee

2.4. Clubs, hobby groups are new forms to provide scientific and

technological information to people.

83. This model is currently under pilot implementation through some projects. Under the framework of the UNDP‐funded project VIE/96/026, 16 models of ‘From farmer to farmer agriculture extension club’ were established at villages in Trieu Phong, Dakrong, Huong Hoa Districts with total costs of VND 797 million. These models were replicated in other areas and show encouraging results.

3. Involvement of the Poor in Agriculture Extension Activities

3.1. No discrimination between the rich and the poor when the project is

designed

84. Most interviewees at all levels responded that in principle there is no discrimination in terms of involvement in agriculture extension activities between the rich and the poor, between the Kinh and ethnic minorities,


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women. The possibility of the poor to get involved in programs and projects depends on the project site and type.

Since animal husbandry models are relevant to the poor, we in principle pay attention to this target group. Other models such as reproductive French duck feeding, intensive bee breeding, goat breeding implemented in Dakrong and Huong Hoa mountainous districts and a model to shift from upland rice to water rice implemented by the agriculture extension center also involve poor households. Opinion of an agriculture extension officer in Quang Tri Province • The poor themselves think that their possible involvement in agriculture

extension models and programs mainly depends on the objectives of the training course

Agriculture extension activities do not discriminate the poor from the rich, but depend on training course objectives and implementing agencies (women’s union, youth union or farmers’ association). For instance, training courses on aquaculture and fishery focus on the men; training courses on agriculture extension proper focus on the women, etc. Opinion of the poor in Thuan Dau, Hai An, Hai Lang

3.2. However, accessibility for the poor is limited

85. Animal husbandry‐plant shift requires two basic elements, i.e. capital and knowledge. Models requiring less capital are appropriate for the poor (e.g. pig, bee, goat breeding, wet rice growing). The poor cannot access models requiring high pay‐off technologies and substantial capital such as the rubber farm in Tieu Dien, Mong Cai pig feeding, RVACR (forest, garden, pond, cage, farm), aquaculture (fresh water prawns, fish feeding). Moreover, since these models are under pilot implementation, they are first tested in secure households.

4. Problems, Difficulties Facing Agriculture Extension Activities 4.1. Improvement of plant productivity, economic structural changes

depend on infrastructure

86. The success of agriculture extension activities depends on infrastructure conditions.

Currently, most of the poor only grow one rice crop with low productivity of 3,000‐4,000 kg/ha/year. We have been trained to grow two crops but it is impossible to do so because there is no electricity and the irrigation system in our area is limited. People at Hoang Ha Village, Gio Thanh, Gio Linh


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4.2. Shortage of agriculture extension workers, especially full-time workers at local level.

87. Quang Tri Province has a great need for assistance in production and livelihood activities. But the network of agriculture extension workers is not at par with the needs. Moreover, agriculture extension workers only work at higher levels, while it is understaffed at local level. Therefore, people do not know whom to meet whenever they have something to ask.

The network of agriculture extension workers is understaffed considering the needs of 136 villages and communes. There is a lack of fishery‐extension stations at district level (4/7 districts have a coastline); the network of full‐time agriculture extension workers and plant protection workers is virtually non‐existent at village level; lack of workers at hamlet level. People are in urgent need of guidance in agriculture activities but no information channel is in place.Village officer at Hoang Ha, Gio Thanh, Gio Linh 88. Clearly, agriculture extension activities need to be restructured, when vertical

production linkages are more meaningful than the current horizontal linkages. In this context, Decision 80/2002/QD‐TTg on a 4‐linkages model (state, farmers, scientists and businessmen) is one important measure. Like the rest of the country, Quang Tri acknowledges the necessity to reform the organizational structure but is yet to do so.

4‐agency model: In Quang Tri Province, a pilot project to link ʺagenciesʺ is under design (comprising four institutions) to be shortly implemented. This project is jointly implemented by the Provincial Agriculture Department, the Farmers’ Association, the Processing Company, the banking system. Project sites are expected to cover Gio Linh, Cam Lo and Vinh Linh Districts. Opinion of a provincial officer

4.3. Weak staff capacity

89. Weak staff capacity, especially at village level (almost all staff members have secondary or primary education levels) is one of the problems faced by the current agriculture extension work. Many feel that most staff members are not technically qualified. Especially local agriculture extension workers or members of mass organizations do not have the pedagogical skills required to deal with the poor.

Local staff members are not qualified and knowledgeable enough in agriculture extension and plant protection. The capability to tackle scientific and technological issues, animal husbandry‐plant shift or doing business, etc. is limited and variable. Staff members at district level are qualified but we rarely see them. The activities of the Farmers’ Association are not technically oriented. People at Khe Muong, Hai Son, Hai Lang


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Figure 7: Main Information Channel for Agriculture Extension Activities

90. With such a channel structure, the information flows top‐down as directives. An assessment of peopleʹs needs is rarely undertaken. Most of the poor think that the hamlet speaker is the most important communication channel, followed by meetings. They had only few chances to communicate with ‘full‐time’ staff. Many people think that verbal communication is also an important communication channel.

The PLAN Project gave us instructions, but only few attended the training courses. Therefore, we have to rely on the information we got. People imitate and copy many extension activities or technological transfer from others. Opinions of people at Hoang Ha, Gio Thanh, Gio Linh

4.4. Because of the lack of agriculture extension services, people count on

the market mechanism with limited sources of information

91. People mainly rely on the market for production inputs. Although the market economy is still fragmented and in its infancy, it can quickly respond to the needs. People can feel the “bustle” and influence of the market economy.

Input services are way easier than before. We can buy seeds, materials and other products whenever we want, as long as we have money and can afford them. People at Cu Dinh Hamlet, Linh Thuong Village, Gio Linh

92. However, not everybody can use market services. Many people think that

they are unable to master market information, thereby affecting their investment decisions.

District agriculture extension activities

Village informs hamlet leader

Hamlet leader advises people

Communicate with mass organizations Inform villages (meetings, materials).

Inform members

Newspaper, radio, bulletin


45

Since there are no agriculture extension services available in the hamlet or village, most of the time people have to go to the district to buy agricultural materials such as seeds, fertilizer, insecticide, etc. However, they feel uncertain because they do not know the quality of the products they buy, are they good or bad? They can buy on credit from private dealers and pay later, but they have to pay high interest rates. People at Dong Don, Linh Thuong, Gio Linh

93. Available services cannot meet all needs. When an epidemic occurs, people have to go as far as four kilometers to ask the veterinarian for treatment. Such services are available in the village but medicines are not adequate. Each treatment costs VND 20‐25,000 per animal. It can go as high as VND 150,000‐200,000 per animal. People at Thuan Dau Hamlet, Hai An, Hai Lang.

4.5. It is difficult to replicate demonstration models 94. The development of demonstration models is an important issue of

agriculture extension work. However, it does not matter how these models function. According to peopleʹs opinions, most models only serve as demonstration without paying due attention either to consultancy and support activities after the training courses or to the feasibility of such models.

When models are applied, agriculture extension centers often support them with seeds, capital and techniques. However, these are only provided during the project implementation and will not be available after the project ends. After project completion, people cannot afford to buy capital, fertilizer as required, therefore, they cannot maintain their expected productivity. People at Tan Minh, Gio Thanh, Gio Linh • One reason is that models are under pilot implementation on a small scale.

Therefore, it is hard to measure efficiency when models are replicated. • Lack of capital for current expenditures is one of the main reasons. Interviews

with provincial officers reveal that the budget is very limited and only focuses on research, development and pilot implementation of demonstration models, leaving no more funds for replication.

• When a model is applied, the State contributes 40 % of expenses while the farmers contribute 60 %. Such a ratio is not feasible when dealing with the poor. As a result, many poor have to borrow and become unexpected debtors.


46

The rate of outstanding debts among the poor is very high (about 40 %). One of the reasons is that there is no effective demonstration model that would fit the poor. We have arranged for some households (100 % are female participants) to grow peanuts, garlic, or feed sows but unsuccessfully. As a result, people cannot refund and become indebted. Opinion of officers at Hoang Ha, Gio Thanh, Gio Linh

4.6. Form of training and transfer inappropriate, especially for the poor

and illiterate

95. Although trainees think that the knowledge they acquire is very useful, they want to practice and have detailed instructions.

Training in agriculture extension is monotonous, theory‐based, thus not easily applicable. We need to practice on‐site. For instance, in pepper tree growing, detailed instructions on how to remove the roots should be provided. Instruction materials should have pictures, because many people are illiterate. People at Khe Muong Hamlet, Hai So, Hai Lang

4.7. For lack of support in selling products, private dealers force people to

sell or buy.

96. Market information plays an important role. As mentioned above, the former co‐operative network only functioned to supply water to people. It could not handle any other services, especially market access. Meanwhile, the new co‐operatives or agriculture extension clubs cannot handle these services either.

97. Product selling services, therefore, are handled by private dealers. These services are very convenient because one does not have to go anywhere else to sell products. By and large, people become passive as the dealers squeeze prices.

It is easy to sell products. We often sell products to dealers who come to our hamlet, or sometimes to private kiosks. While these products are easily sellable, their prices are low (10 % less than what we would obtain if our products are sold in the district, but it would be risky because the animals may die on the way). Profit is negligible. Poor people at Cu Dinh Hamlet, Linh Thuong, Gio Linh

Chapter III: Quality and Targets of Social Assistance

47


It is clearly indicated in the CGPRS that “priority policies and schemes should be developed to enable vulnerable groups to benefit from national targeted programs on social development. It is necessary to improve the social security network by strengthening and developing social funds and social organizations, providing regular subsidy to the poor, the physically handicapped and the lonely, etc”. 1. Social Subsidy in Quang Tri Province is Badly Needes 98. Possible risks encountered by the poor in Quang Tri Province include poor

agriculture productivity, low income due to lack of land and water for cultivation. People living in this region have to face recurring risks caused by drought, flood or plague. In addition, sequels of the war still endanger the lives of the population. Last but not least, the poor in Quang Tri have poor resources, they do not have proper access to social services due to their geographical difficulties, poor education level, and family and cultural characteristics.

Who is vulnerable

Economic reasons

• Fishermen with small boats • Farmers growing rice once a year • Those who collect iron in the forest and pick up wood • Those who have had a work accident • Those who had a loan for husbandry and planting but after

encountering failure cannot pay their debts. • Those who collect/steal rubber latex • Those who were cheated to sell products at an early stage • Those who failed while applying new production/planting

techniques

Social reasons

• Households with chronically sick members • Having many children, lack of labor force • Disabled, infected with agent orange dioxin • Orphans • The elderly and lonely • Single women • Female-headed households

Living conditions

• Poor households without any buffer savings • People living near the forest (fire risk) • Poor housing conditions (house ready to collapse) • Proximity of polluted water source • Family member killed or injured in natural calamities such as storm,

flood, drought, etc.


48

Figure 8: Impact of “disadvantageous natural conditions” in QuangTri Province

Disadvantageous natural conditions

Lack of land for production

Lack of water for production

Scarcity of natural resources

Storm and flood

Drought

High temperatures

Limited rainfall

Epidemics

Fallow land

Underdeveloped agriculture production

Poor quality of land

High risks regarding life, property, morbidity

Low income

Industry does not develop

Lack of employment

Unemployment Surplus of labor

High population growth


49

Figrure 9: Risk types encountered by households in QuangTri Province

2. Regular Subsidy8 99. Although the total number of beneficiaries receiving subsidies is increasing

(both in terms of numbers and percentage compared to previous years)9, it is much smaller than the number of poor who need help. The highest percentage of ʺneglectedʺ groups is found in children affected by agent orange dioxin, in the disabled and the elderly and lonely. It is estimated that only 40 % receive subsidies.

8 Including: Elderly lonely people, the Disabled, disabled children, orphans, children

infected with orange dioxin

9 Hai Lang and Hai Son districts

Households

Community risks

Risks for households

Lost of t

Epidemics

Storm and flood

Family member dies

Being injured

Being sick

Cattle died/lost

Cattle/poultry got diseases

Ruined houses

Lost property

Loans with high interest

Lost means of production: fishing boat, net

Rough sea

Drought

Living far from the highway

Living far from health care t

Lack of Agr. Forestry extension staff Living

on the coast

Single (no husband/wife)

Orphan

Elderly lonely


50

• Hai An Commune, Hai Lang District: Over 45 % of target groups have not benefited from any social support programs, of which over 60 % of children are affected by agent orange and 50 % of all orphans have not yet received any social support.

• Hai Son Commune, Hai Lang District: 11.4 %, of which 75 % of children affected by agent orange and 50 % of all orphans, have not received any social subsidy.

• Hai Lang District: 39 % of target groups, of which 78 % of children affected by agent orange, have not received any social support

• Gio Thanh Commune: 37 % of target groups, of which 100 % of all orphans, have not received any social support

• Gio Linh District: 77 % of target groups, of which 89.7 % of children affected by agent orange, have not received any social support.

Findings of discussions with villagers and commune residents

100.Various reasons exist for non‐entitlement to regular subsidy programs:

• Lack of information: the target groups do not know where to go and how to start applying for support

• Lack of feedback: Many raised questions, submitted their applications but received no response or feedback either from the commune or district authorities. They were not sure whether there was something wrong with their applications or whether they did not fully complete the procedure10.

• Sometimes, even commune officials do not fully understand social subsidy programs due to changes in terms of personnel, policies or procedures. Guidance given by the commune head was at times incorrect.11

Some cases who should have received subsidies but did not: 1) Mrs. Nguyen Thi Hong, 27 years old and her husband, Mr. Nguyen Chien Thang, 28 years old, classified as “poor household”. They have two children handicapped at birth. The two children were born in 1997 and 1999. Both of them cannot walk and are suspected to be victims of “agent orange dioxin”. They are often sick but have not received any social subsidy. We do not know why. 2) There is the case of a 38 year‐old who is disabled. He can neither move nor work but has never received any social subsidy so far 3) A girl, 19 years old, who is mad (completely lost her mind), whose parents are old. She has never received any social subsidy. Ideas collected in Thuan Dau Village, Hai An Commune, Hai Lang District

101.Explanations given by commune/district officials regarding the reasons why so many people have not received any social subsidy indicate that they have

10 Tan Dien Village, Hai Son Commune 11 Tan Dien Village, Hai Son Commune


51

only as much information as the general public in terms of application procedures for social subsidy. “Waiting for directions from higher levels” is the reason blocking many applications for social subsidy.

Why target groups have no access to social subsidy programs Reasons from current mechanism

- Social subsidy programs are being applied for children affected by orange dioxin whose parents were soldiers.

- Disabled children due to orange dioxin are not the targets for social subsidy programs

- People injured by mines (10 persons): the level of injury has not been assessed and all have at least the support of family and relatives.

Reasons from the local people

- The target groups do not apply, there is delay in completing the necessary procedures, i.e. medical examination, profile etc.

- Some target groups have no information on the policies and schemes they are entitled to

- Some lone elderly have external support;

Reasons from officials

- Some households do not need the subsidy - No quota allocated by the district

102.Apart from officials from the Labor, Invalids and Social Affairs Department, the

village head plays an important role in linking target groups (population) and the network. As a result, the identification of the target groups, the application of programs depend heavily on the capacity of the village heads. It is important for them to be experienced and enthusiastic enough to help the target groups apply for social subsidy. In some cases, the village heads are unable to do this.


52

Figure 10: Position of various organizations in subsidy provision

103.Social subsidies are negligible. Almost everybody (village, commune people) has the correct information with regard to the amount of social subsidy and the respondents confirmed that the community received the exact amount stipulated by the Government (e.g. elderly, lonely people, the disabled, orphans, disabled children: VND 52,000 per month; children affected by orange dioxin: VND 48,000‐84,000 per month). Majority of the respondents believe that this amount is too small for the beneficiaries to survive in case they have no additional income sources (the elderly) or in case they have no working capacity (the disabled). Additionally, those target groups get sick very often and need regular health care services. Obviously, the amount received cannot meet their needs.

It is wonderful to receive a social subsidy but VND 52,000 per month is not enough (less than VND 2,000 per day) how can the elderly live on that? People in Tan Dien, Hai Son, Hai Lang

3. Emergency Aid 104.Beneficiaries of emergency subsidy programs are much different from those

receiving regular social subsidies. Quang Tri Province is the center of storms and flashfloods. During the period 1990‐2002, the province suffered each year

Targets

Commune Head

Families

Officials of Labor, Invalids and Social Affairs Sectors

Commune People’s Committee

War Veterans Association

Commune Communist Party

Women’s Union Farmers’ Union

Youth Union Religious, charity organizations

Communi

District Personnel – Labor, Invalids and Social Affairs Unit

Informal assistance

Official assistance network (Government)

HaiAn Commune, HaiLang


53

from 6 to 7 storms. Therefore 95 % of beneficiaries of emergency aid are victims of natural calamities. People also suffer from other risks namely drought, crop harvest loss and famine in‐between crops.

105. In general, the respondents agreed that emergency aid was provided in an equal basis. People often help one another in times of difficulties. But the emergency aid program is limited in terms of coverage, number of targets to be covered and the amount of aid. Rough calculations in Tan Dien (Hai Son) and Thuan Dau (Hai An) showed that emergency aid can only cover 10 % of losses.

Table 8: Emergency aid in Hai An Commune in 2002

Number of beneficiaries Amount of aid Aid agency

Aid when the sea is rough (during storms)

150 households

50,000 dong/hh/each time

Personnel-labor and social affairs unit – district level

Accident during off-shore fishing

2 people Approx. 3 million dong per hh.

House repairs and new construction after devastation during storms

7 households 2 million dong per hh.

- District - Red Cross - Hue Buddhism Association - Community

Crop harvest loss due to natural calamities

7 hectares Seedlings - District

Support in daily life 2 households 1 million dong per hh.

- Commune (HEPR Fund)

106.As with the regular social subsidy, it takes a long time to process applications.

Sometimes it takes 2‐3 weeks for the aid to arrive (either in cash or in kind)12. The procedures for both types of assistance are complicated, involving several stages. Standard procedures are not yet developed and applied by the village/commune officials. The target groups do not have adequate information and often interpret policies in different ways. Some think that such paper work is solely the business of village/commune heads and labor and social affairs officials13.

12 Hai Son, Hai Lang 13 Hai Lang District


54

Figure 11: Approval stages for official emergency aid

: Processing for approval

: Subsidy

107. Reasons for delay in assistance approval

• There are delays in making a list of losses, recommending and selecting households to receive assistance and monitoring at village level. Losses can occur in every household and each one his own first14;

• There is delay in making a list of target groups at village level. It takes time to check information and inspect the current status and as a result there is delay in submitting the list to the district level15;

• The Personnel‐Labor and Social Affairs Unit submits the list to the District People’s Committee for final decision. With that decision, the Finance Unit is responsible for releasing payments. The beneficiaries sometimes have to go to the district to receive the emergency aid, but they can also receive it at their homes in case there is a district‐level delegation visiting the commune16;

• In general, it takes much longer if the aid comes from the state budget (budget for social insurance), even if all necessary administrative procedures have been completed. The aid will be much more timely and useful if a fund can be set up at community level (village/commune level)17

108.With the regular social subsidy, the State often plays a key role while in emergency aid, charity organizations, aid donors and mass organizations are in the forefront.

14 Tan Dien, Hai Lang 15 Hai Son Commune, Hai Lang 16 Gio Linh District 17 QuangTri Province, (Department of Labour, Invalids and Social Affairs)

HHs: Preparing applicatio

Village: Processing

Commune Approving

District: Making decision

Province: Making decision

PPA Hai Son, Hai Lang


55

Figure 12: Role played by various organizations in official emergency aid

4. Exemption from obligations, a type of social subsidy 109.The amount of compulsory contribution households and individuals pay is

commonly agreed in villages and communes. Such contributions can be legalized such as “public service fee”, “national defense fee”, other charges are local, such as contributions for “natural resources”, “construction of high buildings”, ”education promotion”. On average, each worker contributes between VND 60,000 to VND 100,000 per annum. Having enough money for these contributions/fees is a worrying issue in families with many working members earning a small income.

110.Not many people are entitled to reduction/exemption measures. Detailed guidelines for any reduction/exemption are not available. It is not clear whether the disabled, pregnant or breast‐feeding women are entitled to such reduction/exemption privileges. The compulsory age for contributing to “public service” is not clearly understood by each and everyone. The certified poor households do not have to pay for health care services and are entitled to a reduction of tuition fees for their children and 50 % of the land use tax18. No other expenses are exempted for the poor.

18 Hai Son, Hai Lang

Targets

Village Head

Commune People’s

Committee

Village Sub‐Group

Commune Unions

Aid donor and charity

organizations

District

Smaller charity groups (individual)


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Table 9: Items of contribution and reduction/exemption

Item of contribution Amount of contribution

Reduction/exemption; target and amount

1 Public service VND 50,000 /worker/year

Pregnant women, those who receive regular subsidies

2 National defense VND 10,000 /person/year

Demobilized soldiers

3 Supporting children VND 5,000 /household/year

4 Fund to support those who made great contributions during the war

VND 10,000 /household/year

- Households under social support policies - Poor households (in some villages)

5 Natural resources tax (forest and ocean)

VND 30,000 / household/year (those, who go fishing, Hai An Commune VND 200 /each time firewood is collected (Khemuong Village)

6 Agricultural land use tax

- Commune in special difficulties, 100 % (Linh Thuong) - Poor households,100 %

7 School construction - 50-100 % reduction for poor households

8 Construction of high buildings

VND 10,000 / household/year VND 15,000 /household/year VND 20,000 / household/year

9 Fund for the Poor VND 10,000 / household/year

- Poor households

10 Education promotion VND 5,000 - 10,000 /household/year

11 Supporting areas destroyed by natural calamities

VND 1000-2000 /time

- Selected poor households

12 Tuition fees - Primary pupils: 100 % - Children from poor households: 50-100 %

13 Hospital fees - Poor households 100 %


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5. Informal Social Support 5. 1. Support from family and friends is essential at the initial stage

111.In emergency cases, people often find a way to help themselves. Friends and family are the second important source because they can provide support in a direct and timely manner (see diagram).

Figure 13: Role played by organizations in informal social support system

112. Mass organizations and unions such as the Buddhist Association, Red Cross,

the Association for Elderly Protection, the Association for Education Promotion also play important roles in the informal support system. They have their own funds to offer aid to beneficiaries. It may take longer to get a subsidy from such organizations if certain procedures are to be completed. Nevertheless, such support is very important for the poor when they encounter risks.

5.2. Emergency aid through informal channels is not sufficient enough

113.Majority of the respondents think that having a budget available is the most challenging task in the informal support system. Certain types of funds have been established in name but cash cannot be mobilized because the local people are too poor to contribute while needs for “emergency aid” are increasing. In general, the informal emergency aid does not provide a substantial amount of money, even though it is very meaningful and can help families overcome initial difficulties.

Community

Relatives

Targets

Household

Unions and Organizations

Red Cross

Buddhist Association

Int. orgs.PPA Tan Dien, Hai Son


58

Our neighbors did help but their help is spiritual, not in kind. Only relatives offered help in kind. If there is no financial support from outsiders, the entire village will be in difficulties because the entire village is poor and needs help. People in Thuan Dau, Hai An, Hai Lang

5.3. Official support/subsidy is more important, although only some

beneficiaries receive it and not always on time.

114.Informal assistance can be both timely and direct, but it is often small and irregular. Therefore, many respondents believe that formal subsidy is more important although only a certain number of beneficiaries do receive it and not always on time.

Although the official subsidy from the state is often late, we usually think of it in the first place. The State is a formal and “stable” source of subsidy. Other sources are sometimes available, sometimes not. Tan Dien Village, Hai Son, Hai Lang

Chapter IV: Current Patterns of Participation in Local Decision - Making

59


The issuance of Decree No. 29/1998‐NĐ‐CP of the Government on the implementation of grassroots democracy with the objective of truly building a state “of the people, by the people, and for the people” has not only garnered the enthusiastic support of the general public but was also highly appreciated by the international community. The comprehensive poverty reduction and growth strategy also stressed that “poverty reduction should be a cause of the poor themselves and the poor community, for self help is a pre‐requisite and the impetus required for the success of poverty efforts everywhere.ʺ. 1. The Implementation of the Grassroots Democracy

Decree - GDD 115.With Decree 29/1998/NĐ‐CP on grassroots democracy to be implemented at

communal level and the support extended by the Embassy of Finland in this area, the Quang Tri Committee was soon established, including representatives of GDD‐related provincial departments such as the Personnel Department, the Propaganda Department, the Fatherland Front, the Inspection Department, the Justice Department, the Labor Confederation, etc.

116.Printed documents on GDD‐related issues were soon circulated among officials and the local people. This dissemination was however superficial. Consultations in four communes showed that most interviewees “did not understand much” what was in the leaflets. Particularly, the illiterate elderly hardly cared about what it meant.

Recently, they summoned us, gave such beautifully printed papers, and asked us to disseminate them to the community. I have distributed some and still have some left. I was not explained about the content, so my understanding is quite limited. As for the local people, how can they understand it? There are too many words. Official at Cu Dinh Village, Linh Thuong, Gio Linh 2. Understanding of Grassroots Democracy 117.Most people are more or less aware of the issue through different means. As

such, the understanding of “grassroots democracy” varies from province to province and from level to level.

• For many officials, grassroots democracy is understood in a more basic way, such as ”the consensus and mutual understanding among officials and local people in the policy‐making process”, or “the issues voiced by officials and


60

understood by local people or vice versa, the issues voiced by local people and understood by officials”.19

• At village level, it is the right of each one to have access to information on policies and their implementation.

• For the community, the term “grassroots democracy” is seldom used. In more popular terms, it means that “people should know, discuss, act, and supervise”, a motto which is frequently mentioned in village meetings.

Table 10: People’s Participation in Implementing the Grassroots Democracy Decree

People know People discuss People act People supervise

• Understand policies of the Party, State, and commune

• Be informed • Know plans of the

commune and district

• Know what to do • Well educated • Allowed to attend

meetings

• Provide comments

• Attend meetings

• Allowed to ask and get an answer

• Participate in the construction project

• Contribute money and materials

• Pave the way, build schools, dig canals

• Grow maize, cassava, forest

• Supervise officials

• Supervise construction project

• Supervise the use of money and materials contributed by the locals

• Inspect the quality

• Participate in anti-corruption activities

Source: People at Tan Dien Village, Hai Son, Hai Lang 3. The Impact of the Grassroots Democracy Decree on

Information Dissemination 3.1. People increasingly get access to information and actively seek to get

informed

118.With a four‐year implementation phase and diverse measures for dissemination, GDD has strengthened information channels between officials and the community. Most people surveyed said they were supplied with more information than in the past.

19 Official of Fatherland Front of Hai Lang District.


61

Table 11: “The communal government regularly makes information available to the locality on important issues"

Information made available Means of dissemination Policies of the State Village meeting, loudspeaker system

Communal budget operations Notification at a meeting of the People’s Council

Tax obligation and other payable charges Village meeting, loudspeaker system

Labor recruitment by AT company Village meeting and loudspeaker system

List of culturally qualified families Village meeting and loudspeaker system

Prices of paddy, fertilizer, and new seeds Village meeting and loudspeaker system

List of poor households Village meeting, loudspeaker system, and notice at the communal People’s Committee Hall

List of poor borrowers Village meeting and loudspeaker system

Outcome of petition resolution Village meeting

List of nominees for People’s Council and People’ Committee positions

Notice at the People’s Committee Hall

Source: People at Tay Tan An Village, Hai An, Hai Lang 119.People are more active in seeking information related to their lives. Of highest

value is the information that directly affect them and their family members, such as pro‐poor lending policies (borrowing, exemption of hospital fee, exemption of tuition fees, etc.); contribution to infrastructure work and obligations payable to the State budget. The first impact is that local people are willing to attend meetings.

3.2. Information may be unspecific, especially information on budget

operations, infrastructure works, etc.)

120.Information disclosure at local level is basically better, and more specific information is disseminated at village level. Between district and communal officials on the one hand, and local people on the other, there is disagreement on the level of transparency. District and communal officials said that information is publicly and sufficiently made available; local people, nonetheless, argued that they were not adequately informed.

We were adequately informed about contributions such as mandatory labor, seawork tax, fee for getting a job out‐of‐province. On other charges collected by the commune (fee for using a beach area or for shrimp raising, etc.), we were just informed at the year‐end village meeting. The notification in this regard was so brief we could not figure out what is was about. People at Tan Minh Village, Gio Thanh, Gio Linh


62

3.3. Among the many information channels, the village meeting and the loudspeaker system remain the traditional and key means of disseminating information to the community.

121.People currently get access to information via many channels, such as village meetings, the loudspeaker system, newspapers, radio, television, or direct contacts with village/communal officials or with their elected representatives, etc. For the poor in poor communes, however, radio, newspapers and television are seldom available. They have thus limited access to information through these formal channels. Most locals said that village meetings and the village loudspeaker system are the most popular means of disseminating information. Any problem is referred to the village head for resolution.

122.The village meeting is one of the key channels of information. Held every 2‐3 months, it can be as often as once a month during the harvest season.

The village meeting at the beginning or end of the year is very important, as it relates to the village development plan and various contributions. As such, the attendance level is also higher (90‐100%) than at any other time. People attend such meetings to be informed of issues that interest them and to give comments. Mid‐year meetings, however, are not considered important, as they mostly involve the dissemination of policies and the Party’s resolutions. The level of attendance is therefore lower (60‐70%). People at Tan Minh Village, Gio Thanh, Gio Linh 123.Meetings convened by mass organizations are well attended. Meetings held

by the Women’s Union, on topics such as business loans, savings schemes, planting or animal husbandry techniques, family planning, health care and hygiene, environmental protection, etc., draw the participation of a large number of members, especially poor women (80%‐90%). They are aware that such discussions can only of benefit to them.

124.In general, there is no gender discrepancy at such meetings. The ratio male/female varies, depending on local circumstances.

In village meetings, men usually account for 65‐70%. Village meetings are less and less attended by young men, as they had gone elsewhere for jobs or to the forest to collect iron, etc. People at Dong Don Village, Linh Thuong, Gio Linh In our commune, village meetings are mostly attended by women, as they are usually held at night. By that time, my husband is out at sea fishing. People at Tay Tay An Village, Hai An, Hai Lang 125.In general, the poor have less access to information.


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Table 12: Channels of information on GDD

Channel of information The poor The

non-poor Note

1. Television Less More The poor cannot afford a television set

2. Radio Slightly less Slightly more A radio is cheap (VND 50,000). Thus, poor and non-poor have more or less the same number of radio sets

3. Newspaper Not available

Not available Newspapers are only available at the People’s Committee

4. Village meeting Same Same Attended by all households within the village (representatives of households)

5. Activities conducted by mass organizations

Same Same Women participate in activities of the Women’s Union, so do men at the Farmers‘ Association, regardless of wealth status

6. Word of mouth Same Same Considered the same, as there is a strong coherence in the village and in the commune

7. Meeting with elected representatives

Few Few They meet mostly with village officials

8. Meeting with village officials

Same (often)

Same As the need arises

9. Meeting with communal officials

Less More The better-off have more contacts with officials.

Source: Assessment by the people of Tan Hien Village, Hai Son, Hai Lang 4. Impact of Grassroots Democracy on the Participatory

Decision-Making Process and the Supervision of Programs and Policies

4.1. People are allowed to participate in the formulation of

village/commune development plans:

126.The assessment performed at village level shows that people are increasingly given the opportunity now to participate in the formulation of village/commune development plans, formerly based on directives from higher authorities and approved by the communal People’s Council, then circulated to the community. The process has improved. Prior to decision‐making, the People’s Committee consults with village officials on the development trend which is then circulated to the villages for comment. Minutes of meetings attended by the village population are forwarded to the People’s Committee, which makes a decision on that basis. The final decision is then made officially public.


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Figure 14: Decision-making process after GDD Implementation

Error! People at Khz Muong Village, Hai Son, Hai Lang 4.2. People’s participation is more in form than in substance, as people are

only informed of the plan and discussion is mainly on its implementation

127. The poor and less educated (poor women and ethnic minorities) hardly participate in the decision‐making discussion, as they are not much interested in public issues of the village/commune. Even if they do, they hardly raise their voices.

Men raise their voices more often than women, as the latter get access to less information (due to the war and poverty, about 30% of women aged 30 and above are illiterate). Even literate women dare not raise their voices due to limited knowledge of the issues under discussion. Poor women at Dong Don Village, Linh Thuong, Gio Linh 128.In spite of obvious improvements, people’s participation in some places is

much more in form than in substance. Consultations are not carried out by the

Village head, Party’s division

head, mass i i

Example: bridge construction: ‐ Where? When? Who does what? ‐ Budget: State budget? Local contribution?

Approval by communal People’s Council

Village meeting

People’s Supervisory Committee

Hai Son People’s

Committee

Implementation

Local people

Making decision


65

local government for each and every plan and there are hardly any giving priority to the poor.

Table 13: Plan and Participation

Plan Who does it?

Who makes the decision?

People’s participation The poor

Changing planting and livestock structure (maize, groundnut, bean, cassava, etc.)

The district makes decision The commune carries out

Receive seeds, capital subsidy, fertilizer

Given priority in implementation

Reforestation project No. 661 (under the five million hectare forest program)

Central government

Grow, maintain, protect forest Receive contract money

No priority

Extension program District, mass organizations

Receive technical training, money

No priority

Kindergarten construction plan

Commune makes decision

Contribute money and labor Participate in construction and supervise thereof

No priority

Animal husbandry promotion program

District, commune

Receive interest-free capital Build breeding facilities and raise livestock

No priority

Communal budget plan Commune Are notified of village meetings, meeting of People’s Council

No priority

Inter-village road District transportation division

Contribute labor No priority

Vietnam – Germany forestation project

Commune and project management unit

Receive forest land, grow, maintain and protect forest

No priority

Source: People at Tan Dien Village, Hai Son, Hai Lang 129.The local people themselves are indifferent to policy‐formulation at village

level (except for their obligatory contributions), due in part to time constraints and in part to the perception that their opinion could “hardly change the decision of higher authorities”.


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We participated in the discussion on the construction of the communal People’s Committee building. The community requested that the new building be constructed on the old site, as it was the center of four villages and easily accessible. Yet the commune officials stated that the higher authorities had instructed the new building to be constructed on a new site, otherwise no support would be provided. Finally, it was constructed as per instruction of the higher authorities. I have never been to the new building since its completion, as I have to walk 3 kilometers”. People at Tay Tan An Village, Hai An, Hai Lang 4.3. Most people are only allowed to supervise small infrastructure

projects at village level

130.Supervision is one of the key requirements of the participatory process, as it ensures transparent governance. As indicated by the respondents, however, they have just participated in the supervision of some infrastructure projects in the village constructed with contribution from both the State and the community. So far, the locals have not been allowed to supervise state‐financed construction projects.

“I was a member of the supervisory committee for the construction of the communal People’s Committee building. Yet I was not informed of any information whatsoever on financial and technical issues”; ... in fact, “supervision means prevention of material losses”. Official at Tay Tan An Village, Hai An, Hai Lang 131. The fact is that people are not technically competent enough to supervise

construction projects, thus they do not meet the required criteria. We ourselves selected a supervisory committee for the construction of the village kindergarten. But we were concerned about the competence of the members, as most of us have a limited knowledge of technical issues. Thus, the contractor engaged a technical engineer to supervise the work. We, however, were not satisfied with that person as he could not give us any clear explanation. People at Tay Tan An Village, Hai An, Hai Lang 5. Grassroots democracy reduces the number of petition

cases 132. In fact, after a period of four years, no monitoring and evaluation indicators

have been identified to evaluate the implementation of GDD. It is believed however that it has made a certain impact. For example, the number of petition cases has been significantly reduced and the nature of petitions has also changed. Provincial authorities evaluated that “the number of petition


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cases has been reduced by 50% as local people are consulted right from the beginning and any complaint could be raised during the implementation process”.

133. People do feel the impact of democracy, even in contradictory terms: While internal conflicts are reduced, the number of petitions has increased because people are now “wiser” (“the more democracy, the more people know and the more petitions”) 20

6. GDD and the improvement of relations between

organizations and the community 134. The basis for the strength of any organization hinges on solidarity among its

members, taking into account the concept of “relying on people as the foundation”. The implementation of GDD increases popular trust in the government, as people feel the local authorities are more accountable to them and their own voices are heard. Many, however, said that feedback from the government remains slow.

Linh Thuong Commune implemented Forestation Program 661. Due to over‐subscription, each household on average received only one hectare while project management officials got more than ten hectares. No further information has been supplied on the forestation project financed by ADB which would provide support of VND 1.9 million per hectare (we were just informed orally about the project and did not see any document). We did raise the issue with the district People’s Council deputies during the meeting with voters in July 2002. Yet no feedback has been given so far. People at Cu Dinh Village, Linh Thuong, Gio Thanh 135. The relationship between officials and the community has improved

remarkably. Many locals said that they have now more opportunities to meet commune officials, as recent village meetings on critical issues were all attended by communal officials. In the eyes of the community, the two most important positions are that of the village head and the chairman of the communal People’s Committee, as these personalities are the ones they most often come into contact. The village head, more than anyone else, is the closest, understands and sympathizes with the community. Should a problem be beyond the capacity of the village head, the latter is required to report it to communal authorities (the chairman of the People’s Committee, the Party secretary, etc.) (see figure No. 15)

20 People in Gio Thanh Commune, Gio Linh


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6.3. Socio and mass organizations play in effect a limited role in the lives of the poor community, while donor projects and non-governmental organizations are highly appreciated

136. In addition to their normal activities, mass organizations are said to also play a key role in economic development by improving the living standards of their own members. While they are reported by communal, district, and provincial authorities as being active in supporting the poor, especially in credit supply, they do not seem to be correspondingly appreciated by the poor. Activities such as “better‐off farmers helping poorer ones”, household economic development, credit‐savings groups, etc., have not become popular attractions.

Mass organizations virtually do not play much of a role at village level, yet they sometimes help “mediate” conflicts, especially within the Women’s Union. Village of Thuan Dau, Hai An, Hai Lang 137. Grassroots people seem to be much more impressed with the support of

international projects and non‐governmental organizations. The salient point here is that people are consulted from the very beginning. Such support, even though on a small scale, is comprehensive and meaningful.

The staff of Plan International were enthusiastic and helped us conduct interesting activities such as IPM training, comprehensive services, pest prevention, cultivation and husbandry, provision of scientific books, well‐drilling, etc. Their approach is also more people‐friendly. People at Hoang Ha Village, Gio Thanh, Gio Linh

Figure 15: The role of government, socio-political organizations in the lives of the poor at TayTtan An Village, Hai An, Hai Lang

Village Party’s Divisio

Farmers Association

Taiwanese charit

Dutch husbandry project

District Red Cross

Village Head

Communal Poverty

Reduction Committee

Division of

Elderly

Village Veteran Associa

Schools

Vietnam Bank for Agriculture

The better‐off help the poor

Communal

Party’s

District Social Policy Bank

Inter – communal bank

District farmers

i t

Hue charity association

Veterinary staff

Poor hous

District’s Education Division

Communal People’s Council

District charity

association

Youth Union

Health Department

Village Women Union’s

Communal

Veteran

Commune medical station


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7. Decentralization and Empowerment 7.1. Decentralization and empowerment are prerequisites for the

implementation of the Grassroots Democracy Decree

138. Decentralization, in essence, is the transfer of responsibilities from a higher‐level government to a lower one to give the latter more autonomy and hold it accountable before the whole community. Strengthening the role of local governments and the community will contribute to poverty reduction more efficiently, as it helps improve mechanisms and policy‐formulation.

Table 14: Some decentralized activities in Quang Tri

Decentralization within provincial departments

Work delegated by the provincial to the district

level

Work delegated by the district to the

communal level - The director of the Planning and Investment Department approves projects of less than VND 500 million. The Provincial People’s Committee appoints the contractor

- Projects of less than VND 1 billion: are assessed and approved by the district government

Projects of less than VND 50 million: the district government assesses and approves projects supporting Program 135

- The director of the appropriate sector department approves projects of less than VND 1 billion (no appointment of contractor)

Budget management: delegate specific revenue items and fix four key expenditure items.

Management of clinics, hospitals, and health care centers within the district area

Management of primary and lower secondary schools

139. One difficulty is that the provincial budget relies on central budget

allocations: “major activities of the local government rely on the availability of funds provided by the central government”. The concept is meant to “foster autonomy; yet this autonomy is of passive nature”.

Previously, the district’s secondary school system was under the control of provincial government. Under the decentralization scheme, secondary schools will be under the control of the district government and funded by the district budget. In reality, the district budget is very limited. Since the decentralization process took place, the district has not been able to finance the improvement of school facilities. Head of Economic Division, district of Hai Lang


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140. Decentralization is the right concept, but one that requires pre‐conditions. Financial problems are compounded by the lack of staff, remuneration and benefit regime for the lower‐level staff. Interviews showed that many officials are not enthusiastic about the concept, as “many activities are now delegated to the lower level, yet such delegation is not synchronized to allow the exercise of power”. This is one of the reasons which are slowing down the decentralization process in many areas. Obviously, more work is delegated without additional manpower.

Chapter V: Part A - Public Administration Reform (PAR)

71


The comprehensive poverty reduction and growth strategy clearly states that (pages 55 and 56): the overall goal is to strive to build a state administration system that is clean, effective, and accountable at all levels.

The public administration reform program was approved in September 2001, aiming at reforming the entire public administration system by 2010. One of the 29 provinces under the pilot phase, Quang Tri, with financial and technical assistance from the Swedish Development Cooperation Agency (SIDA), is piloting the one‐door policy for land allocation and issuance of certificates on land use right. 1. Implementation Process and Administration Reform Model 141. Quang Tri set up a Public Administration Reform Steering Committee soon

after the public administration reform policy was introduced. The committee includes 11 members, nine of which are directors of relevant provincial departments, one is a representative of SIDA and the other the representative of the Foreign Relations Department. “Break‐through” issues of public administration reform have been identified at eleven provincial departments which are the key players in public administration reform, including the Cadastral Department, Construction Department, Taxation Department, Justice Department, Agriculture and Rural Development Department, Governmental Organization Department, etc.

2. One-door Policy for Land Allocation and Issuance of

Certificates of Land use right 142. Originally an imported term, the ʺone‐doorʺ policy has nevertheless been

welcomed by officials and the people as a “new signal” for a really effective public administration system. In reality, it is a “reform of working procedures” or “reform of working discipline and change of mindset of officials from the public administration system”21. But different groups understand it differently from their own perspectives.

I just heard of the one‐door public service on the radio and read it in the newspaper. No information has ever been circulated in the area. In my opinion, the one‐door public service will allow people to approach only one place to get the documentation for one matter. Obviously, it will be better, faster and will reduce corruption‐related petition cases. If corruption remains, it will be caused by “one person” rather than “many persons” Official in Gio Thanh Commune, Gio Linh

21 Cadastral officials of commune of Hai Son, Hai Lang


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• For enterprises, it is linked with ʺstreamlining administrative proceduresʺ “This service is certified by communal authorities. At district level, representatives of the relevant departments and agencies will be found in the same room (place)”

• The concept of “one‐door policyʺ has hardly reached local people. Discussions held in eight villages showed that most respondents are not aware of this.

We have not heard of this service, as we have not needed any documentation. You know it when you need it. People at Hoang Ha Village, Gio Thanh, Gio Linh. 3. The IMPACT of Public Administration Reform (and One-

door Policy) 3.1 Streamlining procedures

143. The one‐door policy helped hasten the issuance of certificates of land use right. Two years into its implementation, Quang Tri assesses that the pace of land allocation and issuance of certificates on land use rights in the entire province, especially in urban areas, has accelerated. That is not to mention the training of and transfer of new technology to officials in the cadastral system.

ʺIn five precincts of the provincial town of Dong Ha, the percentage of households given certificates of land use right rose from 4.8% (192 households) in 2000 to 14% (552 households) in 2001. In comparison with other precincts in the provincial town where the one‐door service has not been implemented, the pace is eighteen times faster. Progress made in areas where the one‐door service has been piloted has raised the overall percentage of households given certificates in the entire province to 68% in June 2003, much higher than the national average (40%)ʺ. Deputy Director of the Public Administration Reform Project. 144. Decentralization in land allocation and issuance of certificates of land use

right has reduced delays in decision‐making agencies. • The success of the one‐door policy is that the authority of issuing certificates

of land use right to households and individuals has been transferred to the people’s committee of the district, provincial town or city under provincial control.


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The advantage of the one‐door policy is to allow decentralization to local levels in the exercise of state management of land. In regard to land allocation and issuance of certificates, for the first time the provincial People’s Committee and sector departments such as Cadastral Department, Taxation Department, Construction Department, Justice Department just play an advisory role. Decisions are made and implemented by the relevant district divisions. Officials at various levels in Quang Tri 145. A clear specification of functions and tasks of members of the inter‐sectoral

task force anchors their responsibility in fulfilling procedures and documentation. Procedures that were before handled by officials of various divisions are now addressed by the seven‐member inter‐sectoral task force. A time‐bound process for land allocation and issuance of certificates is stipulated, with deadline for each step. Applications must be processed within 13 days, otherwise the responsible official shall be deemed as failing to fulfill his duty.

146. Streamlining procedures and reducing the number of “procedure‐handling doors” help ease the “unnecessary flurry” of relevant agencies (see diagram 15).

• Previously, people had to visit “six doors” for a total of 12 times to complete procedures • Land users now visit only “one door” for a total of 3 times (the first time for lodging the application, the second for the land survey, and the third time for paying taxes) • A plot of land was surveyed in the past by officials of five agencies. That activity is now done by one agency only (cadastral officials). Officials of Gio Linh District 147. The current process for land allocation and issuance of certificates of land use

right helps reduce errors occurred in filling application forms and thus the number of applicant visits. It also cuts the time needed to process the application and complete the procedure.

“It used to be very complicated to get a certificate of land use right. The process included several steps and it took up to one year for people to get the certificate. It is now much simpler. I just completed procedures for allocation of forestry land, and it took me only 13 days” Mr. Duong Thu, head of KHz Muong Village


74

Figure 16

3.2. The main impact of the one-door policy is that people are recognizing

and exercising their rights and obligations vis-à-vis the State with regard to land issues

148. People have been informed and acknowledge the seven rights of land users, such as the right of land use, transfer, mortgage, etc. This is even more significant to the poor, for it means “more resources, wealth and even power”.

Thanks to the dissemination of information about rights and obligations of individuals vis‐à‐vis the State, people have clearly recognized the seven rights of land users: use, transfer, mortgage, etc.”. It is reflected in the increasing number of people who apply for land allocation and certificates of land use right, especially in the provincial town of Dong Ha and in the district of Cam Lo. Director of the Justice Department of Quang Tri If people have such certificates, they can demand that the State pays compensation for the damage caused by the 500 KW power transmission line”. People at KHz Muong Village, Hai Son, Hai Lang

Procedures for land allocation and issuance of certificates of land use right under the one‐door policy

Procedural steps: Processing division for land allocation and

issuance of certificates of land use right in the district of Hai Lang

Citizens

One‐door service

Division in charge of collecting obligations

from land users

Section to receive and return documentation

Section to conduct land survey and tax issues

Section to register land

Section head

District’s People’s Committee

People’s Committee of commune and district

town

Note Time for processing documentation: Steps 2‐3: 5 days Steps 3‐6: 5 days Steps 6‐7: 1 day Steps 7‐9: 2 days The above timeframe of 13 days is applicable only in individual cases (it does not apply when cases are submitted collectively)

10 1

4

2

3

5

6

78

9


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149. The most significant impact is that people can use this certificate as a mortgage to borrow capital for business purposes. People are exercising their right as land users to make investments into their business and thus improve their income.

Against these certificates, people borrow loans for investment in agriculture, forestry, fishery and services. As of November 2002, 20,447 households in the province have used them to borrow from banks for investment purposes (about VND 340 billion). 2000‐2002 public administration reform performance report 3.3. The public administration reform helps the state in land management,

promotes investments for economic development, generates jobs, and raises incomes

150. Previously, wide areas under state management were not developed or used efficiently. In association with land use planning, the administrative procedure reform has created a more favorable business environment for the community and for investors. In areas where aqua products can be raised or where ecological zones, protection forest, or agricultural farms can be developed, people are allocated land and are thus willing to invest and exercise the rights and obligations of land users.

In addition to land allocation, the district of Hai Lang has recently encouraged the reclamation of hill land for cassava plantation. In 2003, our commune reclaimed about 60‐70 hectares for planting cassava which will be destined to the cassava processing factory in Hai Thinh. People who develop agricultural farms are entitled to borrow preferential loans (interest rate of 0.5% per month) from the district government under Program 120. The communal government also issues certificates of land use right for a term of 50 years and provide each farm with a grant of VND 3 million. In the first six months of 2003, three additional farms have been set up with a total area of 15 hectares. Chairman of People’s Committee of Hai Son Commune, Hai Lang. 3.4. The mindset of people in the public administration system has changed

151. The one‐door policy did not only change processes and procedures but also the mindset of people who work in the public administration system. The result of the 3‐year implementation is, to a certain extent, a proof of the success of the public administration reform in Quang Tri. The concept of “private interests”, which used to be linked to the “ask and give” mechanism, has declined. Starting from the provincial town and one district during the pilot phase, the reform has spread to the entire province. It is expected that it will be soon replicated in three provinces in the region.


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4. Difficulties/challenges in the Implementation of the Public Administration Reform

4.1. The quota for residential and garden land is not clear and adequate

152. Although the land policy has been revised and adjusted, conflicts and problems still occur. Recognizing the substantial benefits of having land, many now do a lot of calculations and comparison.

The reason cited by many people for not applying for a certificate of land use right is that the quota for residential and garden land is not appropriate. It is unfair to set a uniform quota of 300 square meters for every household. People at Cu Dinh Village, Linh Thuong, Gio Linh 4.2. The financial obligation of land users is too high relative to their

income, especially for the poor

153. Everyone seems to agree that the “breakthrough” reform in procedures for land allocation and issuance of certificates has basically resolved previous difficulties and problems. Yet it may not be so for the poor. Most people in the two districts said that with the current tax rate (100%), each household has to pay VND 1.5‐1.8 million. The poor can hardly afford to get such a certificate.

In 2001, 811 out of 996 households in the commune of Hai Son received certificates of land use right. The figure rose to 840 households in 2003 (an increase of 29 households). However, 29 households still have not received a certificate, as they cannot afford to pay the tax. Cadastral official in Hai Son Commune, Hai Lang 4.3 The dissemination of information on the land law and the one-door

policy is not effective and adequate enough

154. Information on the land law and the one‐door policy has merely reached communal cadastral officials through training courses. The community has yet to get access to such information. The poor are unaware of these developments and this prevents them from exercising their rights associated with their land.

Why should I get the certificate? I have been living here for so long, who could take my land back? Why should I pay a huge sum of money for my “already‐long” stay here?. People of Cu Dinh Village, Linh Thuong, Gio Linh

4.4 Heavy workload versus part-time staff and limited budget for the task

force

155. Under the 2003 plan, the district of Hai Lang will complete the allocation of 1.500 hectares of forestry and residential land to 722 households. As


77

expressed by members of the task force, it is next to impossible, given the current manpower availability.

ʺWe only issue an appointment confirmation note for individual cases of land allocation or issuance of certificates. In collective cases, we just cannot afford to issue it (the note means that the case must be processed within 13 days), as we are afraid of failing to meet the deadlineʺ. Members of the inter‐sectoral task force in Hai Lang District 156. The budget needed to maintain an apparatus to provide public services is

not insubstantial. To maintain an apparatus to implement the one‐door service (the inter‐sectoral task force), a monthly budget of at least VND 5 million must be allocated (covering allowances for part‐time staff, fees for hiring contracted staff, administrative costs, etc.). All of these items are currently financed by the SIDA project. It would be difficult to maintain a proper apparatus without project funds. Comment by officials in Gio Linh District 157. Furthermore, the mindset of conservative officials slows down the reform

process. There have been instances of non‐cooperation on the part of public service providers.

A review of the 3‐year implementation of the administrative reform in land allocation and issuance of certificates on land use rights shows that the deadline is met in 80% of cases. The remaining 20% are attributed to errors made by applicants (50%) and incompetence and non‐cooperation on the part of civil servants (50%). Officials of the Public Administration Reform Project 158. Finally, many other “administrative activities” should also be treated as

“services”. The pilot phase merely dealt with land allocation and issuance of certificates of land use right.

The goal that the administrative procedure reform, adopting the one‐door policy, should be expanded to other areas is difficult to achieve, especially with the current staff of officials and the limited budget for operations. Comment by officials of Hai Lang District 5. Some Issues 5.1. The impact of the administrative reform in other areas is unclear

159. Although the administrative reform in Quang Tri is being tested in the most important area, i.e., allocation of land and issuance of certificates of land use


78

rights, the need for reforms in other areas is increasing. Many feel the burdensome red tape has not diminished.

We still encounter difficulties in getting a certificate of birth, a certificate of marriage, a registration for temporary stay or leave, an identification card, a business registration, etc., for it is impossible to meet all the concerned persons at the same time. It is most difficult to meet the chairman of the communal People’s Committee, as he is often out for meetings. Group of enterprises in Gio Linh District 5.2. “Poor household certificates, certificates of land use right” and the

exercise of administrative obligations

160. At present, some local governments rule that certificates of land use right, poor household certificates, seal affixing, and certification of papers shall not be granted to households who fail to fulfill their obligations to the state (public labor obligation, communal funds, etc.). This rule causes difficulties to those who want to borrow capital against the certificate, get a job out of the province, or register their marriage, etc.

‐ Only ten households in Tan Minh Village have received their certificates of land use right. Those of others (39%) have been held back, as they have not fulfilled their obligations to the commune; ‐ Some weddings have been cancelled, as the communal government did not agree to register the marriage, etc. ‐ There are ten‐year‐old children who have not received their certificates of birth, as their parents had failed to pay their obligations. People and officials at Tan Minh Village, Gio Thanh, Gio Linh

Chapter V: Part B - The Implementation of the Enterprise Law

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Creating a level and fair legal environment for all types of enterprises to do business is the precondition for economic growth and income improvement of people of all strata, etc. (Comprehensive Poverty Reduction and Growth Strategy, page 48) Analyzing obstacles and difficulties in the implementation of the Enterprise Law in Quang Tri is not the focus of this survey. Rather, the survey concentrates on the impact of reform on the development of enterprises, creation of job, and sustainable poverty reduction. 1. Sharp Rise in the number of Newly Established

Enterprises 161. In spite of numerous difficulties, the total number of enterprises has risen

rapidly over the last years, a signal of the improved investment climate and economic growth trend in Quang Tri.

Table 15: Number of industrial production facilities in Quang Tri

1995 1999 2000 2001 2002

1. Total 3,134 5,148 5,660 5,874 6,302

- State owned 14 10 8 7 6

- Collectively owned 4 2 2 1 1

- Small owner 3,107 5,122 5,632 5,839 6,263

- Privately owned 9 13 17 26 31

- Foreign invested - 1 1 1 1

2. Percentage 100.00 100.00 100.00 100.00 100.00

- State owned 0.45 0.19 0.14 0.12 0.10

- Collectively owned 0.13 0.04 0.04 0.02 0.02

- Small owner 99.14 99.49 99.51 99.40 99.38

- Privately owned 0.29 0.25 0.30 0.44 0.49

- Foreign invested 0.00 0.02 0.02 0.02 0.02

Source: Statistical Yearbook, Quang Tri, 2002 162. The number of enterprises that have been established after the Enterprise

Law was approved should be closely examined. As noted by managers, this number sky rocketed in Quang Tri once the Enterprise Law came into force, especially private enterprises and companies with limited liability.


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Most of the newly established businesses are private enterprises. As of May 2003, there were 550 private enterprises, an increase of 350 against the figure available prior to the issuance of the Enterprise Law. Comment of high ranking officials of provincial departments 163. The Enterprise Law has created a favorable investment climate for

enterprises by establishing a more relaxed playing field. This assessment has been confirmed by enterprises.

It is simple and fast to establish an enterprise (about 15 days). With the business license issued by the Planning and Investment Department, the enterprise seal given by the Public Security Department, and the tax code assigned by the Taxation Department, the enterprise can start operating. Comment of the director of a private enterprise in Hai Son Commune, Hai Lang 2. Preferential Policies to Attract new Enterprises

164. In addition to the state policy of attracting domestic and foreign investment, Quang Tri has recently issued preferential investment policies, such as exemption or reduction of land rent, refund of 100% of corporate income tax in the first years, exemption of fees for procedures processed by the provincial People’s Committee, etc.

3. More Labor in Growing Enterprises

165. There are no official statistics on the exact number of employees working in such enterprises. But it has definitely increased significantly over the last few years. Of the current 550 enterprises, 60% operate in the construction business, 30% in the service sector and 10 % in the production sector (farm development, animal husbandry and handicraft).

The poor have the opportunity to get a job in the construction sector, as there is a great demand for manual labor commensurate with their competence. It is estimated that this sector employs about 5,000‐6,000 labor, mostly men. High‐ranking official of the Investment and Planning Department 166. The poor recognize the impact of the Enterprise Law, as their children have a

chance to get a stable job right at home. The Hai Son private enterprise was established in 2002 and specializes in trading construction materials and services. Due to the nature of the business, it normally employs 40 manual workers, most of them poor people in the commune. “One year into their employment, their lives have improved; 70% have been able to build a house, buy a motorbike or bicycle, or pay for medical expensesʺ. Mr. Hien, enterprise director


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4. Some difficulties in job Creation for the poor 167. But on the whole, not many job opportunities are available for the poor in

enterprises. Statistis show that of the 550 operating enterprises, about 40% are located in the provincial town of Dong Ha. The Lao Boa Trading Zone comes next in terms of enterprise concentration. The remaining enterprises are scattered in other districts and townships. Thus, non‐farm job opportunity is very limited for the poor and ethnic people in districts such as Gio Linh, Dakrong, Hai Lang, Vinh Linh. This explains why certain groups still look for jobs in other provinces.


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Chapter VI: Migration Quang Tri still faces numerous difficulties, especially given the small cultivation land area per capita and harsh conditions. But there are still unexploited areas and the province is unevenly populated. Two districts, i.e., Hong Hoa and Dakrong, are home to ethnic minorities. Their migration to new economic zones is a crucial measure towards poverty reduction in Quang Tri. Migration plays a key role in adjusting population density to available resources (natural resources, capital, etc.).In view of their economic conditions and poor prospects at home, more and more people migrate both within the province and beyond to seek job opportunities and income improvement. 1. Status of Migration in the Province 1.1. Organized migration towards labor redistribution, production

development and for national security purposes

168. Organized migration includes programs that are carried out under the provincial plan. The purpose of such programs is to induce people to move to areas with abundant land, economic potential and to ensure national security.

• Migration to hilly land to develop garden and large‐scale farms for economic development. Such migration takes place mostly in two districts, i.e., Hong Hoa and Dakrong, two mountainous districts with sparse population and abundant land. Within two years, 2001‐2002, 783 households have been convinced to migrate to the new economic zones.

• Migration to sandy areas to develop an ecological region. Such migration is carried out with farmer households living in plain and costal areas. They migrate to sandy areas (Trieu Phong, Hai Phong, Dong Gio Linh) to develop a model of poverty reduction specific to sandy areas, etc.

• Migration to new economic zones: people migrate to the island of Con Co to set up new villages for the purpose of national security and defense.

1.2. Uncontrolled Migration is on a Rising Trend

169. Uncontrolled migration is rising, both in terms of scale and composition.

Uncontrolled migration within the province

More and more people move out of their villages and communes to look for jobs elsewhere. In recent years, some came from mountainous districts, probably Dakrong (about 40 kilometers from here) to this area. They work as masons or trade iron, timber so as to generate additional income for their families. Indigenous people go into the forest to collect scrap iron (ordnance left from the war). They can earn up to VND 300,000‐400,000 for a trip of 7‐10 days. But they have to dig to the depth of 3‐4 meters for scrap iron or 10‐12 meters for bomb iron. Others sift for gold, etc. Officials of Gio Thuong Commune, Linh Thuong, Gio Linh.

Chapter VI: Migration

83

Uncontrolled migration to other provinces, mostly to the South, is increasing (mainly young people)

In recent years, about 1,700 workers in the district have migrated to Southern provinces, thus reducing the percentage of leisure‐time labor to 32%. People’s Committee of Hai Lang District, Report on the Performance of the National Target Program on Poverty Reduction in 2002 • Export of labor: labor export is an important channel to create job for people, especially the young, who have just entered the labor force, have no job opportunity, or have low‐paying employment in the province. At present, the province has an annual labor export plan. Fifty people have gone to work in Malaysia, Taiwan, and South Korea. Exported workers are entitled to borrow money from the State. Labor export is on the rising trend.Comment by provincial officials 170. Uncontrolled migration includes: • Poor farmers in remote areas with no or limited land, migrating to new

areas for better job opportunities (for example, village of Kheme); • Farmers in plain areas, most of them men, who reclaim land and develop

farms in association with those who migrate under a formal program (work for them or contribute capital).

• Coastal farmers who migrate to areas with better job opportunities. • Seasonal migrants: young people, women, most of them at working age

and physically strong, who go into the service sector. • The Kinh people who live alone. Few people in this village migrate, as most of them are ethnic people. They do not get access to information and are not qualified to get a job (over 50% are illiterate) People in Cu Dinh Village, Linh Thuong, Gio Linh


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Figure 17: Migration at Provincial Level

• Though the organized migration program gives priority to the poor, they can

hardly access such program. Furthermore, the poor are often not eligible, as the requirement is that a household must have at least two labor force and be business‐minded.

The poorest often migrate outside the scope of organized programs, as most of them often owe public contribution obligations or loan arrears. The debt obligations of such people are often “frozen”. Official at the provincial Resettlement Department. 1.3. Migration from other provinces to Quang Tri 171. Migration into the province is insignificant, as Quang Tri is a poor province.

Migrants come in part from other provinces and in part from Laos. The local government does not pay attention to such migrants.

Quang Tri

Ecological

zone

Island of Con Co

Dak Rong

Huong Hoa

Central Highland

Southern Provinces

Laos

Labor to Malaysia, Taiwan, S. Korea

Laos

Incoming migration

Leisure time

Unorganized migration to

other provinces

Poor, better‐off labor

Poor household, youngster

Ethnic household

Organized and internal migration (poor and better‐off households


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2. Migration Goals 172. The first goal of migrants is to make money. They migrate to find job, raise

incomes, reduce poverty, and improve their living conditions.

• Migrants under the organized program are often more educated and have better living conditions than free migrants. They migrate to get rich, develop large‐scale enterprises such as cattle raising farms, etc.

A few years ago, many migrated to Hong Hoa and Dakrong Districts to grow industrial trees (rubber, coffee, pepper, cassava, etc.) and develop agricultural farms. Migration peaked during the period 1997‐2000, as coffee and pepper were fetching high prices at the time. Official of Hai Lang District • In the case of free migrants, their goal is more modest, i.e., reducing poverty

and looking for better living conditions. The village of Kho Me was formed in 1998. Forty households within the commune have migrated to this village. They realized the benefit of migrating (some households had been surviving on a cultivation land area of only 720 square meters for 10 household members. Official in Gio Thanh Commune, Linh Thuong 3. Impact of Migration 3.1. Positive changes in job structure

173. The first goal of migration is to find a job. Thus, the most important impact of migration is to change the job structure. For migrants under the organized program, the change of job structure is the move from one rice crop per year to two crops and to planting higher‐value industrial trees. For free migrants, the choice is broader, including service and trading jobs.

174. Migration contributes to changing the status of migrants Prior to migration, most migrants were farmers, growing rice, maize, sweet potato, and cassava. Afterwards, there is a rather clear division of jobs: ‐ Migrants under the organized program: growing crops or forest, raising aqua products, gardening, raising livestock, fishing, developing farms and growing industrial trees. ‐ Free migrants: there is more diversity. Most are employed in the industry and construction sectors. Some are hired in the agriculture and fishery sectors. Free migrants often take jobs such as construction workers, timber cutters, maids, dressmakers, shoemakers, etc. Official in Hai Lang District


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3.2. Income/living conditions improve remarkably

175. In addition to more job opportunities, both types of migrants feel that their lives had changed significantly and that migration helped them reduce poverty within the entire family.

Those who get outside jobs could bring home VND 300,000‐400,000 per month. This is the optimum solution for local people. Comment of an official in Hai Lang District 3.3. Increased opportunity for land allocation

176. Another goal of migration is to reclaim idle land for production purposes. Many migrants have numerous children and thus migrate to look for better pasture. As such, they, especially those under the organized program, are allocated land for residential and production purposes.

3.4. Leisure time at original homeplace reduced and working time increased

at new destination

177. Most migrants are at working age. Finding employment in the new destination reduces job pressure in their native place. Especially, those who migrate to other provinces help reduce unemployment at home among young people who have just reached the working age.

The district does not suffer from labor shortage due to migration, for there is a large number of surplus labor, especially among young people reaching the working age (in 2002, the unemployment rate was 5.8%, the rate of off‐season unemployment 36%). Most migrants have completed lower or higher secondary education and thus are qualified to get a job in industrial facilities. Comment by official in Hai Lang District 3.5. Better access to social services

178. Interviews with local government officials and the community show that migrants under the organized program have been provided with basic necessities during the transfer and integration in the new destination.

Policy for migrants under the organized program At original homeplace At new destination

Under Circulars 15 and 04, migrants within the district are provided with a grant of VND 800,000 per household. Migrants to other districts (plain or mountainous areas) are provided with a grant of VND 2,700,000 or VND 3,100,000, respectively.

Subsidy for board and accommodation for six months. Allocation of land, housing, well, information, travel allowance. Tax exemption for the first three years Loan extended for business purposes. Provided with household registration Children are enrolled in school Entitled to health care services.

Resettlement Department of Quang Tri


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179. Free migrants, especially those coming from other provinces, are not entitled to such support, as the provincial government does not encourage free migration from other areas. It still provides them however with a minimum basic support, especially if they arrive with their entire families.

Policy for free migrants:

‐ Entitled to emergency support and assistance if they suffer from risks; ‐ Have access to the social service system like everybody else. For example, their children are allowed to go to school, even though they do not have a household registration book; Items to be exempted/reduced: ‐ Public obligations and service fees. ‐ Allocation of land for residential and business purposes Official of the Resettlement Department of Quang Tri. 180. Thanks to the assistance extended by relatives and friends, free migrants

assess that their current living conditions are still better than at home, they especially have access to public services such as road, electricity, education, medical care. They do not feel much discrimination relative to migrants under the organized program.

Access to public services here is better than at home. The infrastructure here is good. The local government also helps us, as it encourages migration. We are registered for temporary stay and get access to medical services. Our children meanwhile can go to school. That’s the reason why we migrate to this area. Migrants at Kheme Village 181. Both types of migrants, even though they are faced with untold difficulties,

are nevertheless in favor of the migration policy of the province. Many respondents said that the government should continue migration programs, especially organized ones.

The need for migration is great but has not been met. Last year, about 200 households registered for migration, of which just 50 households were finally allowed to go. Official of Hai Lang District 3.5. Those who seek jobs out of the province are also assisted

182. Those who migrate to other provinces are also assisted by the government through the issuance of a temporary leave certificate upon leaving and reintegration upon returning.


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Those who seek jobs in the Southern provinces, such as Daklak, Lam Dong, Binh Duong, Binh Phuoc, etc., are registered again in the household registers upon their return. Their children are entitled to go to school and benefit from social policies just like other indigenous people. Comment by people at Tan Tay An Village, Hai Son, Hai Lang 4. Problems and Difficulties of Migrants 4.1. The perception of local governments and people on migration is limited

183. Local governments in general do not pay attention to free migration. Some people feel that these migrants pose more difficulties to the local government in ensuring their own living conditions.

4.2. Household-based migration approach is not effective

184. Many said that migration has not been carried out for a large group of people. As such, it is difficult for migrants to integrate within the new community. As just a few households in one commune migrate to the new place, they cannot help one another much. Therefore, many soon head home, as they are incapable of overcoming difficulties.

4.3. Policy for and living conditions of migrants are not secure and equal

185. Provided with money to cover transportation and resettlement expenses incurred during the migration process, many migrants said that the support was not adequate. Furthermore, successive migrants felt that they were not provided with as much assistance as previous migrants. Some returned home, as they did not receive the subsidy promised by the government.

Since 1998, 12 households in the village have migrated to sandy areas to grow protection trees. Seven households returned after one year, as the government did not pay the subsidy as announced (VND 800,000 per household). People at Tan Minh Village, Gio Thanh, Gio Linh 186. Living conditions in the new place are difficult and infrastructure not adequate.

Planning work at the destination place is not efficient. New economic zones can hardly access services such as markets. Infrastructure is being developing. Road access is difficult. Electricity and health care centers are not available, while the school is far. Water supply is poor and houses are of sub‐standard quality, etc.

At the new place, children find it very difficult to return home from school, as they have to climb a sand dune (0.5 kilometer away). As our home is located far from the community center, the loudspeaker system cannot reach us. Therefore, it is hard to get access to information on education, health care, production. People at Tan Minh Village who migrated to sandy areas and returned


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4.4. Conditions insecure for economic development and income diversity. High risks

187. It is not easy for new migrants to adapt to new economic structures, crops, and livestock at the new place. People feel that their lives are insecure. Extension support is hardly available, while risks abound.

Technical support in areas such as forestation, plantation of coffee, is very limited. Many suffer losses and cannot persist. People at Thuan Dau Village, Hai An, Hai Lang, who migrated to hilly areas 4.5. A high return percentage

188. Returning home is the main thought of all migrants. Yet this is not easy to do. Many dream of returning, but their homes have already been sold before leaving. They are in a dilemma, as they cannot apply for a new house.

• Many migrants who had reclaimed hilly land suffered a doubly enegative impact. On the one hand, the tree plantation project did not succeed. On the other hand, the price of such products fell. Thus, many households incurred losses.

As the coffee price dropped, people incurred losses and had to return home. Official of Hai Lang District • Sickness and diseases also made people unable to “hang on”. This has been

clearly observed by local governments. Many people had to return home as family members suffered from sickness or diseases while health care services were not adequate. Comment of official of Hai Lang District 4.6. Migrants to other provinces also face difficulties

189. Theoretically, local governments welcome and encourage migration to other provinces. Yet many, especially the poor, cannot go unless their obligations to the local government have been fulfilled.

Last year, my daughter found a job in the South region and asked the local government to issue her a certificate of temporary leave. She could not get it because my family had debts (about VND 400,000). We asked them to reschedule the debt or to allow installment payments (the downpayment could be 50%), with the rest paid out of the salary of my daughter. They did not agree. We could not afford to pay all the obligations in one single payment Comment by a person whose daughter works far away


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Chapter VII: Environment Socio‐economic development should be associated with the protection and improvement of environment, thus ensuring that everyone lives in a clean and healthy environment, ... (Comprehensive Poverty Reduction and Growth Strategy, pages 90‐93) To understand the impact on environment, the degradation and the protection of environment in association with poverty reduction, the study team focused on examining the status and development of environment in the local area, reasons for degradation, and the impact of resources and living environment on the people (the poor, women, children, ethnic minorities), as well as recommendations suggested by the community and local officials in the management and protection of environment. 1. Environment – Issues Related to Daily Life 190. For scientists and researchers, the term “environment” means factors that

form the natural environment and the living environment of people, i.e., air, water, land, forest, human beings, etc. For Quang Tri, “environment” is perceived in a rather simpler way; they are issues related to their daily lives such as water, forest tree, toilet, breeding facilities, etc.

• For ethnic minorities living in the mountainous commune of Linh Thuong, environment is the forest from which they can earn a living;

• For those living in the coastal area of Hai An Commune, environment means issues closely related to their daily lives such as water supply and sanitation, etc.

• For local officials, the term “environment” is understood as resources from the forest, water, land and all the factors that influence the living environment and health of people.

191. “Degraded environment” is understood by local people and officials as loss

of forest and polluted living environment: alum‐contaminated water, garbage, flood during the rainy season, flies and mosquitos, diseases and finally depleted sources of income.

Forest is more and more far away. It now takes us 3‐4 days to enter the forest to collect scrap iron, which is increasingly scarce. People in Linh Thuong Commune, Gio Linh

Chapter VII: Environment

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2. Environmental Protection Activities Raise Incomes 2.1. Significant achievements have been recorded in forest management

and protection in Quang Tri over the last years. Forest cover, which used to be 21% after the end of the war (1977), has risen to about 31%22.

192. Most forest state‐owned enterprises in Quang Tri are growing forests under the Government’s forestation programs such as Program 327 and the Program Five Million Hectares of Forest. Reforestation is implemented through the allocation of land and forest and contracting of plantation and protection work to individuals and production groups.

In recent years, encouraging results have been achieved in the plantation and protection of forests, due to an increased awareness of its importance. The commune is implementing three forestation support projects. Forest area has expanded sharply and there is no loss of forest cover. Cadastral official in Linh Thuong Commune, Gio Linh 2.2. Forestation projects generate incomes for people, especially the

poor; the opportunity to participate varies among projects.

193. There is no differentiation between rich and poor households in forestation projects. This is the assessment made by both local officials and the community interviewed. The poor, however, have a higher chance to participate in projects which supply inputs.

In recent years, more and more people have participated in forestation and forest protection, especially the poor, as they earn incomes, have a job, and benefit from forest products (firewood, commodity timber after 9‐10 years) People at KHz Muong Village, Hai Son, Hai Lang 194. Poor households, however, face difficulties in projects that require advance

investment, as they are short of capital, labor and technical skills. A high percentage of people, including the poor, participate in forestation projects, as they have full rights to products from the forest and are issued with certificates of land use right for 50 years. The difficulty faced by poor households is that they are short of capital and labor (most poor households are headed by women, have many children, and lack labor). Management officials at KHz Muong Village, Hai Son, Hai Lang. 2.3. Such projects have met the need for and aspiration of participation

from the community

195. Respondents said that forestation projects helped generate more income and increase people’s sense of responsibility in forest protection.

22 Report of the Science, Technology and Environment Department


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The community benefits from such projects. First, people are paid fees for looking after the forest. Then (7‐10 years later), they benefit from collecting firewood and timber. Further, forestation brings benefits to the local area. Thus, it has received an enthusiastic support from the community. People in Linh Thuong Commune, Gio Linh 3. Scarce Virgin Forest (about 15%), and Depletion of

Natural Resources due to OVER-exploitation 3.1. Resources are depleted due to excessive use and exploitation

196. As assessed by the local people, forest, sea, and mineral resources are excessively used and exploited. More people participate in fishing activities, with stronger boats and high‐tech catching techniques. Productivity, however, is declining, as the poor merely use small boats and swallow nets as they did in the past. Thus, life has become increasingly difficult for many.

There were fishing trips in which we caught nothing. The biggest harvest was about 300 kilograms. Such harvest, however, is increasingly scarce. Productivity declines as people use nets to catch even small fish. Furthermore, big boats from other provinces also join in fishing activities here, using high‐voltage electricity and even dynamite. Fishermen at Tan Tay An Village, Hai An, Hai Lang. 197. Reasons attributed for the depletion of forest resources in Quang Tri include:: • Devastation by the war (in the past) • Slash‐and‐burn cultivation practices (mostly by Van Kieu ethnic minority) • Forest fires due to the dry and hot climate. • Excessive exploitation by those living at the edge of the forest, even though it

has been closed by the government. Administrative fines are too small to deter them in relation to the profits earned from the timber business.

More than 80% of households in Khe Muong Village collect firewood for sale. One can earn VND 30,000 for every two loads of firewood collected in one day (about 30 kilograms). If they pull timber from the forest (using buffalos), they can earn VND 500,000‐600,000 per week (for high quality timber); and young, healthy men can make it 2‐3 times a month. Official at Khe Muong Village • The forest does not only provide timber. It is also where income is generated

from “products of the war that took place 28 years ago”.


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About 30‐40 people in the commune regularly go into the forest to collect bomb iron. They go every month; each trip takes about 10‐15 days. The income is about VND 200,000‐300,000. This job, however, is very dangerous. And they often suffer from malaria. About 12 people often suffer from high fever and exhaustion. After each trip, they often go to the commune’s health care center to ask for medicine. If it does not help, they go to the provincial town of Dong Ha. Upon recovery, they keep on returning to the forest. Cadastral official of Linh Thuong Village, Gio Linh • The perception of people is limited: “It is not prohibited to collect dried sprout

(which can be used to make brooms) in the forest. You are allowed to take as much as you canʺ23

4. Environmental Pollution 4.1. Contamination with dioxin left from the war

198. Quang Tri is the province with the highest rate of left‐over ordnance, toxic chemicals, and cemeteries (mostly in two districts, i.e., Cam Lo and Gio Linh). These are the causes for forest destruction, contamination of water, left‐over toxic chemicals in the soil (trees grown on such land do not bear fruit such as longan, orange, etc.), and for the severe sequels they left on generations of human beings such as inborn deformities, cancer, etc. Quantitative studies currently face constraints due to limited budget and equipment.

4.2. Environmental pollution due to unorganized and unplanned business

activities

199. As pestilence is more widespread, people increasingly spray pesticide on paddy, sweet potatos, beans and other trees in the garden. It is noteworthy that people may be aware of the damaging effects of pesticide, but cannot avoid using it. Even the local government faces difficulties in handling pesticide with measures such as discarding or burying it, etc.

200. Given the limited financial resources, a large number of households still use

animal excrement (muck). Piggeries are often erected next to the homes. Excrement storage facility and stagnant waste cause environmental pollution, especially during the hot season or floodings, severely affecting the health of the community. Diseases most often seen include problems with the digestive system, stomach, kidney, liver, neurological disorders, headaches, and eye problems.

201. In the coastal areas of Quang Tri, such as Thuan Dau Village, Hai An

Commune, a brackish‐water lake of about 350 hectares is being developed into a shrimp raising facility. A lot of chemicals have been used in the

23 People at Khe Muong Village, Hai Son, Hai Lang


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excavation of land and rehabilitation of the lake. Thus the surrounding sandy area is deeply salted, the road and cemetery eroded, and the environment polluted for those living within that area.

4.3. Pollution in post-storm flooded area and sea pollution

202. Due to the weakness or non‐existence of a sewage system, floods usually last from three to five days during the rainy season or sometimes even 1‐2 weeks. Beyond damages such as human loss, destruction of houses, schools, health care centers, and roads, the decomposed carcasses of dead animals and waste infiltrate the underground water, resulting in diseases such as diarrhea, trachoma, and gynecological problems of women.

203. Sea pollution: rough sea occurs every year between October and January.

Strong waves send waste and carcasses of animals along the coast, resulting in unpleasant odors and affecting the health of those who live there.

5. Living Environment of the Poor 5.1. The percentage of the poor who have access to clean water supply is

very low

204. Poverty surveys conducted by the Department of Labor, Invalids and Social Affairs of Quang Tri show that the percentage of poor households who have access to tap water is only 6%. Others mainly use water from a drilled well (29.5%). Those who have access to clean water are mostly located in the provincial town or district towns (48.9%). The percentage of households using unclean water in coastal and mountainous areas is high (above 87%). Only over 1% of the poor in rural mountainous areas have access to tap water; the figure for households living in rural plain areas is 2.2%. This highlights the fact that clean water and adequate water supply are critical issues in Quang Tri, as they significantly affect living conditions.

205. As noted above, water pollution (iron, alum, and other toxics) has reached an

alarming level in Quang Tri, affecting directly sources of water supply. To address the problem, a filter tank with sand and pebbles is needed, but its cost is usually high (VND 4‐5 million). Thus few households, and certainly not the poor, can afford to have a filter tank.

About 50% of water wells in the commune are contaminated with alum, while only 20% of households have a filter tank. The rest just put sterilizing salt into the water. During the flooding season, nylon is used to cover the well in order to prevent dirt from infiltrating well water. The medical staff in the village provides Clotamin B for water treatment. Medical staff of Hai Son Commune, Hai Lang


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In hilly areas, people mostly use water from drilled wells. Water is usually scarce in the dry season (May and June), and water can only be found at a depth of 30 meters. The cost of a dug well is about VND 3‐4 million, while the drilled one costs VND 15 million. Water for daily life here is inadequate. We have to dig well down to the depth of 13‐15 meters on hard soil. The drought season is rather long (especially in July). Thus we have to save water or borrow from the neighbors. Otherwise, we have to go far to get water. Management official, Linh Thuong Commune, Gio Linh 5.2. The percentage of households with toilets (bathroom, latrine) is also

very low 206. The poverty survey conducted in 2002 shows that over 93% of poor

households do not have a toilet. Only 4.3% have a two‐compartment latrine and 2.36% have a septic tank. A two‐compartment latrine costs more than VND 500,000, a substantial sum of money in the eyes of the poor. Thus, most dig a hole and cover it with soil or relieve themselves along the coast.

207. Improving sanitary conditions for the poor is one of the goals of poverty reduction of the province. At present, both the province and districts are implementing health care and clean water programs, helping people build septic tanks. Given the limited budget, however, the government just provides a subsidy equivalent to 50% of the cost. As the remaining 50% still have to be covered by the individual household, most of the poor have no access to such subsidies.

5.3. Most poor people live in temporary and low-quality shelters

208. The poverty survey shows that the homes of poor households are in general of low quality.

• 62 percent live in temporary shelters (of which: 81% in rural mountainous areas and 37% in urban areas);

• 3.3 percent are homeless (of which: 4.2% in urban areas, 0.89% in rural mountainous areas and 4.45% in rural plain areas);

• Ethnic minorities live in poor quality stilt houses, under the floor of which animals are sheltered. Thus, hygiene poses a serious problem.

209. Quang Tri, along with many other provinces throughout the nation, is actively eliminating slum areas and temporary housing, although this issue is not part of the 2001‐2005 poverty reduction program. As Quang Tri is a disaster‐prone region (typhoons and floods), the province is doubling efforts to ensure that houses are of “solid or semi‐solid” quality.


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Both the province and districts are implementing a housing policy in support of the poor to eliminate temporary houses of poor households and priority households. The construction subsidy is VND 8 million per household, coming from the central and provincial budgets. Each household contributes VND 4 million. It is expected that 1,000 houses will be completed within 2003. Official of the Labor, Invalids and Social Affairs Department of the province 5.4. Most poor people in rural mountainous areas have no access to

electricity

210. The percentage of poor households with access to electricity is 72%, of which 96% live in urban areas. The percentage of urban poor without access to electricity is 4%, against 60% in rural mountainous areas and 14% in rural plain areas24. It should be noted that the situation has improved markedly with investments from Program 135 for the benefit of communes in extreme difficulties from foreign‐funded projects (Finland). High‐voltage transmission lines are available, but for lack of money people are yet to access electricity.

The village has no access to electricity, even though the transmission line is nearby. We are very poor and cannot afford to get connected to the transmission line. Without electricity, we are getting poorer, as we cannot have irrigation water to increase the number of crops and productivity. What should we do?? People at Hoang Ha Village, Gio Thanh, Gio Linh 5.5. Transportation in sandy and hilly areas is arduous

211. A report prepared by the Poverty Alleviation Steering Committee indicates that most communes are connected to the center by road. Inter‐village communication, however, is deficient. In some villages and communes located far from the center, transportation is difficult ,as there is no inter‐village road.

People in Khe Muong Village, Hai Son Commune, face serious constraints during the rainy season, as there are no bridges. The most important means of transportation here is by boat. As the village is located far from the communal center and from the main road, travelling and schooling of children are severely affected during the rainy season.. Group of officials at Khe Muong Village, Hai Son, Hai Lang

24 Poverty survey results in 2002.

Chapter VIII: Measures for Growth and Poverty Reduction in the years Ahead

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This part focuses on topic‐related measures. They are the results of consultations with government officials at various levels and with the community. They are based on an analysis of problems associated with each topic.

Issue Measure 1. Growth, Poverty and Employment • Under-developed economic

conditions • Boost economic growth. Establish economic sub-zones to

create a momentum for development (mountainous zones, sandy zones, plain zones, etc.). Ensure that economic transformation models are developed successfully

• Poor infrastructure, especially road, irrigation, electricity

• Rehabilitate and upgrade urgently rural infrastructure. Focus on measures to ease transportation problems, especially inter-village transportation. Develop large and small irrigation systems to supply water for production within regions and villages.

• Unfavorable natural conditions; damages from the war

• Economic development should be associated with measures to protect and stabilize natural resources (sea, forest, land resources, etc.)

• Strengthen measures to prevent and mitigate damage caused by natural calamities (typhoon, flood, drought)

• Some poor people “are not allowed to participate in the poverty reduction program”

• Some poor households are not granted “poverty certificates”

• The voting of poor households carries problems

• Consider adjusting poverty standards and ensure that the poorest are allowed to participate in poverty reduction programs

• Create mechanisms to ensure the fulfillment of obligations by households. Consider additional exemption or reduction of obligations for poor households.

• Ensure that poor households are granted “poverty certificates”

• Strengthen the participation of the poor in the evaluation of poverty and voting of poor households

• Poverty is seen mostly in mountainous and coastal areas and in plain areas where infrastructure is inadequate

• Plan and develop economic sub-zones.

• Lack of business skills, capital, and labor are the most critical causes of poverty, especially at the level of households

• Ensure access for the poor to employment, capital and appropriate and profitable business models

• Revise policies for poor households, near-poor households and households who have relapsed into poverty, etc., to ensure sustainable poverty reduction.

• Limited measures to generate job opportunity and on-site job market

• Improve business environment to induce enterprises to develop business and create more off-farm employment in the area.

• Focus on measures to develop farms specializing in cattle raising, industrial trees, additional industries and processing of agricultural and aqua products

• Boost measures to develop the job market, both within and outside the province. Help access job opportunities both within and outside the province.

2. Education • Many do not fully understand

the education policy in • Further circulate information for the poor to understand

the education policy in support of poor children


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support of the poor • Educational expenses are

still a burden for poor households, especially expenses related to textbooks and school contributions.

• Many households cannot afford the financial burden to send their children to school

• Implement policy in which poor pupils are 100% exempted of tuition and school contributions at all levels, in order to forestall the feeling that they are not supported at all, particularly at the primary education level.

• There should be a program in which books could be lent to poor pupils, notebooks provided free of charge, and all school contributions exempted.

• Lend capital to households to improve their incomes so that their children can attend school.

• Too fast is the pace of compulsory lower secondary education – the quality is not ensured

• Currently, only 70% of lower secondary pupils are qualified for admission in higher secondary education.

• Costs associated with lower

secondary education at semi-public schools are too high for the poor

• Compulsory lower secondary education should be paced accordingly. Quality, rather than quantity, should be ensured.

• Attention should be paid to the schooling of female pupils and ethnic children at lower secondary education and higher levels

• All necessary conditions should be met to allow all graduates from lower secondary education to enroll in higher secondary education.

• Reduce the level of contributions in semi-public schools to

allow poor pupils that are not admitted in public schools to enroll in semi-public schools.

• Many drop out, as they must assist their families in earning a living or the latter cannot afford to pay tuition fees

• Create opportunities for pupils to attend training programs and create jobs for them after graduation.

• Circulate information about the benefit of investing into higher education, so as to attract everybody to school.

• Secondary and primary schools lack classrooms at village level or within a cluster of villages far from the commune center.

• For basic education, more schools should be built based on the population density of the area;

• Make further investments into the road system under Program 135, connecting the communal center to villages. The village should be considered the departure point (not the commune).

• School facilities are inadequate

• More investment should be poured into school facilities to meet the minimum requirements in accordance with national standards.

• Lack of teachers • Teachers’ competence is

inadequate

• Introduce teacher promotion policy to attract teachers to remote and isolated areas not recognized as communes eligible for assistance under Program 135.

• Further improve the aptitude of teachers • Only pupils attending

boarding schools are 100% subsidized (board and lodging, book expenses)

• Formulate policy to support all ethnic pupils (including those who do not attend boarding schools).

• The pre-school education system is not adequately developed. Attention is paid mainly to private schools

• The quality of pre-school education should be improved to create a solid foundation for primary education. Special attention should be paid to teaching equipment and classrooms.

• Pre-school education should be standardized under a nationwide uniform system.

• The role of parents’ representatives has not been emphasized enough

• Groups should include representatives of poor households. • Groups should coordinate with the school to provide

support to poor pupils (psychologically and materially) • There are areas where the

rate of illiteracy is high, especially among the elderly, women and ethnic minorities

• Literacy classes should be expanded. They should be open to everybody and not only to the targeted group.

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• Information on the rights of the poor inadequate

• Further disseminate information on the rights of the poor and necessary procedures for them to receive free-of-charge health care services

• The health care facility nearest the community (at commune, village level) does not meet the needs of the community.

• That people go for treatment to “higher-level health care units” is still popular

• Health care units at district and commune levels lack undergraduate-level health care officers

• Allowances for health care officers at commune level are low

• Invest into upgrading health care units at commune level and strengthen their capabilities. Expand free-of-charge services to the poor at commune level to ease their transportation difficulties when they have to travel too far to get treatment for common ailments..

• Ensure that 100% of communal health care centers are staffed with doctors who can treat the poor for common ailments. Introduce policy to attract new medical graduates to work at district level.

• Request support from the provincial government to intensify re-training and skills improvement activities for health care staff at commune and village levels

• Health care staff at commune and village levels are not adequately skilled and experienced in assisting the poor

• Staff members at village level are not paid salaries. They just receive an allowance for their duties in family planning, child care and prevention of malnutrition (VND 30,000 per month)

• More investment should be made in the health care network at village level, both in terms of facilities and human resources

• Strengthen solidarity and responsibility of the health care staff towards the poor.

• Introduce an appropriate remuneration policy for the health care staff, especially those at commune and village levels.

• The medical staff at village level should be further trained to provide treatment for common ailments

• The poor are vulnerable to diseases; the medicine quota for the village health care center is very limited

• The medicine quota for the village health care center should be increased to provide a minimum of medicine to the community.

• Actual expenses incurred for in-patients are too high

• Expand the coverage of free-of-charge treatment for the poor

• Many poor just go for

treatment when their health has significantly deteriorated

• The poor’s knowledge on sanitation and nutrition is limited

• Many women give birth at home. The rate of gynecological problems is high

• The rate of malnutrition among children of poor households is high

• There should be a periodical medical check-up (annually) for the poor to promptly detect problems and provide treatment. Attention should be paid to medical check-ups for women and children

• Provide guidance to the poor on the treatment of common ailments, so they can protect themselves; encourage the use of traditional medicine. Expand the “socialization” of health care for people to avoid diseases

• Encourage women to give birth at the health care station to ensure maternal and infant health security.

• The support extended by international projects is effective. Their scope, however, is limited and not targeted to the poor

• Incorporate health care support programs with poverty reduction activities such as provision of capital, institutional capacity-building, etc., to expand the scope of participation.

• Apply the pay-for-actual-expenses scheme for incurred medical expenses, which is a more appropriate method in Quang Tri

• Continue the pay-for-actual-expenses scheme • Introduce an emergency assistance policy for the poor who

have been injured in accidents or who have yet to receive their poverty certificates.

4 . Social Assistance


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• The need for social assistance is great

• Review and expand the scope of “protection” of vulnerable groups. The scope should be expanded to cover those who suffer from dioxin, the disabled, the lonely, fishermen, and those who lost their jobs in enterprises, etc.

• Develop a strategy to effectively prevent and mitigate risks so as to reduce the number of people in need of assistance and the level of assistance.

• Risks are diverse (including social, economic and other risks)

• Set up an “insurance” system for plants and livestock in economic sub-zones

• Focus on developing small infrastructure works (electricity, small irrigation system, inter-village road, etc.) to minimize risks;

• Concentrate on large environmental rehabilitation projects such as forestation and forest protection, protection of river estuaries (prohibition of sand collection), soil rehabilitation, etc., to prevent risks (floods, accidents caused by the collection of materials left in the forest from the war).

• Develop the "household-based health care" model, instead of the school-based health care model

• The regular assistance system plays a key role in providing social support, but the scope is limited, the level low, and the procedure time-consuming

• Officials working in the invalid and social affairs sector should be permanent, professionally qualified in forecasting and risk assessment, and more active in proposing recommendations for effective risk-prevention policies.

• The dissemination of policies and regulations should be carried out to a broader extent, for people to truly understand them.

• Increase the level of regular assistance to the minimum living standard (poverty line)

• Revise and improve the selection process; cut intermediary agencies and steps. Transfer the budget allocated for regular assistance to social beneficiaries to the Labor, Invalids, and Social Affairs sector for pro-active processing.

• Emergency aid poses serious problems, especially funds availability and timeliness

• Expand the emergency aid system by setting up community-based relief funds and various social organizations;

• Improve procedures and approval process for receiving emergency aid, etc.

• Reduce intermediary steps in the provision of “relief goods”.

• Improve the effectiveness and timeliness of relief activities

• Medicine availability at village level: sufficient medicine in case of emergency aid

• Social organizations play a key role in emergency aid. Their participation, however, is more in form than in substance. They mostly provide support instead of actively identifying potential beneficiaries and recommending solutions

• Strengthen people’s participation, the contribution of social and mass organizations and the community in identifying “regularly” or ”temporarily” affected people, and in formulating policies and strategies to prevent and mitigate risks that can occur to the community and local area;

• Encourage the participation of mass organizations and individuals in the informal social insurance network. Strengthen the role of funds set up by mass organizations. Develop community-based funds at commune and village levels.

5. Grassroots Democracy and Empowerment • No review has been carried

out after a five-year implementation period

• A M&E indicator system is

• Conduct a review and draw experience from the five-year implementation period.

• Set up a monitoring and evaluation indicator system.


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not available • There is no mechanism to

specify the responsibility of different implementing agencies as required by the Grassroots Democracy Decree

• Issue further detailed regulation on the implementation of the Grassroots Democracy Decree and specify the responsibility of different levels of government and agencies, especially in areas where coordination is required.

• The dissemination of information is not effective. People get information on grassroots democracy via the village head and the loudspeaker system

• Only newly recruited officials are given trainings on the implementation of grassroots democracy

• Information is mainly about contribution obligations of the community and the implementation plan

• Increase the supply of information on the Grassroots Democracy Decree to the people by expanding the loudspeaker system at village level;

• Organize workshops for the community and for officials on the main themes of the Grassroots Democracy Decree; improve the effectiveness of meetings and consultations with voters, etc.

• Supply diverse information to people, especially on local revenues and expenditures, the use of the local budget, basic infrastructure works, etc.

• Strengthen people’s participation in the planning process

• People only supervise small infrastructure works which are built with contribution from both the State and the community

• Information is superficial, general, and unclear, especially in finance

• Improve the supervisory role of the community and local governments; make supervision an important ingredient of social life; specify the rights, duties and benefits of parties involved in the supervisory process;

• Reform the reporting and information system for statistical and financial purposes.

• Delegation of responsibility is not associated with delegation of budget, financial resources and increased human resources at local level

• The province does not have full autonomy over its budget. Thus decentralization creates “a passive empowerment”

• The decentralization process should be carried out in a more comprehensive way. Staffing and responsibility of each level should be reviewed;

• Further accelerate the decentralization process. In particular, small and medium infrastructure construction projects should be transferred to the commune level;

• Authorities at district level should be delegated to liquidate state assets in accordance with asset category and value.

6. Administrative Reform • Only officials, enterprises

and individuals who conduct land transactions know about the one-door policy. The community at large is unaware of this policy and the benefits of land allocation

• Strengthen the dissemination of information, so people can access the one-door policy.

• The workload is heavy while most officials hold several positions

• Professional skills are inadequate.

• Many are not familiar with the new processing system and cannot subdue private interests associated with the “ask and give” behavior

• Improve and strengthen capability of officials working under the one-door policy in order to meet requirements

• Improve professional skills such as economic management, public administration, land management, legal management, etc.

• Improve transparency and accountability in the civil service

• Expenses incurred to maintain the apparatus and

• Design a service fee structure that is affordable and sustainable (sufficient to cover associated expenses).


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related services are relatively high

• Coordination among related agencies is problematic, as they now cause trouble “to one another” rather to the “people”

• Maintain the SIDA-financed support project, which is piloting the one-door policy.

• Conduct a review, draw lessons and disseminate information.

• The quota of residential and garden land is not appropriate

• Petitions related to land conflicts are on the rising trend

• Conduct land planning efficiently • Promptly address problems related to the merger of land

as well as procedures for land survey and mapping

• Financial obligations to be paid by land users are too high relative to their incomes, especially among the poor

• Design a policy on a reduction of the land use tax or on deferment of tax payment applicable to the poor or those in difficulties. Such policy will help them access other services as well as fulfill their obligations to the State.

• Avoid forestalling the issuance of poverty certificates or certificates of land use right, certificates of temporary stay or leave, as currently practiced in some areas.

• The one-door policy is being tested only in the field of land allocation. Many other procedures should also become services

• Further expand the one-door policy to a number of other administrative procedures such as certificates of marriage, certificates of birth, bank loans, inheritance, issuance of personal identity cards, etc.

• The streamlined legal framework sometimes results in the establishment of front or shell companies doing illegal business

• Add stricter provisions related to the establishment of enterprises (identification of personal history and characteristics of enterprise owner to facilitate post-inspection)

• Strengthen and carry out post-inspection effectively, improve dissemination of information and strengthen enforcement capacity of relevant agencies responsible for registration or post-inspection

• The informal sector has yet to develop, given the unattractive investment environment

• Not so many jobs are created with capital from Program 120

• The provincial government should further improve the planning of production areas, the development of infrastructure (including market), and policy formulation for attracting investment and facilitating the entry of enterprises.

• Capital from Program 120 should be further allocated to districts to create more jobs.

• Job opportunity in enterprises, especially for the poor, is limited

• There should be measures to encourage enterprises to employ poor, young labor;

• Formulate vocational training policies for labor coming from poor households and ethnic minorities, for them to get a job in enterprises more easily.

7. Migration • Dissemination of information

on migration is limited; there are instances where people return home

• The dissemination of information on and encouragement of migration should be better carried out, so migrants would not feel upset when they arrive at the new place.

• The number of people migrating under the organized program is small relative to the demand

• The poor have few opportunities to participate in organized migration programs

• The targets for migration should be raised to meet the demand

• Organized migration programs should target the poor. There should be a quota reserved for the poor and the percentage of poor households who migrate under the provincial program should be increased.

• The migration approach based on small groups is not effective

• Increase the number of migrants from the same village or commune, to ensure that they can persevere, especially in the initial period.

• Various types of support • Improve the efficiency of migration support under the


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under the organized program are neither good nor fair.

organized program • The level of support at the destination place should be

raised, especially for households who migrate to remote and isolated areas.

• On top of the State policy, there should be local policies (provincial, district, commune) to provide additional support.

• Population- distribution activities have not been carried efficiently.

• Migrants face difficulties in living conditions and production activities. Conditions for economic development and income diversity are unstable and highly risky.

• Integration with the community at the destination place is difficult

• Children face difficulties in school

• More investment should be made into new projects, both before and after people migrate to new areas

• Strengthen the capability of local officials (especially technical and extension staff) to ensure that planting and livestock projects are feasible and appropriate with the conditions in the new economic zones.

• Multiply trainings on business know-how; lending of capital should be coupled with technical training, so people can soon stabilize their lives and increase their incomes; motivate those who have been provided new know-how;

• Review and evaluate economic development models, models for rehabilitating conditions in sandy areas, for population distribution and for developing farms in new economic zones;

• Basic social services should be strengthened at the destination area, especially living conditions, school, health care station, market, road, electricity, etc. The irrigation system should also be completed.

• Design measures to hedge risks in the living conditions and production activities

• The perception of officials on the motives and role of free migrants is not correct.

• There are instances where migrants are obstructed as they look for jobs

• Authorities at various levels and agencies should pay more attention to addressing difficulties faced by free migrants, especially the poor, such as debt freezing or write-off at the departure place.

• There is little support extended to those who look for employment in other provinces or overseas

• Supply information and introduce jobs available in other provinces; support occupational training for young labor;

• Assess obligation payment capacity of the poor after a certain period of income accumulation;

• In case of labor export, support could include lending of capital and occupational training.

• Support returnees in their re-integration into the community

8. Environment • Environment is poor and

degraded. There are left-over toxic chemicals in soil and water, etc. Resources are excessively exploited

• Environmental planning and management should be developed into an action plan with coordination of various agencies and levels of government.

• Formulate environmental protection strategy for the province until 2020, reduce environmental pollution (pollution by pesticide, toxic chemicals).

• Improve understanding and capacity of local officials in the management and protection of environmental resources.

• Disseminate information for people to understand the benefits of forests; strengthen people’s participation in environmental management and protection; reduce pollution.

• Living conditions of the poor inadequate and lacking basic necessities

• Make further investment into infrastructure in poor areas, especially electricity and inter-village roads

• Address the pollution of water caused by alum, iron, or toxic chemicals

• Support the poor with housing, toilets


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• Evaluation on environmental impact deficient; information and tools for evaluation inadequate.

• Many enterprises, factories have not fulfilled environmental protection standards stipulated by the appropriate departments.

• Environmental measures should be adopted in a comprehensive manner:

+ set up observation posts to monitor and forecast environment developments annually.

+ Impose suspension or fine on factories that fail to meet environmental technical requirements.

+ Process garbage, build garbage storage facilities, water supply and sewage systems.

+ Waste water from industrial facilities must undergo treatment

+ Urban planning should take into account the pollution issue, as industrial facilities are located in-between residential areas.

• Environmental protection planning and strategy of the province weak and not comprehensive.

• Budget for rehabilitation and conservation of natural resources limited.

• Human resources and budget for environmental protection studies and evaluation inadequate.

• Take advantage of state investments, studies and participation of domestic and international organizations.

9. Agricultural Extension • Conditions for poverty

reduction vary among regions: mountainous, coastal, plain areas, provincial town or district town.

• Poverty reduction should be incorporated in agricultural and fishery extension schemes;

• Develop agriculture and fishery extension models that are tailored to each region, area, group of people, and even to each household

• The agriculture and fishery extension networks are not commensurate with the needs

• The hierarchical structure is not appropriately organized

• State agencies act as focal agent in agriculture extension activities;

• Strengthen fishery extension at district level • Designate full-time agriculture extension staff at

communal level • Transform technical know-how transfer into services, with

the participation of various partners. • Develop agriculture extension clubs and IPM clubs to

ensure effective transfer of know-how • Adequate investment into cooperatives that act as focal

agents in agriculture extension activities • Implement on a pilot basis the five-stakeholder model

• People are not educated; illiteracy reaches 60% in some areas;

• Telecommunications and radio programs have virtually not reached the villages

• Risks associated with economic development models are high

• Supply information on production schedule, crop schedule • Organize workshops and provide hands-on assistance • Provide inputs and help market outputs • Assist people in getting loans • Develop insurance schemes for plants and livestock in

order to hedge risks. Allow post-harvest deferred payment.

• Needs are high in agriculture, forestry, fishery extension services

• Diversify workshop topics: techniques for husbandry, cultivation, raising of aqua product, techniques for some traditional occupation, retail trading, etc.


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• Extension activities are unimaginative and hardly understood and applied by local farmers;

• Extension activities in ethnic regions (Hong Hoa, Dackrong) are difficult to implement, due to the outdated cultivation techniques, the low education level (50% cannot understand the Kinh language), and poor infrastructure.

• Select training models appropriate to the customs and traditions of each locality and to its absorption capacity.

• Combine training classes with direct guidance given to each household or group of households involved in the same business;

• Improve the effectiveness of workshops, organize study tours, and identify “best practices”.

• Lack of market information, especially information on pricing, market, and sale potential

• Disseminate information effectively through radio, newspaper, television

• Supply market information to ensure that the poor know enough to actively access markets and do business

• Business models are not efficient, slow to be reviewed, and hard to be duplicated

• Organize models effectively and appropriately, seek ways to duplicate efficient business models;

• Develop such models as "community learning center" and "agricultural techniques" library at commune level, so people can study and access additional knowledge.

• Competence and qualification of extension staff are weak, especially at commune level

• Extension staff have less opportunities to attend further professional training

• Organize training classes for core staff; • Develop a network of extension staff at commune level

and support agriculture, fishery, and forestry extension activities in order to change the mindset of local people

• Better understand local needs


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Annex: Poverty Assessment in Quang Tri Some Survey Findings

1. Poverty characteristics at village level

Village Who are the poor? 1. Hai An Commune, Hai Lang District Thuan Dau • Shortage of food for 4-5 months. What does shortage mean? Lack of

rice, need to borrow rice • Thatched hut • No money for tuition fees • Children can only attend Level 1 (4,5) • Often sick, poor health • Numerous children • No capital for investment in production (orchard and animal

husbandry) • Rudimentary pigsty • Manually operated boat • Fishing along the shore • Lack of clean water

Tan Tay An • Shelter • Food shortage for 2-3 months • Numerous children • Chronically sick members • Took a loan to buy tools • Limited animal husbandry (2-3 pigs)

2. Hai Son Commune, Hai Lang District Tan Dien • Chronically sick family member

• Temporary housing (thatched) • Lack of household appliances • Children must walk to school • Indebted • Lack of food • Inadequate clothing • Lack of labor force, family dependents • Lack of knowledge in animal husbandry • Target groups 202

Khe Muong • Lack of cultivation land • Numerous children • Difficult living conditions • Chronically sick • Lack of labor force • Lack of food • Forest wood collection for selling • No own TV • No deep-well • Indebted

3. Linh Thuong Commune, Gio Linh District Dong Don • Lack of animal pulling power

• Food shortage for 3 months • Lack of production tools • Numerous children • Chronically sick or handicapped family member


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• Children attaining level 2 (education)

Cu Dinh • Cheap furniture (bed, wardrobe) or even none • Food shortage for at least 3 months • Temporary, thatched houses • 1 bicycle or even none

4. gio thanh commune, gio linh district Hoang Ha • No animal power

• No bicycle • Food shortage for at least 4 months • Temporary houses (GI sheet, earth floor)

Tan Minh • Food shortage for 3-4 months • Lack of capital • Lack of animal power • Simple houses • Chronically sick, accident-prone • Elderly, lack of labor force • Children dropping out from school • Heavily indebted • Valueless assets

2. Real causes of poverty at village level

What are the causes of poverty? Quang Tri Province

• Unfavorable natural conditions: harsh weather conditions, prone to natural calamities (drought, floods), poor infrastructure, backward customs and habits, limited arable land, scattered plots

• Inqdequate policies • Subjective causes (from the poor):

o Lack of knowledge, skills and equipment o Lack of capital o Slow change in production structures, lack of side employment, lack of jobs o Low education level o Numerous children, lack of family planning o Lack of self help spirit

1. Hai An Commune, Hai Lang District Thuan Dau • Unstable income

• Risks • Lack of capital: the authorities give all possible reasons for not giving out

loans (lack of labor force, lack of entrepreneurial skills) • Sick members • Lack of employment: idle time during the rainy season • Numerous children • Lack of arable land (sand in coastal areas) • Natural disasters: the number of storms has decreased, but heat, lack of

water, epidemics are still plaguing the area. • War sequels: Fishing nets are caught in the edges of sunk airplanes and

shiffs. Some have to spend a fortune repairing or purchasing new fishing nets.

Tan Tay An • Lack of capital • Numerous children • Risks in animal husbandry • Laziness of family members?

2. Hai Son Commune, Hai Lang District Tan Dien • Scorched land, lack of arable land (100 m2 of rice field/head, 96 m2 of

vegetables), food security not assured • Often sick: high cost for medical treatment


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• Lack of labor force • Numerous small children (tuition fees) • Lack of capital • No entrepreneurial spirit • Risks (mines/bombs from the American war) • Natural disasters: in 1999, the whole village lost its crop of vegetables,

many houses were destroyed, cattle was killed. • Lack of water for production: only one crop per year, low productivity • Inadequate means of transportation: there are roads but no bridges,

rendering travelling difficult, especially during the rainy season • Lack of business skills, knowledge in agriculture. Many still stick to old

habits, thus low productivity. • Lack of information on science and technique • Lack of markets • Animal epidemics, inexperienced veterinarians, no place where to buy

reliable medicine • Laziness (occasionally)

Khe Muong • Lack of production land • Lack of labor force • Chronically sick member, head of family deceased • Risks (in animal husbandry, lack of veterinarians, lack of medicine) • Lack of capital • Harsh weather conditions • Difficult transportation (isolation, use of boats)

3. Linh Thuong Commune, Gio Linh District Dong Don • Lack of labor force, or too many dependents

• Low awareness: low education level, no business skills • Lack of capital (to buy seedlings) • Lack of animal pulling power • Poor soil, lack of water = low productivity

Cu Dinh • Lack of production land (2-3 sao, poor soil) • Numerous children (5-7 persons/household, high percentage of

dependents) • Low productivity of paddy (lack of good seedlings, lack of water for

irrigation, lack of knowledge) • Sick members • Lack of business skills • Lack of know-how (animal husbandry, planting)

4. Gio Thanh Commune, Gio Linh District Hoang Ha • Lack of water for irrigation = low productivity, low income

• Undeveloped traditional crafts and services. • Harsh weather conditions (6 months of flood, 6 months of drought) • Lack of business experience • Lack of capital (the poor are afraid of risks, do not dare get a loan) • Lack of labor force • Lack of production land • Sick, disabled, elderly, lonely • Numerous children

Tan Minh • Lack of water for irrigation (main worry) • Lack of capital • Lack of bridge to enter the village (isolation) • Poor health (due to polluted environment, war sequels, lack of medicine) • Lack of off-farm employment • Poor animal husbandry skills • Low productivity • Natural calamities (floods)


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3. Poor households classification

Classification

Village Very poor Poor Average Better-off Worry-

free

Poor HH with certificates

Gio Linh District 1. Cu Dinh 6 23 5 5 22/23

2. Dong Don 21 11 8 21/21

3. Hoang Ha 19 24 24 16 12/24 poor & 12/19 very p

4. Tan Minh 30 28 17 10/30 because most are too

indebted

Hai Lang District 5. Khe Muong 0 16 11 17 19 14/16

5. Tan Dien 28 55 27/28

7. Tan Tay An 75 70 13 53/75

3. Thuan Dau 22 38 37 17 32 (more than identified)

• Khe Muong Village had 4 groups (poor, average, average, worry‐free) • Hoang Ha and Cu Dinh Villages had 4 groups: very poor, poor, average, better‐off • Tan Dien: very poor, still poor, better‐off, richest • The other4 villages had 3 groups: poor and very poor, average, better‐off 4. Population of surveyed villages

Number of HH in the village

Number of HH in the

commune

Number of poor HH in

the commune

Poverty incidence

1. Linh Thuong Commune 79 244 153 62,7

- Cu Dinh 39

- Dong Don 40

2. Gio Thanh Commune

158 638 143 22,4

- Hoang Ha 83

- Tan Minh 75

3. Hai Son Commune 146 981 155 15,8

- Khe Muong 63

- Tan Dien 83

4. Hai An Commune 924 228 24,6

- Tan Tay An 158

-Thuan Dau 114


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5. Classification criteria Example 1: Classification criteria of Cu Dinh Village, Gio Linh

Criterion Group 1 Group 2 Groups 3 Group 4 1. Assets - Animal pulling power - Animal pulling

power Beds

TV Poultry

Poultry

Nothing?

2. Housing Level 4, GI sheet, cemented

Level 4, GI sheet, cemented

Thatched house Temporary house

3. Means of transportation

30% have a motorbike Bicycle Bicycle None

Bicycle

Example 2: Classification criteria of Dong Don Village, Gio Linh

Group 1 Group 2 Group 3

• Many buffalos • Self-sufficient • Motorcycle • Nice house • Children attaining

level 3-University

• Buffalo • Food shortage 1

month/year • Some household

applicances • Children attaining

level 2-3

• No buffalo • Food shortage 3 months/year • Lack of production tools • Numerous children • Sick members, disabled • Children attaining level 2

Example 3: Classification criteria of Hoang Hoa Village, Gio Linh

Criterion Better-off Average Poor Very poor

Assets Agric. machines, ploughing machine, household appliances

Buffalo, good bicycle, food shortage for 2 months/year, a few HH applicances

No animal pulling power, bo bicycle, food shortage for 4 months/year, rudimentary bed (bamboo)

No assets, food shortage throughout the year, bamboo bed

Housing Permanent house with tiled floor

Semi-permanent construction, cement floor

Temporary housing, GI sheet, earth floor

Temporary shelter, earth floor, old GI sheet.

Example 4: Classification criteria of Tan Minh Village, Gio Linh

Group 1: Better-off Group 2: Average Group 3: Poor Seldom sick Seldon sick, rare risks Food shortage 3-4

months/year

Income from animal husbandry

Food security Lack of capital

Side employment Capital for investment in production and poultry raising, but limited

Lack of animal pulling power

Permanent house Semi-permanent house Simple house

Many HH appliances Insufficient assets Often sick

Motorcycle, agricultural Buffaloes (2-3) Elderly HH, lack of labor


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machines, water pump force

Capital for business and savings

Lack of agricultural machines, dependent on others

Children dropping out from school

Skills in agriculture Skills in agriculture Heavily indebted

Many buffaloes Children attending school Valueless assets

Example 5: Classification criteria of Khe Muong Village, Hai Lang

Poor Average Better-off Worry-free Lack of production land Numerous children Difficult living conditions Often sick Lack of labor force Food shortage Wood gathering for selling No TV 100% have no deep well Loans from relatives

House level 4 (loaned money for its construction) Numerous children Wood gathering 5/11 HH have a B&W TV Occasional food shortage 6/11 HH have a deep-well

Relatively stable living conditions, permanent house (borrowed money to construct) Food security 1-2 con buffaloes 25-30 trụ tiêu ??? 80% have a TV (locally made) Furniture relatively valuable Có ít người đi củi, chủi để bán ??? Deep-well

Nice house Food security Large garden Grown-up children Labor force generating income 7-8 buffaloes/cows 30-40 trụ tiêu ¿?? Pension 5 HH have a motorcycle 16 imported TV Valuable HH appliances

Example 6: Classification criteria of Tan Tay An, Hai Lang

Better-off Average Poor House Level 4, several floors Borrowed money to build the

house Temporary shelter

Business skills (making alcohol and pig raising)

No TV

Monthly policy subsidy Enough to eat Food shortage 2-3 months/year

Sufficient economic means

Motorcycle Simple furniture

Bicycle worth 500,000 VND

Few children, labor force Numerous children, sick members

Enough cash to loan out No need to raise a loan to buy fishing nets

Loan to buy production tools

Pig raising: 10 and more Pig raising: 9-10 Pig raising: 2-3

Nhà xuất bản Lao Động ‐ Xã hội. Giấy phép xuất bản số 27‐08/XB‐QLXB Cục xuất bản cấp ngày 07/1/2004, mã số 27‐65/18‐11. Giấy trích ngang kế hoạch xuất bản số 27‐65/LĐXH 18‐11/2003 cấp ngày 9/3/2004.

2003

MOLISA

Participatory Poverty AssessementQuang Tri

Poverty Task Force

MINISTRY OF LABOUR, INVALIDS AND SOCIAL AFFAIRSGERMAN AGENCY FOR TECHNICAL COOPERATION

Institutional Capacity Strengthening for Vietnam Poverty Alleviation Strategy2 Âinh Le,Ha Noi, Viet Nam.Tel: (84-4) 826 4012Fax: (84-4) 826 7367

Photos: GTZ, MOLISA

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