The Social Development Situation and Prospects

of Asia and the Pacific into the

Twenty-first Century: Summary

MEETING PAPER NO 1, PART 3 OF 4

III. SOCIAL INTEGRATION IN THE REGION

A. Defining social integration

According to the Agenda for Action, "social integration" refers to the enabling of all social groups to live together in productive and cooperative harmony. It was included as the third main theme of the World Summit for Social Development because of concerns about widespread social crises and tensions that threaten national unity and international peace and security. The problems include ethnic conflicts and communal strife, alienation and marginalization of some groups, continuing poverty, internal and international displacement of people, and social and demographic changes affecting family patterns and community support systems, increased violence, crime, drug abuse and HIV/AIDS infection.

The aim of social integration, in the words of the Copenhagen Declaration, is to create a "society for all" based on respect for human rights and fundamental freedoms, cultural and religious diversity, social justice and meeting the special needs of vulnerable and disadvantaged groups, democratic participation and the rule of law. The related issues and action trends could be grouped under four broad categories. These are (a) good governance, equality and social justice and full participation in society; (b) responses to the needs of women, youth and other disadvantaged and vulnerable groups including children, older persons and the disabled, as well as refugees, displaced persons, asylum-seekers and documented and undocumented migrants; (c) combating violence, crime, drug supply and abuse; and (d) family and community support systems. These issues correspond closely to those contained in the Agenda for Action.

B. Trends in social integration

1. Good governance, social justice and participation

The imperative for good governance is intrinsically linked with the principles of equity, accountability and participation. It enables political, economic and social priorities to be based on broad consensus in society. Considerable progress has been made in the ESCAP region in moving towards more democratic governments that are responsive to the needs and demands of their citizens. This is true for virtually all systems of government, including communist, socialist, capitalist and mixed systems. Decentralization in a number of countries (for example, India, Nepal and the Philippines) is facilitating increased participation of the people in local level decision-making and implementation. This, in turn, is improving the transparency and accountability of the political and government administrative machinery. Economic liberalization and reforms, while helping to free the government’s stranglehold on economic activities gradually in a number of countries, are also providing increased opportunities for their citizens to participate.

People’s participation in development is being encouraged and facilitated in many countries through user groups, community-based organizations, civic groups, NGOs and other interest groups. However, limitations on the operations of NGOs in some countries continue to pose problems and give rise to unnecessary friction. Appropriate policies and laws promoting freer operation of community groups and civil society organizations on the one hand, and stronger self-regulation by and accountability of these groups on the other, are needed.

Equality before the law for all persons is guaranteed in the laws of virtually all the countries and territories in the region. In practice, however, women, minorities, indigenous peoples and the poor and vulnerable groups continue to encounter significant obstacles in this regard. Different forms of exclusion of the poor, women, ethnic minorities, indigenous peoples and other vulnerable groups persist in the region. Universal access or coverage of basic services is still absent in several low-income countries and areas. Women and the poor seem to be disproportionately hindered in access, especially to education and health services.

Discrimination of all types leads to exclusion from socio-economic advancement, adds to the potential burden and is detrimental to social integration and poverty reduction. Many countries in the region have promoted non-discrimination through a range of laws, policies and mechanisms based on the principles of social equity and justice. Some have undertaken affirmative action to remedy past inequities and provide disadvantaged ethnic groups within their respective societies (for example, scheduled castes in India and bumiputras in Malaysia) with preferred access to opportunities. Others have put in place policies and programmes to promote equality of opportunities and encouraged increased participation and promotion of greater mutual understanding and tolerance in intergroup relationships to overcome the difficulties.

Many countries have ratified international conventions to eliminate discrimination and have enacted laws against discrimination based on gender, race, religion, language and ethnic origin. These include the International Convention on the Elimination of All Forms of Racial Discrimination (1969) and the Convention on the Elimination of All Forms of Discrimination Against Women (1979) as well as the International Covenant on Economic, Social and Cultural Rights. Notwithstanding, discrimination continues against the poor, women and minorities, including particular ethnic groups and indigenous peoples. Changes in social attitudes should be brought about through civic education and leadership-building.

2. Integration of disadvantaged and vulnerable groups

The issue of access and participation in development also concerns other vulnerable and disadvantaged groups, including children, youth, older persons and disabled persons. Indigenous groups, ethnic minorities, migrant workers, refugees and displaced persons have recently been added. These groups have been excluded or are highly vulnerable because they are minors and/or victims of armed conflict, social and economic discrimination, internal displacement or incapacity. Many countries have instituted policies and programmes to strengthen their role and status, and participation in development, through various policies and programmes based on the regional and international agreements. These include the Agenda for Action for the Asian and Pacific Decade of Disabled Persons and the World Programme of Action for Youth to the Year 2000 and Beyond.

In context of the changing family and the modernization of societies, the changing age composition of the population is another facet that will have an increasing developmental impact for dependency ratios, poverty alleviation and social integration. The proportion of older persons in the population is projected to increase in the next 15 years in a number of countries; this, coupled with declines in family size, will result in an increase in the dependence on those working or able to work. Thus, the percentage of non-working elderly (65 years and older) to the labour force is projected to increase from 10 in 1990 to 18 in 2010 in Singapore, 9 to 16 in the Republic of Korea, 8 to 12 in China and India, and 6 to 11 in Indonesia. This has significant socio-economic implications for public social security planning and individual and family financial planning for retirement and other support systems.

The concerns and priorities of the diverse groups of indigenous peoples in this region call for appropriate policies and mechanisms to enable their constructive participation and integration in development processes. While modest beginnings have been made by the countries in these areas, they need to be accelerated to harness the energies and human development capacities in the region adequately.

Civil and armed conflicts have resulted in large waves of refugees (for example, boat people from Viet Nam) and asylum-seekers. With a reduction in tensions in the region, the refugee problem has subsided somewhat. However, it continues to be a significant problem because of turmoil in such countries as Afghanistan and, recently again, in Cambodia. The welfare of documented and undocumented migrants and contract workers is an area also requiring further improvement. Policies and programmes addressing these issues are being addressed largely through bilateral dialogue and agreements between sending and receiving countries. The situation of internally displaced persons, including those displaced by development projects, also requires increasing attention.

3. Combating violence, crime, drug abuse and other social problems

Violent crimes, including violence against women, are related to poverty, inequities in the distribution of incomes and opportunities, social alienation and discrimination. Juvenile delinquency is another dimension of crime. Increasing urbanization, consumerism and poverty among affluence are strong forces contributing to rising crime in the region. The impact of economic growth on crime is less clear. The countries in the region have tried to cope with the problems through preventive, rehabilitative and correctional measures. The approaches vary significantly from one country to another, with some countries, such as Singapore, instituting severe punitive measures against offenders.

Violence against women is being addressed through legislation, policies and programmes for the expansion of education and economic opportunities for women, and for civic education. Notwithstanding, women continue to be subjected to violence in the region because of persistent negative social attitudes, their continued subjugation to an inferior position or alleged religious demands. However, with increased empowerment of women and changing social norms and values as well as better enforcement of existing laws, spouse abuse may abate in a number of countries. Violence against children, particularly their sexual exploitation, is a more recent covert phenomenon associated largely with tourism. Governments and NGOs have demonstrated that stricter monitoring and enforcement of laws can play critical roles in assisting the victims of such crimes and in dealing with the basic structural causes to eliminate their occurrence.

The use of illicit drugs and substance abuse have been on the rise in the region. These are important emerging social concerns. Both the poor and the non-poor are victims of the problem. The negative economic and social impacts of these problems are significant for the individuals involved, their families and communities, and the countries themselves. Efforts are being made to reduce drug demand through education, public awareness and media campaigns targeted at particular groups, mobilizing communities and NGOs, and treatment and rehabilitation programmes. Given the opening up of national borders and the increase in the transient population, which is at high risk of addiction and HIV/AIDS infection, cross-border collaboration will be vital in combating these problems.

Crop-substitution programmes to wean farmers from production of raw materials (such as poppy and cannabis) have met with some degree of success. The implications of the manufacture and use of synthetic drugs such as methamphetamine require close vigilance and control as do crime syndicates such as the "Triads" and "Yakuza" believed to be involved in drug trafficking in the region. Effective regional and international cooperation measures are necessary to combat these aims effectively. The full force of the legal system, including the death penalty, is being mobilized in such countries as Singapore and Malaysia, to curb the production, sale and use of illicit drugs.

4. Family and community support systems

The region has strong family and community support structures and a rich mosaic of social, cultural and religious value systems based on centuries of tradition. These were strong forces for social cohesion and integration, provided social protection and helped avert stark deprivation among family members. At the same time, they were also significant factors in discrimination and social exclusion (for example, against women and the disabled and by caste). Modernization, urbanization, increased labour mobility have weakened many of the traditional systems and structures. For example, the breakdown of the traditional community and family support systems make victims of illness, accident or unemployment and their dependents more likely to join the ranks of the poor. The move from extended families to nuclear families and to single-parent families further increases the risk of poverty due to unforeseen events. Where the traditional support systems are being eroded, new mechanisms such as social security and social safety nets need to be put in place. These mechanisms should supplement rather than supplant the traditional systems and efforts by civil society organizations, including NGOs. At the same time, opportunities should continue to be accorded to the disabled, older persons and other vulnerable people who are able to work, participate actively in community life and maintain their self-reliance through training and access to other productive opportunities.

To promote and achieve social integration, it is important to help the family in its supporting, educating and nurturing roles as a basic social unit. Social and economic policies should be designed to strengthen the role of families in addressing the needs of its members, particularly in times of stress and crisis. Promoting mutual respect, tolerance and cooperation within the family, including between women and men in the family, and within the community is also important for social integration.

Many of these aspects are left in the domain of families and communities, with interventions from governments largely to correct inequities. However, the private sector, including employers and workers’ associations, is being increasingly involved in the provision of family support services, such as child care, health and family life education programmes, and preparation for retirement. The relevant experiences of countries such as China, Japan and Singapore may illuminate both the constraints and the opportunities. More comprehensive forward-looking policies may be needed to promote social integration and sustainable development in the countries and areas in the region.

C. Policies to enhance social integration

Social integration as a dynamic process is predicated on good governance and should continue to respond to changes and the changing needs of society. Policies and action on social integration should be directed towards ensuring an enabling environment that promotes equality and social justice for all, and the access of the disadvantaged groups to basic social services, opportunities and productive resources including training, credit, markets and information. Given the interrelationship of social problems and processes to promote social integration, a comprehensive strategy integrating the various political, economic, social and administrative dimensions is necessary.

One policy approach adopted by some countries involves positive discrimination in favour of disadvantaged and vulnerable groups, such as in India and Malaysia. In India, a provision was incorporated in the Constitution earmarking a certain proportion of places, scholarships and subventions in institutions of higher education and preferential promotions in public employment for the disadvantaged, scheduled castes and tribes. Significant progress has been achieved in improving the economic and social status of a sizeable proportion of the disadvantaged groups. Notwithstanding these advances, betterment of socio-economic conditions for the large majority of the groups and changing mainstream society’s attitudes towards these groups seems to be slow. In some countries, there appears to be an emerging backlash from some segments of mainstream society against the preferential treatment reserved for these disadvantaged groups.

In Malaysia, affirmative action in favour of the Malays (bumiputras) was initiated to bring the Malays into the development mainstream along with other more advanced ethnic groups at all levels in government, business and other arenas in about 25 to 30 years. Under the policy, Malays were provided with preferential access to educational opportunities, employment and promotions. The results have also been encouraging, with more balanced representation of Malays at senior levels in economic, social and political life. However, the policy seems to have given rise to some degree of disaffection among some other groups. A further review of the policy and its impact could point to further action to strengthen social harmony and integration to ensure sustainable development.

A second policy approach involves the progressive assimilation of the disadvantaged and minority groups in the mainstream by providing them with avenues and opportunities for participation in economic, social and political spheres. Thus, Indonesia has been pursuing a social assimilation and integration policy built on the Pancasila (five principles). In the Philippines and Thailand, the approach involved the use of a range of instruments, such as the granting of increased political autonomy to certain areas or regions, reconciliation with dissident groups, a more balanced development giving attention to the areas that were lagging, expanded provision of social services and economic infrastructure and increased economic participation.

A combination of the above-mentioned and other policies and approaches have been tried by other countries with some success. While the need for economic participation by disadvantaged groups is given some priority and addressed to some degree in all the countries, attention to policies and programmes to strengthen their social and political participation is still lacking in some. The right of all social groups, including indigenous peoples and ethnic minorities, to development should be recognized and promoted. Appreciation of and respect for cultural, religious and linguistic diversity should be fostered with freedom to develop in their own pattern and at their pace. At the same time, abuses of these freedoms, which result in parochialism, discrimination and social disintegration, should be guarded against.

The role and participation of all groups in government and civil society is crucial in social integration efforts. The constructive engagement of all sectors of society, including communities, NGOs, the private sector and the government, should be encouraged and facilitated through policies and approaches which foster shared goals and concerns for the common good.

Next: Part 4 of 4 of this paper: Prospects Into the Twenty-First Century

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