Operational Issues in Implementing Safety Nets ...
Transcript of Operational Issues in Implementing Safety Nets ...
Operational Issues in Implementing Safety NetsPresentation by Qaiser Khan, Lead Economist,
AFTHDThursday March 10,2011
What are the key operational issues in Social Safety Nets in general Identification of Appropriate Program to suit country conditions
and problems to be addressed criteria (in case of CCTs assessing the supply side of co-responsibilities).
Definition of target group and eligibility. Level of benefits and activation – graduation issues to make sure
people can graduate to work. Defining payment systems and modalities. Appeals process and case management. Linkage to other programs to allow complementarities and
prevent double dipping. Controlling Fraud, Error and Corruption plus other leakages. Monitoring and evaluating the program. For those in the World Bank, appropriate instruments to support
a program and implementation modalities.
Diagnostic and Program Objectives Explore the extent of the problem to addressed. e.g. are you
trying to address consumption poverty or lack of access to basic health services or poor school attainment or perhaps a combination.
Assess logistic issues such as location of target population and possible payment modalities.
Supply side of co-responsibilities for CCTs (are there enough school places or access to health or nutrition services).
Assess the country’s institutional capacity and programs-capacity of ministries agencies and whether alternate institutions are needed.
Definition of target group and eligibility
Would you target all households in an area or just poor households.
If you target poor households, what targeting approach will you use whether it is geographic targeting, means testing, proxy means test, categorical targeting, or community targeting or perhaps a combination.
The following six slides are taken from Francisco Ayala’s presentation to the long SSN course and illustrate targeting and conditionalities very well.
5
Eligibility Criteria for Households
All members
Vulnerable members
HIV Orphans
Disabled
Chronically ill
Children and youth between 0 to 18 years of age
Who should be targeted?
POORHOUSEHOLDS
Some examples of CATEGORICAL Eligibility Criteria
6
Poor households with children going to school between 5 to 12 years
In all cases members who belong to poor or extremely poor households
Laos
Pakistán
Nigeria
Perú
Poor households with pregnant or lactating women and children under 3years of age.
Households classified as extremely poor, which are located within areasof influence of supply of education and / or health, that have at least onemember goal.
• Health: children between 0 to 5 years
•Education: children between 5 to 14 years
All girls between 9 and 17 years of age living in rural areas and attendingin the eligible schools ready to be admitted in 5th, 6th or 7th grade.
Targeting and Selection System: Instruments
7
Geographic TargetingPoverty maps, HIV prevalence maps,disaster zones, areas of influencearound schools and health facilities,and others
Household SelectionProxy Means Test (PMT), localcommunity identification, localcommunity improved system (HHincome estimated by proxies)
Validation of lists by committees,government agencies, NGOs, etc(inclusion & exclusion errors)
ValidationSelection of special eligiblehouseholds: Vulnerable members(OVC, orphans, children, etc) andranking (using scores, special HHcharacteristics)
Ranking
Type of targeting system applied
Perú Tanzania Nepal
GeographicTargeting
+Individual Targeting(SISFOH)
+Continuous
Targeting
Community Based Targeting
+Verification with
PMT and categorical variables
Community based targeting already
done+
Verification with PMT
Nigeria
Survey –Verification with
PMT+
CommunityValidation
+Ranking
Deciding Co-responsibilities / Incentives
9
Attendance Enrollment
Checkups
Awareness Sessions
Outcome related (Incentives)
Education
Health
Training
PerformancePassing grade
Growth performanceNutritional & anemia
Performance levels
Courses: Passing
Attendance (Conditions)
Frequency for Conditionalities
10
• To achieve short / long term results• High frequency to achieve quick results• For technical/operational reasons• Most conditions should be verified at the same time• According to payment cycle (bimonthly in most countries)• For health reasons• Pregnant women and infants follow recommended frequency• Tradition• According to school terms
Frequency: Monthly, Bi-Monthly, Other
Aspects to consider in the decision:
11
NO CONDITIONS, INCENTIVESAttend antenatal clinic
Deliver with assistance of professionals
Growth Performance
Four timesOnce off
Once per year
Pregnant Women and children under two
years
Level of benefits and activation – graduation issues to make sure people can graduate to work. Level of benefits depend on the program objectives and
sometimes can be quite low. Evidence in most developing countries is that programs do
not cause work disincentives but one way to assure this is to set the level of benefit low enough. The disincentives findings come from OECD countries where there is a “double whammy” caused by benefit withdrawal and marginal taxes on earned income. These can be addressed at the margin by gradually withdrawing benefits or using negative marginal taxes.
Activation and graduation policies can be built in by requiring job search activities and providing incentives for this.
Designing Payment Systems (pictures courtesy Francisco)
Post Offices Pos Machines
SavingsAccountsChecksMagnetic Cards
Cell Phone Cash Deliveredat home
Identification and Enrolment Process Once the targeting system is decided on, identification of
beneficiaries can be done by census, selected canvassing, advertising and requesting self-enrolment or a combination. An effective appeals process enables exclusion errors to be reduced and program management needs to be used to reduce inclusion errors.
The next two slides illustrate the appeals process and program management.
Once selection is done verification, biometric data collection and issuance of program cards need to be done at the same time. This prevents ineligible people receiving program cards using other peoples identification.
Appeals Process can reduce exclusion Errors
15
APPEALS: Create a mechanism by which non-beneficiaries can appeal the eligibility status (Appeals Form)
CLAIMS: Design a mechanism of claims concerning payments(Claims
Form)
Information submitted by
the Beneficiary is entered
into the MIS
UPDATES: A tool for updating information of the beneficiaries
(Updates Form)
COMPLAINT: Allow beneficiaries to file complaints concerning quality of
service provision, and other aspects of the Programme (Complaint Form)
HOUSEHOLD/COMMUNITY COMMITTEE
Find Solution (data analysis,
verification with school, home
visit, verification with payment agency,
etc..)»Response
16
TARGETING INCONSISTENCY: Inconsistency between MIS PMT
Result and Community Validation
NON PAYMENT COLLECTION: Family failed to collect the payment
PROGRAMCCT-MIS
WILL GENERATE
ALERTS
Solution(data
analysis, home visits,
referrals, schoolvisit,
visit topaymentagency,
etc..)
NON COMPLIANCE: Family failed to comply with co-responsibility
NON REMITTANCE OF FORMS BY SCHOOL: School does not provide
information on time
Good System Management can reduce inclusion errors
NON REMITTANCE OF RECONCILIATION REPORT BY
PAYMENT AGENCY: Payment Agency does not provide
reconciliation report on time
Linkage to other programs SSN programs can be linked to other programs such as
active labor market programs. Use of a common register or a common targeting
system can be used for all programs in the country to assure consistency.
Double dipping can also be prevented by using common targeting and case management systems.
Fraud, error, Emil went over this in his presentation which draws on
OECD examples. The good news for low income countries is that new
ICT can help reduce this a lot by use of biometrics registration and payment systems.
India example NREGA in Andhra Pradesh which combines biometric IDs, with smart portable ATMs which can read biometrics for payments.
Basically, ICT offers the opportunity for SSN programs to reduce fraud and error.
Monitoring and Evaluation Monitoring is a key element in success. Evaluation is also needed to assure best use of scarce
resources. Best practices include setting up a baseline very early
and also taking advantage of panel surveys (where they exist to isolate country wide trends from program effects.
Evaluations also help to buy political support for a program.
World Bank Operational Issues The new results based financing (P4R) will make it
easier for us to support safety nets. A key prerequisite for this will be to build in systems
that can use ICT to reduce error and fraud. It is generally preferable that we finance government
based programs. In the past this was only possible with DPLs now the new instrument will also allow us to do this.