By 2030, we could live in a world free from extreme poverty in which all children have equal chances to survive and reach their full potential in life. For this to happen, mechanisms to ensure that disadvantaged groups are not left behind by progress must be embedded in the post-2015 global development framework.

Stepping stone equity targets are one such mechanism. These would serve as interim benchmarks across all goal areas to ensure that disadvantaged groups are on track to achieve final targets and are catching up with more advantaged groups.

By 2030, no post-2015 target should be considered met unless it is met for all.

leaving no one behindEmbedding equity in the post-2015 framework through stepping stone targets

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• Billions of people are being excluded from global progress, a significant proportion of whom are children.TheblindspotoftheMillenniumDevelopmentGoalstoinequalitiesmustbecorrected;itwillnotbepossibletoendextremepovertyunderthepost-2015frameworkifpeoplecontinuetobeleftbehind.

• Inequalities are not an inevitable outcome of development progress.PositivestoriesfromcountriesincludingIndonesia,BeninandPerudemonstratethatgovernmentscantakestepstoensurethatdisadvantagedchildrencatchupwiththeirmoreadvantagedpeers.

• The process to define a post-2015 sustainable development framework offers an opportunity to change the course of human history.Thenewframeworkmustincludeconcretemechanismstoensurenooneisleftbehindunderanygoal,including:– Anexplicitcommitmentthat,in2030,no target will be considered met unless

met for all groups.– Stepping stone equity targets to incentivise equitable progress across all

goal areas.Thesewouldbesetforinterimpointsbetween2015and2030,andwouldhelpensurethatdisadvantagedgroupsarecatchingupandareontracktomeet2030targets.

– Additionalmeasurestopromoteequity,including:goalstoachievegender equalityandensureopen, inclusive and accountable governance;targetstoreduce income inequality,implement policies that reduce inequalities,andhalt environmental degradation;andmechanismstomonitorequitableprogressthroughdisaggregated data,linkedtoaccountabilityandplanningprocesses.

KEy mEssagEs

Diene, age eight, crosses the dangerous border between Uganda and DRC to go to school.

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Thepast25yearshaveseenunprecedentedprogressinpovertyreduction.Thenumberofpeoplelivinginabsolutepovertyhashalved,nearly50millionmorechildrenareinschool,and14,000morechildrensurviveeveryday.1however,whileaverageratesofprogresshavebeenimpressiveinmanycountries,billionsofpeopleacrosstheworldarebeingleftbehind.

Manyofthosebeingleftbehindarechildren,withastaggering66%ofchildrenindevelopingcountrieslivingonlessthan$2adayandoneineightchildreninoeCDcountrieslivinginrelativepoverty.2

Fewwouldarguethatachild’slifechancesshouldbedeterminedbeforetheyareborn.Butacrosstheworld,inhigh-andlow-incomecountriesalike,children’sprospectsinlifeareinlargepartdeterminedbyfactorsoutsideoftheircontrol–theirbirthplace,gender,ethnicity,socioeconomicgroup,andwhetherornottheyhaveadisability.Asaresult,significantgapsremainbetweentheworld’shavesandhave-nots,withpovertyanddisadvantagepassedfromgenerationtogeneration.

ThePosT-2015FrAMework:AwInDowoFoPPorTunITy

wecouldseeanendtoextremepovertywithinourlifetime,includinganendtopreventablechilddeaths,theeradicationofextremeincomepoverty,andensuringallchildrenareinschoolandlearning.3

Butthisvisionwillnotbeachievedifpeoplecontinuetobeleftbehind.endingextremepovertywillhingeonshiftingthetrajectoryofglobaldevelopmentontoamoreequitablepathway,ensuringthatallchildrenhaveequalchancestosurviveandthriveinlife.

Theongoingprocesstodefineanewpost-2015frameworktosucceedtheMillenniumDevelopmentGoals(MDGs)presentsanextraordinarywindowofopportunitytodrivethischange.leavingnoonebehindunderthenewframeworkwillrequireprogressforthosefurthestbehindtoaccelerateagainstabackdropofimprovementforall.systematicdisparitiesinchildren’slifechancesacrosshealth,educationandotherhumandevelopmentspheresmustclose.

sTePPInGsToneTArGeTsTosPurequITABleProGress

Toachievetheseobjectives,thepost-2015frameworkmustincludeconcretemechanismstoincentiviseshiftsinpolicyandpracticesothattheneedsofthosewhoarefurthestbehindaremetfirst,andgapsbetweenadvantagedanddisadvantagedgroupsclose.

Thisbriefingfocusesononesuchmechanism–steppingstoneequitytargets.steppingstonetargetsareinterimbenchmarksfordisadvantagedgroups,andshouldaccompany2030targetsacrossallgoalareasinthepost-2015framework.Theywouldspecifytheprogressthatdisadvantagedgroupsmustbemakingintherun-upto2030toensuretheyareontrackforachievingthefinaltargetsandarecatchingupwithmoreadvantagedgroups.By2030,notargetshouldbeconsideredmetunlessitismetforall.

steppingstonetargetswouldhelptoembedequityacrosstheentirepost-2015framework,addressinggroup-basedinequalitiesacrossalldimensionsofhumandevelopment.Assuch,theywouldcomplementadditional2030targetstodirectlytackleinequalitiesthatareparticularlydamagingtochildren,includingatargettotackleincomeinequalityandagoaltoadvancegenderequality.Together,thesemechanismswouldgearthepost-2015frameworkfirmlytowardsthepromotionofequity,helpingtorealiseourvisionofaworldinwhichnooneisleftbehind.

1 introduction

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IthaslongbeenacknowledgedthattoomanypeoplehavebeenleftbehindundertheMDGframework,particularlypoorandmarginalisedchildren.4

Monitoringprogressthroughaverageratesofchangehasmaskedinequalitiesbetweendifferentgroups.Forexample:• Ifrecenttrendsineducationcontinue,boysfrom

richfamiliesinsub-saharanAfricawillreachuniversalprimaryschoolcompletionby2021.Thepoorestgirlswillnotreachthisgoaluntil2086.5

• InequalitiesinchildmortalityratesbetweenthepoorestandrichestsectionsofsocietyhaveremainedhighindevelopingcountriesovertheMDGperiod,increasinginmorethanathirdofcountriesincludedinrecentresearch.6

• Fornutrition,improvementsinstuntingratessince1990havegenerallybeenaccompaniedbyhighandpersistinginequalities.whileahandfulofcountrieshaveachievedfasterratesofprogressforthe

poorestsectionsofsociety,anequalnumberhaveseenconsiderablyfasterprogressformoreaffluentgroups,resultingingrowinginequalities.7

Inequalityinchildren’slifechancesisnotaproblemconfinedsolelytodevelopingcountries.Intheuk,forexample,progressinreducingchildpovertyhasstalledinrecentyears,with3.5millionchildrenlivinginrelativepovertyin2012.8Ineducation,progressinlearningoutcomesfordisadvantagedchildreninbothearlyyearsandsecondaryeducationhasincreasedconsiderablysince2005.however,gapsinlearningoutcomesbetweenthesegroupshavebeenpersistent,reducingbyonlytwopercentagepointsforearlyyearsandonepercentagepointforsecondaryeducationbetween2005and2012.9

Thesetrendsareamajorcauseforconcern.Incountriesacrosstheworld,particulargroupsofchildrenarebeingexcludedfromdevelopmentprogress(seeBox1).

2 LooKing bEnEath nationaL avEragEs to EnsurE no onE is LEft bEhind

Box1:whoAreTheChIlDrenThATAreBeInGhelDBACk?

Childrenarebeingleftbehindincountriesacrosstheworldsimplybecausetheyhavebeenbornintoaparticulardisadvantagedgroup,definedbysocioeconomicbackground,gender,region,disability,orethnicorotheridentitygroup.suchinequalitiesoftenstemfromhistoricalpatternsofdiscriminationthathavesystematicallydeprivedparticulargroupsofeconomic,socialandpoliticalopportunitiesovertime.10Inmanycases,theseinequalitiesarebeingexacerbatedbyclimatechange

andenvironmentaldegradation,towhichpoorandmarginalisedgroupsareparticularlyvulnerable.11

Thosewhoarefurthestbehindtendtobemembersofmorethanonedisadvantagedgroupandsufferfrommultiple,overlappingformsofdisadvantage.Duetopervasiveanddeeplyrootedsocialnorms,womenandgirlsareoftenamongthemostdisadvantagedinanygroup,andfacethegreatestbarrierstofulfillingtheirpotential.Forexample,inBeninandPeru,asinmanycountries

continued opposite

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acrosstheworld,genderdisadvantageoverlapswithregionaldisparitiesinaccesstoeducationandlearningoutcomes.AsFigure1shows,84%oftherichestyoungmeninthelittoralregionofBeninhadcompletedprimaryschoolin2006,comparedwithonly1%ofthepoorestwomenintheAliboriregion.12InPeru,20%ofthepoorestgirlscompletedprimaryschoolinruralareaswithabasicunderstandingofmathematics,comparedwith90%oftherichestmalesinurbanareas.13

vulnerablechildrenlivingonthemarginsofsocietyareoftentheveryfurthestbehindintermsofhealth,educationandotherdimensionsofhumandevelopment,andfaceadditionalbarriersofstigmaanddiscrimination.Theseincludechildrenlivingonthestreetorininstitutions,andwhoareengagedinhazardouslabour.orphanedchildren,forexample,are12%lesslikelytogotoschoolthantheirpeers.14Childrenwithdisabilitiesareparticularlyvulnerable,beingmorelikelytobeplacedinharmfulinstitutionalcareandtosufferfromabuse.15

whileincomepovertyisnotaninnatecharacteristicinthesamewayasbirthplaceorsex,thesocioeconomicgroupthatachildisbornintooftenhassignificantimpactsontheirlifechances.societieswithhighlevelsofincomeinequalitytendtohavelowerlevelsofsocialmobilitybecauseparentswholackdisposableincomearenotabletoinvestasmuchinchildren’shealthandeducation,orgivethemaccesstovaluablesocialnetworksandopportunities.16Inthisway,economicinequalitiesamongadultscantranslateintounequallifechancesforchildren,furtherentrenchinginequalitiesbetweengroupsthroughtheintergenerationaltransferofpoverty.

Disadvantageinearlychildhoodcanhaveknock-onimpactsthroughoutanindividual’slife–forexample,childrenwhomissoutoneducationarelesslikelytoaccessthesameeconomicopportunitiesastheireducatedpeerswhentheygrowup.17ensuringallchildrenhaveanequalstartinlifeisthereforecriticalforendingpoverty.

FIGure1:DIFFerenTIAlsInPrIMArysChoolCoMPleTIonBeTweenreGIonAl,GenDerAnDweAlThGrouPsInBenIn,2006

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whiletoomanypeoplehavebeenleftbehindunderthepost-2015framework,theglobalpictureisnotwhollynegative.Progresshasnotalwaysbeenaccompaniedbygrowinginequalities.Forexample,intheuk,innerlondonhasrisenfromthesecond-worstperformingregionforsecondaryeducationinenglandtothesecondbestoverthepastfiveyears,andalsoachievedthelowestgapinlearningoutcomesbetweenadvantagedanddisadvantagedstudentsofallregions.18whileBangladeshiandblackAfricanstudentswerepreviouslytrailingbehindtheirwhitepeersintheenglisheducationsystem,Bangladeshistudentsarenowoutperformingwhitestudents,whileblackAfricanstudentsareachievingsimilargradestowhitestudents.19

Casesofdisadvantagedgroupsofchildrencatchingupwiththeirpeerscanalsobefoundindevelopingcountries.Forexample,Figure2showschangesinunder-fivechildmortalitysince1994intworegionsofIndonesia–lampung,arelativelybetterperformingregion,andwestnusaTenggara,aregionthatisfurtherbehind.20Figure2illustrateshowgapsbetweentheseregionshavevariedovertime,increasingatsomejuncturesanddecreasingatothers.Positively,thegaphasbeenreducinginrecentyearsandshouldcloseifrecentprogressismaintained.whereas,in1994,81morechildrenweredyinginwestnusaTenggarathaninlampungoutofevery1,000born,thisgaphasnowreducedto32.

ThereductionofdisparitiesinchildmortalityacrosssomeregionsofIndonesiareflectsexplicitcommitmenttointegratedchildhealthandprotectionwithinnationaldevelopmentplans.Thishasbeensupportedbyeffortstoachieveuniversalhealthinsuranceand,insomecases,thedecentralisationofbudgetsanddecision-making,andinitiativestoreachdisadvantagedregionsandgroups.21Thereisstillsomewaytogotoeliminatepreventablechildmortalityandinequalitiesinchildren’ssurvivalchancesinIndonesia,bothwithinandbetweenregions,andtoimprovetheimplementationofpoliciestoachievethesegoals.however,progressinsomeregionsinrecentyearshasbeensubstantial,withsomedisadvantagedchildrenstartingtocatchupwiththeirpeers.

Beninisanexampleofalow-incomecountrywhereaverageprogresshasmaskedsignificantvariationbetweenrelativelymoreandlessadvantagedsocialgroups,butwheredisadvantagedgroupsaremakingrapidprogress.Thecountryasawholehasachievedimpressivereductionsinchildmortalityinrecentdecades,from166deathsper1,000livebirthsin1996to70in2012.22however,disparitiesbetweenregionsandethnicgroupsremainhigh.Forexample,childrenintheDendiethnicgrouparestillnearlythreetimesmorelikelytodiebeforereachingtheirfifthbirthdaythanyorubachildren,with133Dendichildrendyingper1,000livebirthscomparedwith49yorubachildren(seeFigure323).

source:Dhsdata,savetheChildrencalculations24

FIGure2:TrenDsInunDer-FIveChIlDMorTAlITyInlAMPunGAnDwesTnusATenGGArA,InDonesIA

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Morepositively,theDendiethnicgroupisontracktoeliminatepreventablechilddeathsby2030.Figure3showsthetargetthresholdforlow-incomecountriesatwhichitislikelythatchildrenarenolongerdyingunnecessarilyfrompreventablecauses–25deathsper1,000livebirths.25Ifaverageratesofprogresssince1996continue,theDendiethnicgroupcouldreachthistargetby2026.Thiswouldbearemarkableachievementforadisadvantagedgroupinalow-incomecountry.however,yorubachildrencouldreachthistargettenyearsearlieriftheyalsomaintainaverageprogress.ThechallengeforBeninistofurtheraccelerateprogressforgroupsthathavehistoricallybeenleftbehindinordertoensurethatallchildrenhavegoodandequalchancesinlife.

Theseexamplesareillustrativeofthemixedglobalpictureofdifferentialsinchildren’slifechancesacrosstheworld,andthesignificantamountofworkthatremainstobedonetoensurethatnochildisleftbehindby2030.however,thefactthatgapsarestartingtoclosebetweensomegroupsdemonstratesthatrisinginequalitiesinchildren’slifechancesarenotanecessaryby-productofprogress.equitableprogressispossible.Itiswithinthepowerofgovernmentstomakepolicychoicestopursueprogressive,moreequitabledevelopmentpathways,andofdevelopmentpartnerstosupporttheseeffortsintheworld’spoorestcountries(Box2).

source:Dhsdata,savetheChildrencalculations

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Box2:shAPInGPolICIesToensureequAllIFeChAnCesForChIlDren

Theexactpoliciesrequiredtoadvanceequallifechancesforchildrenarecontext-andsector-specific,andvaryaccordingtotheprofileanddriversofinequalityineachcountryandforeachdisadvantagedgroup.however,inallcountriesitiscriticaltoensurethatdisadvantagedgroupscanaccessandusegood-qualitypublicservicesandsocialprotectionsystemsthatmeettheirneeds.

Thefocusmustbeonpursuinguniversalcoverageofessentialservicesviaequitablepathwaysthatmeettheneedsofdisadvantagedgroupsfirst.researchshowsthatlow-incomecountriesthathaveachievedrapidchangesinchildhealthundertheMDGframeworkhavedonesothroughimprovingthecoverageandqualityofessential,cost-effectiveservicesandsocialprotectionforthepoorestpeople.26Inmanycountriesthiswillrequireincreasesinthelevelandqualityofpublicinvestmentinessentialservicesandfinancialriskprotectionforserviceusers.Insomecountries,thereissignificantscopetoraisenecessaryresourcesthroughstrengthenedandmoreprogressivetaxsystems;inothers,supportforgovernmentbudgetsfromdonorswillhaveacontinuingroletoplay.27

reachingthosewhoarefurthestbehindwillalsorequiresocialnorms,discriminationandotherbarriersthatsystematicallydisadvantageparticulargroupstobetackled.stepsmustadditionallybetakentobolsteraccountabilitytothepoorestthroughimprovementsintransparency,accesstojusticeandparticipationofmarginalisedgroupsindecision-making,includingforwomenandchildren.28

Post-2015steppingstonetargetsshouldhelptoincentiviseanationalprocessnotonlytoidentifygroupsthatarebeingleftbehind,butalsotoidentifythepolicyapproachesthatwillberequiredtoensurethattargetsaremet.

Thisprocessmustbeopen,participatory,andlinkedtoglobalpost-2015accountabilitymechanismstohelpguardagainstthecontinuedexclusionofgroupssufferingfrommarginalisationanddiscrimination.The2014replenishmentoftheGlobalPartnershipforeducationprovidesagoodexampleoflinkingnationalpolicyprocessestointernationalaccountabilitymechanismstospurequitableprogress.Thisprocesssaw30governmentscommittoaddressingequityissuesandensuringthattheirbudgetsarespentinwaysthatbettermeettheeducationalneedsofthepoorestandmostmarginalisedchildren.29

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recognitionhasgrownoverthecourseofthepost-2015processthatthenewglobaldevelopmentframeworkthatreplacestheMDGswillneedtogobeyondnationalaveragesandensurenooneisleftbehind.30

InJuly2014,thefinaloutcomeDocumentofrecommendationsfromtheunopenworkingGroup(owG)onsustainableDevelopmentGoalsidentifiedthereductionofinequalitywithinandbetweennationsasapriorityarea,withsupportfromasignificantproportionofitsmembers.31AsBrazilandnicaraguastressedintheirstatementtothe11thsessionoftheowG,thepromotionofequality“mustbecomeanacknowledgedpriorityandastructuraldimensionofthepost-2015developmentagenda”.32

Previously,inits2013reporttotheunsecretary-General,thehighlevelPanelonthepost-2015agendaidentified‘leave no one behind’asoneoffivestructuraltransformationsthatwillbenecessaryforovercomingobstaclestosustainedprosperity.ThePanelrecommendedthattargetsshouldbemonitoredusingdatadisaggregatedbyincomequintileandbyothergroups.Importantly,targetsshouldonlybeconsideredachievediftheyaremetforallrelevantincomeandsocialgroups.33

ThehighlevelPanel’srecommendationthatnotargetshouldbeconsideredmetunlessmetforallwouldhelptoestablishthepromotionofequityasapost-2015objective,andmustbeadoptedaspartofthefinalpost-2015agreement.however,byitself,thisno target met unless met for allcriterionwouldnotprovidesufficientpolicyincentivesforgovernments

tomaketheurgentchangesinpolicyandpracticethatwillberequiredtoensuredisadvantagedgroupsachieve2030targets.34As2030isalongtimeawayandwilllikelyseedifferentadministrationsincharge,thereisadangerthatcurrentgovernmentswillcontinuetotaketheeasierrouteofservinggroupsthatareeasiesttoreach,ratherthanthemoredifficultrouteofservingtheneedsofthosewhoarehardesttoreach.Thisposestheriskthatdisadvantagedgroupswillcontinuetobeleftbehind.

Moreover,theno target met unless met for allcriterioncouldalsobesatisfiedunderascenarioofgrowinginequalityinchildren’slifechances.Thisistrueforfractionaltargetsthatdonotaimforthecompleteeliminationofdimensionsofpovertyby2030(forexample,atargettoreducestuntingby50%).Itisalsotruefortargetstoreducedisadvantagebeloworaboveminimumglobalthresholds,suchastheminimumglobalthresholdforendingpreventablechildmortality(25childdeathsper1,000livebirths),orthresholdsforminimumlearningoutcomesineducation.evenifallgroupsmetthesethresholds,gapsbeloworabovethemwouldcontinuetogrowifdisadvantagedgroupsarenotmakingsufficientprogresstocatchupwiththemostadvantagedgroups.

Asthepost-2015processreachesitsfinalstages,thechallenge,then,isnotonlytocontinuetobuildconsensusontheneedforastrongfocusonequity,butalsotodefineconcretemechanismstotranslatethisconsensusintoactionacrossallgoalareasofthenewframework.savetheChildrenpresentedanumberofsuchmechanismsinFramework for the Future,ourproposalsforpost-2015goals,targets,indicators(seeBox3).35

3 stEpping stonE targEts: a mEchanism to EnsurE no onE is LEft bEhind

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oneproposalthathaspotentialforsignificantimpactandthatwouldmainstreamthepromotionofequityacrossallgoalareasofthepost-2015frameworkisforinterimequity,dubbedsteppingstonetargets.Initiallyproposedbywatkins(2014),thesetargetscouldbesetforinterimtimeperiodsbetween2015and2030andwouldaimtonarrowdisparitiesinbasiclifechancesbetweendifferentsocialandeconomicgroups.36watkinsproposes,forexample,thatinterimtargetscouldbesettohalvethedeathrategapbetweentherichestandthepoorest,ornarrowlearninggapsbetweenruralgirlsandurbanboys.

Throughfocusingimmediateandongoingattentionontheprogressofthosewhoarefurthestbehind,suchtargetswouldhelptostrengthenthepost-2015highlevelPanel’srecommendationthatnotargetshouldbeconsideredmetunlessmetforallrelevantsocialandeconomicgroups.

Gapreductionisimportant,notleasttoensureallchildrenhaveequalchancesinlife.however,itmustbepursuedinwaysthathelptomaintainoverall

progressandensuretheattainmentof2030goalsforallgroups.Itshouldnotbeachievedthroughmoreadvantagedgroupsgoingbackwards.Forthisreason,steppingstonetargetsshouldhavethreeinterconnectedobjectives:37

1) Maintainfastaverageprogressatthenationallevel.

2) ensurethatdisadvantagedgroupsareontracktoachieve2030targets.

3) reducegapsinhumandevelopmentoutcomesthatstemfromsystematicdifferencesinlifechancesbetweengroupsofchildren.Thisshouldresultfromfasterprogressbydisadvantagedgroups,ratherthanregressionbymoreadvantagedgroups.

steppingstonetargetsshouldbedefinedatthenationallevelfordisadvantagedandmarginalisedgroupsthatarethefurthestbehind,identifiedthroughanopenandparticipatoryprocess(seeBox4).Theyshouldbesetforsocial,economicandenvironmentalgoalareas,takingintersectingformsofdisadvantageintoaccount.

Box3:sAveTheChIlDren’sProPosAlsForADvAnCInGequITyThrouGhThePosT-2015FrAMework

Thisbriefingfocusesonsteppingstoneequitytargetsasanessentialmechanismforpromotingequitableprogressunderthepost-2015framework.ThisisoneofseveralproposalsforadvancingequitythatsavetheChildrenpresentedinFramework for the Future.othermechanismsinclude:• A standalone goal to achieve gender

equality,withtargetstoendgender-basedviolence,realisesexualandreproductivehealthandrights,advancewomen’sandgirls’economicempowerment,andensureequalparticipationandinfluenceinprivateandpubliclife.

• A standalone goal to ensure open, inclusive and accountable governancetoeliminateinequitiesinpublicparticipation,bolsteraccountabilitytomarginalisedgroupsandensureeffectiveinstitutionsthatprovideequalaccesstogood-qualitypublicservices.

• A target to reduce income inequality and relative poverty.

• Goals and targets to drive forward action on policy areas that are known to reduce inequalities,includinguniversalhealthcoverage,education,socialprotection,childprotectionanduniversalregistrationatbirth.

• Data disaggregation,attheminimumbyage,ethnicity,gender,geography,disabilityand,socioeconomicgrouptoimproveunderstandingofwhichgroupsarebeingleftbehindandtobolsteraccountability.

• Targets to reduce international inequalities,includingthroughactiontoendillicitfinancialflowsandreforminternationalinstitutions.

Forfurtherdetail,seesavetheChildren(2014)Framework for the Future.

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sowhatshouldasteppingstoneequitytargetlooklikeinpractice?Forpurposesofillustration,Figure4showsregionaldifferentialsinmalnutritionratesinPeru,measuredthroughthepercentageofchildrenagedunderfivewhoarestunted.Itisclearfromthisgraphthattheaveragerateofprogressmasksconsiderableregionalinequalities.huancavelica,theregionwiththehigheststuntingrates,isoneofPeru’smostremoteregionsintheAndeanmountains,withalargeindigenouspopulation.Incontrast,limaregionhousesthecountry’scapitalcity,togetherwithasignificantproportionofthecountry’smostaffluentgroupsandgoodcoverageofhealthandsocialservices.38Peru’snationalaveragestuntingrateamongchildrenunderfivewas18%in2012.however,inhuancavelicastuntingrateswereashighas47%,comparedwith6%inlima.

ThesetrendsarerootedinahistoryofhighandpersistentregionalinequalitiesinPeru.however,Figure4showsthefruitsofrecenteffortsbythePeruviangovernmentandsocietytoreversedecadesofneglectandmarginalisationofcommunitiesinremoteAndeanregions.reductionsinthestuntingrateinhuancavelicaaccelerateddramaticallybetween2006and2012,falling11percentagepoints

comparedwithareductionofonlytwopercentagepointsthepreviousdecade,andkeepingpacewithaverageratesofchange.Thiswasachievedthroughimprovementsinthecoverageandqualityofhealth,nutritionandsocialprotectionservices,driventhroughincreasedinvestment;measurestostrengthencoordinationacrosssocial,financialandagriculturalsectors;andresults-basedfinancingfordecentralisedprogrammes.39

whilerecenttrendsinstuntingratesarepositive,thereisstillsomewaytogotoensurethatchildreninPeruhaveequallifechances,nomatterwheretheylive.Achildinhuancavelicaisstillnearlyeighttimesmorelikelytobestuntedthanachildinlima,andisovertwiceaslikelytodiebeforetheirfifthbirthdaythananaveragePeruvianchild.

savetheChildrenhasproposedthatatargetofatleasthalvingstuntingratesshouldbeincludedinthepost-2015framework.40Thistargetwouldbeachievedby2030atthenationallevelinPeruthroughmaintainingtheaveragerateofprogressachievedsince1996,bringingthestuntingratedownfrom18%to3%.Incontrast,a50%reductiontargetwillbemoreofachallengeforhuancavelica.here,meetingthetargetwouldrequirestuntingratestofallfromthecurrentlevelof47%to24%by2030.AsFigure4illustrates,iftheregionsimplymaintainstheaverageprogressithasachievedsince1996,itwillmissthis

FIGure4:TrenDsInsTunTInGInThereGIonsoFhuAnCAvelICAAnDlIMA,Peru

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targetbyeightpercentagepoints.however,ifthemorerapidratesofprogressachievedsince2006aremaintainedthetargetwouldbemetaheadofschedulearound2025.

Countriesmustsetsteppingstonetargetscarefullyaccordingtolocalcontext,takingintoaccountwhyparticulargroupsarebeingleftbehind,historicaltrends,andtheprogressthatwillbeneededforallgroupstoachieve2030targets.TheaimofinterimsteppingstonetargetsinthisexamplefromPerushouldbetohelpmaintainthemomentumofprogressinhuancavelica,andensurethatthefinal2030targetismetontime.Inordertostrikeabalancebetweenambitionandfeasibility,areasonablesteppingstonetargetfor2022inhuancavelicamightbeset,forexample,atamaximumstuntingrateof34%.Thiswouldallowforsomedecelerationofprogressduetopeoplewhoareyettobecoveredbynutritionandotherservicesandprogrammesbeingthehardesttoreach.41however,itwouldstillensurethattheregionisontrackforachievingthe203050%reductiontarget,andwouldlikelyseehuancavelicacatchingupwithmoreadvantagedregions.

TAIlorInGTArGeTsToConTexT

Asimilarapproachcouldbefollowedtoidentifysteppingstoneequitytargetsinothercountries,includingtheexamplesofBeninandIndonesiadiscussedearlierinthispaper(seeFigure5foranillustrativesteppingstoneinBenin).Inthese

examples,theaimofsteppingstonetargetswouldbetoensurethatrecentratesofprogressaremaintainedinordertoachieve2030targets.however,indifferentcountriesandsectors,steppingstoneswillneedtobesettoaccelerateprogress.Forexample,reductionsinstuntingratesacrosstheworldhaveonthewholebeenslowerthanforchildmortalityduetothecomplexdriversofmalnutritionanditsrelativeneglectwithindevelopmentpolicyandpractice.42InIndonesia,stuntingratesactuallyincreasedinthepoorestquintileofthepopulationbetween2007and2010againstabackdropofoverallnationalimprovement.43Beninsawaveragestuntingratesincreasebetween1996and2006,accompaniedbyanincreaseinthegapbetweenthepoorest40%andrichest10%ofninepercentagepoints.44

Insectorsandcaseslikethese,steppingstonetargetswillneedtobemoreambitious,usheringastepchangeinprogressforthemostdisadvantagedgroups.Donorsanddevelopmentpartnershaveparticularresponsibilitytosupportdevelopingcountrygovernmentstoachieveambitioustargets.ensuringnooneisleftbehindunderthepost-2015frameworkisasharedglobalresponsibility.

Toensurethatsteppingstonetargetsareaseffectiveandfeasibleaspossible,anumberofpracticalandtechnicaldetailswillneedtobeworkedthrough(seeBox4).however,dataandinstitutionsarecurrentlystrongenoughinmanycountriestocommencetheprocessofdefiningsteppingstones,andincorporatingthemintonationaldevelopmentplans.

Benin (ethnic groups)

Dendi: 133/1,000

Yoruba: 49/1,000

Child mortality has fallen to no more than 70 deaths per 1,000 live births among Dendi children, and the gap between Dendi and Yoruba children has narrowed.

Child mortality is no more than 25 deaths per 1,000 live births in any group and gaps between groups have closed.

Post-2015 target: End preventable child deaths (Preventable mortality threshold for developing countries: 25 deaths per 1,000 live births)

2012 child mortality rates

2022 stepping stone

2030: No target met unless met for all

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Box4:DeFInInGAnDIMPleMenTInGsTePPInGsTones–soMePrACTICAlConsIDerATIons

• Poor-quality data and a lack of disaggregationmakeitdifficulttoidentifygroupslaggingbehind,particularlythosesufferingfromintersectinginequalitiesandfromsocialexclusion.Governments,donorsandinternationalinstitutionsmustinvesturgentlyinthepost-2015‘datarevolution’toensurethatprogressforallgroupscanbemonitoredandreportedassoonaspossible.

• For purposes of illustration the examples of stepping stone targets in this briefing focus on a single mid-point date of 2022.however,steppingstonescouldbesetforadditionaldatesbetween2015and2030tostrengthentheircontributiontopost-2015monitoringandaccountability,potentiallyatthree-tofive-yearintervalstoalignwithpoliticalcycles.

• Reporting on progress for disadvantaged groups is highly politicalinmanycontexts,particularlywhereinequalitiesstemfromdeeplyrootedsocialnormsorentrenchedpatternsofexclusionthatarekeepingcertaingroupslockedinpoverty.Insomecases,themostmarginalisedgroupsinsocietyarenotpubliclyrecognisedorcountedwithincensuses,effectivelyrenderingtheminvisible.

• Processes to define and monitor stepping stones should therefore be open, inclusive and participatory,includingrepresentationfromabroadcross-sectionofcivilsociety.Theyshouldalsobelinkedtobothnationalandinternationalpost-2015monitoringandaccountabilitysystems,workinginsynergywithinternationalhumanrightsmechanisms.

• Work will be required to identify the most appropriate baselines, metrics and benchmarks for defining stepping stonesatnationallevels,andtoassessoptionsforglobalsteppingstonesandmonitoring.

Marco Antonio, age eight, lighting a candle in his house in Huancavelica, Peru.

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Thepost-2015frameworkpresentsasignificantopportunitytoputtheworldonamoreequitableandsustainablepathwaytodevelopmentandprosperityforall.worldleadersmustseizethisopportunity,makinguseofeverytoolattheirdisposaltoensurethatthenewframeworkcreatesincentivesforgovernmentsandthewiderdevelopmentcommunitytoreachthosebeingleftbehind.

steppingstoneequitytargetsareacriticalpartofthispost-2015equitytoolset.Theywouldplaceimmediatefocusongapsinprogressbetweenadvantagedanddisadvantagedchildrenacrossallgoalareas,andestablishclearcommitmentstoaccelerateprogressforgroupsthatarefurthestbehindacrossthemultipledimensionsofhumandevelopment.

Tomaximisethecapacityofthenewframeworktoadvanceequityandprosperityforall,steppingstonesmustalsobeaccompaniedbytargetstotackle

inequalitiesthatcutacrossgroupsandsocieties,andtoaddressbarrierstoequallifechancesforchildren.Theseincludeextremeincomeinequality,whichrestrictspoorfamilies’abilitytoinvestintheirchildren;discriminationagainstgirlsandwomen;andenvironmentaldegradationthatunderminesthelivelihoods,healthandwell-beingoftheworld’spoorestpeople.Inaddition,agoalmustbeincludedinthenewframeworktofosteropen,inclusiveandaccountablegovernance;aworldinwhichnooneisleftbehindwilldependongovernmentsbeingaccountableandresponsivetotheneedsofthepoorestandmostmarginalisedpeople.

Deployedtogether,thesemechanismswouldhelptoembedequityattheveryheartofthepost-2015framework,spurringprogresstowardstheultimategoal:aworldfreefrompovertyinwhichallchildrenhaveequalchancestothriveandreachtheirfullpotentialinlife.

4 concLusions

reCoMMenDATIons

Asgovernmentsacrosstheworldworktogethertobuildthepost-2015framework,theymustmaintainastrongfocusonequityandensurethatconcretemechanismstospurequitableprogressareestablishedwithinthenewframework.Thesemustinclude:• An explicit commitment that no target

will be considered met unless met for all groups.

• Stepping stone equity targets to incentivise equitable progress across all goal areas.Thesewouldbesetforinterim

pointsbetween2015and2030,andwouldhelpensurethatdisadvantagedgroupsarecatchingupandareontracktomeet2030targets.

• standalonegoalstoachievegender equalityandensureopen, inclusive and accountable governance,plustargetstoreduce income inequality,implement policies that reduce inequalities,andtackle environmental degradation.

• Mechanismstomonitorequitableprogressthroughdisaggregated data.

15

1un(2014)The Millennium Development Goals Report 2014.newyork:un.2relativepovertydefinedaschildrenlivinginhouseholdswithaverageincomesbelow50%ofthemedianincome.unICeF(2014)Child Poverty in the post-2015 Agenda.newyork:unICeF.3savetheChildren(2013)Getting to Zero: How we can be the generation that ends poverty.london:savetheChildren.4see,forexample,Minujin,A.andDelamonica,e.(2003)‘Mindthegap!wideningchildmortalitydisparities’,Journal of Human Development4(3),november2003;MillenniumProject(2005)Investing in Development: A practical plan to achieve the Millennium Development Goals.newyork:unDP;unICeF(2010)Progress for Children: Achieving the MDGs with equity.newyork:unICeF;savetheChildren(2010)A Fair Chance at Life: Why equity matters for child mortality.london:savetheChildren.5educationForAllGlobalMonitoringreport(2014)Teaching and Learning: Achieving quality for all.Paris:unesCo6wagstaff,A,Bredenkamp,C.andBuisman,l.(2014)‘ProgressonGlobalhealthGoals:arethePoorBeingleftBehind?’The World Bank Research Observer,vol.29(2),p1–26.AdvanceAccesspublishedJuly28,2014.Thisstudyfoundthat,whileprogressonMDGinterventionindicatorshasbeenonthewholepro-poor,relativeinequalityinunder-fivechildmortalityrateshasincreasedin39%ofcountriesincludedintheresearch,andinfantmortalityin51%.7Bredenkamp,C.,Buisman,l.andvandePoel,e.(2014)‘Persistentinequalitiesinchildundernutrition:evidencefrom80countries,from1990totoday.’International Journal of Epidemiology,2014,1–8.8Afterhousingcostshavebeenpaid.Childpovertyisdefinedintheukaschildrenlivinginhouseholdswithlessthan60%ofmedianincome.DepartmentforworkandPensions(2013)Households Below Average Income: 1994/95 to 2011/12.9Datareferstochildreninengland.‘secondaryeducation’referstoGCseexaminationgrades(studentsaged15–16),andearlyyearseducationreferstoeducationforchildrenunderagefive.FiguresfromoFsTeD(2013).Unseen children: Access and achievement 20 years on: Evidence report.london:oFsTeD.10kabeer,n.(2010)Can the MDGs provide a pathway to social justice? The challenges of intersecting inequalities.newyork/Brighton:unMDGAchievementFundandInstituteofDevelopmentstudies.

stewart,Frances(2011)Approaches towards Inequality and Inequity: Concepts, measures and policies.InnocentiworkingPaperno.2013-10.Florence:unICeF.11unDP(2011)Human Development Report: Sustainability and Equity: a better future for all.newyork:unDP.12youngpeopleaged15–24whohavecompletedprimaryschool.unesCowIDedata.unesCo(2014)worldInequalityDatabaseoneducation,www.education-inequalities.org/13unesCowIDedata.unesCo(2014)worldInequalityDatabaseoneducation,www.education-inequalities.org/14west,A.andDelap,e.(2012)Protect My Future: The links between child protection and equity.FamilyforeveryChildandendorsingagencies.15Ibid.16see,forexample,Greenstone,M.,looney,A.,Patashnik,J.andyu,M.(2013)Thirteen economic facts about social mobility and the role of education.ThehamiltonProjectPolicyMemo,June2013;Corak,M.(2013),‘Inequalityfromgenerationtogeneration:Theunitedstatesincomparison’inrycroft,r.(ed)The Economics of Inequality, Poverty, and Discrimination in the 21st Century,ABC-ClIo.Forin-depthanalysisoftheimpactsofincomeinequalityonchildrenseesavetheChildren(2012)Born Equal: How reducing inequality could give our children a better future.17savetheChildren(2013)Food for thought: Tackling child malnutrition to unlock potential and boost prosperity.london:savetheChildren.18AssessedthroughGCseexaminations(keystage4,studentsaged15–16).Allfiguresareforengland.oFsTeD(2013)op.Cit.seeChapter5foradiscussionofpolicyinitiativesthathavehelpedtospurmoreequitableprogressinsomeregions,includingarea-basedinitiativessuchasthelondonChallengeprogramme.19oFsTeD(2013)op.Cit.20savetheChildrenanalysisusingDhsdata.regionsthatarethefurthestaheadandbehindintermsofchildmortalityrateshavechangedovertimeinIndonesia.Theseregionswereselectedforcomparisonastheyhaveconsistentlybeenamongthebestandworstperformingregions.Forfurtherdiscussionofdataissuesandthetechnicalconstructionofsteppingstonetargetsseekite,G.,roche,J.M.andwise,l.(2014)‘Buildingapost-2015frameworkthatleavesnoonebehind:Aproposaltoincentiviseinclusiveprogress’.21sMeru(2010)Child Poverty and Disparities in Indonesia: Challenges for inclusive growth.Jakarta:sMeru,unICeFandBAPPenAs;Thomas,D.andyusran,s.(2013)Social Development Analysis to Support the Design of a Future Maternal and Newborn Health Program in Indonesia, PERMATA.Canberra:AusAIDhealthresourceFacility.22AllfiguresfromsavetheChildrenanalysisofDhsdata.seenote24.23savetheChildrenanalysisofDhsdata.notethattheslopeofthegraphbetween1996and2006fortheDendiethnicgrouprepresentsasmoothedlinebetweenDhsdatapointsowingtoadiscrepancyintheDhsdatafor2001,likelycausedbythesamplesizebeingtoosmallforthatyear.Thenationalaverageisbelowthatfortheyorubagroupin1996as

therankingofgroupshaschangedovertime.Forfurthermethodologicaldiscussion,seetechnicalpaper(detailsinnote24).24ThechildmortalityrateestimateswereobtainedfromdirectdataprocessingofDemographichealthsurveysusingthefullbirthhistorymethod.Finalestimatescorrespondtofiveyearsprecedingthesurvey.Projectionsarebasedonalinearextrapolationofcurrenttrendsforillustrativepurposes.Inrealityratesofchangewouldlikelyslowdownaschildmortalityratesdiminish.(see,forexample,klasen,s.andlange,s.(2012)Getting Progress Right: Measuring progress towards the MDGs against historical trends.CourantresearchCentreDiscussionPaperno.87,February2012.)Forfurtherdiscussionofdataissuesandthetechnicalconstructionofsteppingstonetargetsseekite,G.,roche,J.M.andwise,l.(2014)‘Buildingapost-2015frameworkthatleavesnoonebehind:Aproposaltoincentiviseinclusiveprogress’.25This2030targethasbeenproposedbythePartnershipforMaternal,newbornandChildhealth.Ifachieved,itwouldputcountriesontracktoachievetheestablishedinternationalChildsurvivalCalltoActiontargetforanationalchildmortalityrateofnomorethan25deathsper1,000livebirthsby2035.seehttp://www.who.int/pmnch/about/governance/partnersforum/communique/en/26Countdownto2015(2013)Accountability for Maternal, Newborn and Child Survival: 2013 update.Forexample,onestudyfoundthatmoreequitablefinancingofhealthservicescouldallow13additionalcountriestoachieveMDG4onchildmortality.seerockefellerFoundation,savetheChildren,unICeFandwho(2013)Universal Health Coverage: A commitment to close the gap.london:savetheChildren.27CenterforeconomicandsocialrightsandChristianAid(2014)A Post-2015 Fiscal Revolution – A Human Rights Policy Brief.newyork:Cesr;savetheChildren(2014)Tackling Tax.london:savetheChildren.28Forfurtherdiscussion,seesavetheChildren(2013)Getting to Zero: How we can be the generation that ends poverty.london:savetheChildren.29GlobalPartnershipforeducation(2014)Pledge Report from GPE Replenishment Conference,June2014.30seeunsystemTaskTeam(2013)A New Global Partnership: Eradicate poverty and transform economies through sustainable development.newyork:unitednations;unDG(2013)A Million Voices: The world we want.newyork:unDG;highlevelPanelonthePost-2015DevelopmentAgenda(2013)A New Global Partnership: Eradicate poverty and transform economies through sustainable development.newyork:un;openworkingGrouponsustainableDevelopmentGoals(2014)outcomeDocument.newyork:un.31outcomeDocumentoftheopenworkingGrouponsustainableDevelopmentGoals,July2014.Availableathttp://sustainabledevelopment.un.org/focussdgs.html(accessed29July2014).32statementbynicaraguaandBrazil–11thsessionoftheopenworkingGrouponsustainableDevelopmentGoals,5–9May,2014.Availableathttp://sustainabledevelopment.un.org/content/documents/8750brazil2.pdf(accessed20July2014).33highlevelPanelonthePost-2015DevelopmentAgenda(2013)op.Cit.34watkins,k.(2014)‘leavingnoonebehind:anagendaforequity’.The Lancet,earlyonlinePublication,9May2014.35savetheChildren(2014)Framework for the Future.london:savetheChildren.seealsoMelamed,C.(2012)Putting Inequality in the Post-2015 Picture.london:oDI.36watkins,k.(2014)‘leavingnoonebehind:anagendaforequity’.The Lancet,earlyonlinePublication,9May2014.othershavealsosuggestthatspecifictargetscouldbesetunderthepost-2015frameworkforprogressamongthepoorest,butdonotbuildagap-reductioncomponentintotheirproposals.seeMelamedop.cit.andunICeF/unwomen(2013)Addressing Inequalities: Synthesis report of global public consultation.37ThemethodologypresentedherefollowsproposalspresentedinsavetheChildren(2014)Framework for the Future.seealsoproposalsfromthewho/unICeFJointMonitoringProgrammeforwatersupplyandsanitation:unICeF/whoJMP(2013)Post-2015 WASH targets and indicators: outcomes of an expert consultation.38Franke,P.(2013)Peru’s comprehensive health insurance and new challenges for universal coverage.unICostudiesseries11.washingtonDC:worldBank.39unICeF(2013)Improving Child Nutrition: The achievable imperative for global progress.newyork:unICeF.40Thisisinlinewiththeworldhealthorganizationtargettoachievea40%reductionby2025–anambitious,stretchtarget.seesavetheChildren(2012)Global stunting reduction target: Focus on the poorest or leave millions behind.london:savetheChildren;savetheChildren(2014)op.Cit.41questionsoffeasibilityshouldbeconsideredaspartoftheprocesstodefinesteppingstonetargets.researchshowsthatratesofreductiontendtoslowascountriesmakeprogress.see,forexample,klasen,s.andlange,s.(2012)Getting Progress Right: Measuring progress towards the MDGs against historical trends.CourantresearchCentreDiscussionPaperno.87,February2012.42seeThe Lancet Child and Maternal Nutrition Series,6June2013,availableat:http://www.thelancet.com/series/maternal-and-child-nutrition(accessed20July2014).43IndonesianationalBasichealthsurvey(rIskesDAs)data,citedinsavetheChildren(2012)op.Cit.44savetheChildrencalculationsusingDhsdata.

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