What is the point of view or context for underrepresentation?

[eemeli]

This is a follow-up to the discussion in #1230 (comment) around this phrase:

cross-project-council/community-fund/COMMUNITY_FUND_POLICY.md

Line 13 in 2ef0412

Additionally, 25% of the community fund is allocated specifically to support underrepresented groups.

In the linked thread I asked,

For example, the diversity of participants and viewpoints at a European event could be improved by funding the travel of someone from Canada. Is that potentially covered from this allocation?

Similarly, @ruyadorno asked,

Is the diversity / underrepresentation applied to the country of destination of the event? Or is it applied from a global tech scene point of view?

Another example: A collaborator from Colombia may fit well the diversity definition from a conference organized in the global north but will every Colombian collaborator be eligible in case the conference is held in Colombia?

These questions weren't really answered in the following discussion with @bensternthal, though @ovflowd did note that

As far as I recall, we decided not to be explicit on what being a diverse individual entitles and let people decide if they believe they belong to underrepresented groups. It is a vote of fairness and trust between the CPC and the applicant. Of course, if the system is abused (or we have reasons to believe a candidate is abusing the system), their travel fund request will (very possibly) be rejected.

The current lack of any guidance for applicants or the CPC leaves the situation rather unclear, and seems likely to lead to situations where an applicant believes their behaviour to be in line with our directions while the CPC considers the same behaviour to be abusive, or a situation in which the intentions here are watered down by most applicants being "underrepresented". A key source of this is a lack of clarity on the point of view or context in which we're looking to increase diversity. I can think of at least the following valid possibilities:

1. The local tech/open source scene of the applicant.
2. The local tech/open source scene of the event.
3. The global tech/open source scene.
4. The OpenJSF community.
5. The pool of applicants for that year's community fund.

Is being underrepresented in any one of the above sufficient to qualify a participant as "underrepresented"? Or is there some other set (possibly of a single context) within which we are looking to increase diversity?