Transcript PARAMETER 1 – SYSTEM GOVERNANCE – DIMENSIONS AND …

Conditional Cash Transfers and
Gender Vulnerabilities in Latin
America – case studies for
Brazil, Chile, Colombia and
Peru
Long-Term Social Protection for Inclusive Growth:
A Policy Dialogue and Learning Event,
Johannesburg, October 12, 2010
Fabio Veras Soares – IPC-IG
(UNDP/SAE/IPEA)
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CCT and Gender Vulnerabilities
Outline of the Presentation
• Context: Gender specific vulnerabilities in Latin
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America
CCT programmes: design and main features
CCTs and gender vulnerabilities: tackling or
reinforcing
Description of case studies: Brazil, Chile, Colombia
and Peru
Impacts on gender-related outcomes
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CONTEXT: Gender inequities in Latin America
While significant progress has been made
towards gender equality, including parity in
education and increased levels of economic
and political participation...
... more women than men live in poverty,
gendered wage disparities persist, and
women face higher burdens of domestic and
caring responsibilities, high levels of teenage
pregnancy and domestic violence.
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CCT and Gender vulnerabilities
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Common Features:
Targeting mechanisms: geographical, categorical and
means testing;
Co-responsibilities: education and health;
Cash: regular payment of cash to women/mother
Rationale: immediate poverty alleviation and stop the
intergenerational cycle of poverty.
Beyond commonalities:
Differ with regard to the emphasis in the two
objectives and with regards to...
… its place in the social protection system: permanent
welfare policy or short-term safety net
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CCTs in Latin America: an overview
Design options
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Targeting tools and target population;
Incorporation of new beneficiary;
Coverage level;
Value of the benefit (fixed per family, varying per
children, denting poverty, covering conditionality cots)
The way conditionality is implemented;
Degree of coordination with the line ministries (supply
side);
Graduation rules, minimum and maximum permanence
in the programme.
Nature of complementary programmes and activities
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CCT and Gender vulnerabilities
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CCT and Gender vulnerabilities
CCTs and Gender Vulnerability
a) Women as recipient of regular cash transfer:
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empowering cash?
Higher transfer for girls – transition between primary to
secondary education.
Criticism: Child centered and mothers at the service of
the state – reinforcing traditional roles – cash alone is
not sufficient to empower women.
Complementary activities and links to service to
reinforce rights – social and economic empowerment
Family support – potential for a transformative agenda?
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CCT and Gender vulnerabilities
Bolsa Família (Brazil)
• It has an unconditional component for the extreme poor and a
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minimum permanence of two years,
It does not use proxy means test and has large coverage (25%)
It is implemented in places where there is no supply of health and
education services (and conditonalities are not required in this
case),
Several steps are taken before exclusion from the programme for
non-compliance with conditionalities;
Line Ministries in charge of conditionality monitoring
Strong role at the local level – Use of New Public Management
tools to involve municipalities.
Links with programmes from other ministry: “Proximo Passo” –
Next step.
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CCT and Gender vulnerabilities
Chile Solidario (Chile)
• It does not consider itself a CCT programme!;
• It targets the extreme poor not reached by existing social
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protection policy/programmes;
Contract with families to work in seven dimensions (including
employment, education, health, housing, identification, income
and family dynamics): psychosocial support.
Despite the low value of the transfer, there is an array of subsidies
that the extreme poor family should have access to: housing and
water/electricity and family allowance.
Two years under Puente, plus three under Chile Solidario, but
eligibility to other transfers is independent of the permanence in
the programme.
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CCT and Gender vulnerabilities
Familias en Acción (Colombia)
• Familias en Accion, created in 2001, is the entry door to the
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Juntos social protection network and in 2009 was transferring
income to 2.9 million families (20% of the population).
Coverage expansion between 2007 and 2009 into larger
urban areas and tried to cover all families classified as
Sisbén 1 as a way to cushion the impacts of the economic
crisis.
Also targeted: displaced population and indigenous
population (other registries).
Co-responsibilities focus on education and health.
Mother leaders, care meetings and socialization.
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CCT and Gender vulnerabilities
Juntos (Peru)
• Juntos was launched in April 2005.
• Programme reached 431,974 households across 14 regions
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(geographical targeting – conflict areas) in 2009.
Juntos: cash subsidy of approximately USD33 to the poorest
households to promote access to basic health, education and
nutrition services.
Targeted to households with children under 14 or pregnant
women.
Co-responsibilities: civic identification documents for women
and children, attendance at primary school, and utilising
various health related services.
Mother leaders
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Impact CCTs
Potential impacts of the transfers on women’s labour supply
and economic autonomy:
1) need to comply with co-responsibilities demands time from
mothers and can reduce time available to work.
2) co-responsibility related to school attendance can also
reduce child labour which can lead mothers to compensate
for that loss splitting their time in both home and market
work.
3) transfer can be used to boost investments at the household
level, particularly, for CCT programmes that have
complementary programmes and in the rural areas.
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Impact CCTs
Impact on labour force participation:
Bolsa Familia: beneficiary women were more likely to
participate in the labour market (MDS, 2007). However,
others piece of evidence have shown that beneficiary women
also tend to reduce worked hours and to increase time spent
on domestic chores (Teixeira, 2010 and Tavares, 2008).
Familias en Acción in Colombia had an effect of increasing
occupation among women in urban areas without affecting
worked hours (Econometría, 2006).
Chile Solidario also seems to have a positive impact on adult
labour supply, married women and rural areas (Galasso,
2006).
Juntos had no impact on women’s employment rate or hours
worked (Perova & Vakis, 2009)
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Impact CCTs
• Some quantitative evaluations have also looked at women’s
bargaining power through an index based on a combination
of variables related to decision-making process within the
household.
Bolsa Familia: beneficiaries of the programme were more
likely to have a higher female bargaining power index than
non-beneficiary households (MDS, 2007).
Familias en Acción: the impact evaluation did not find any
impact on female bargaining power (Econometría, 2006).
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Impact CCTs
Qualitative research findings:
• Brazil: They no longer depend on the husbands for some of
the family’s expenditures and even feel stronger enough to
negotiate with their husbands in the decision-making process
within the household (Suarez and Libardoni, 2008).
• Chile: Beneficiaries are confident to perceive themselves as
an individual and not only as a wife and/or a mother.
However, the fact that they feel more confident and
empowered does not mean that their husbands are now
sharing with her some of the domestic chores. (Larrañaga,
2009b).
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Impact CCTs
Concluding remarks:
• Peru: There has been a greater involvement of men
in domestic activities and changes in women’s
perceptions of their bargaining power in the
households.
• Larrañaga (2009b) and Valente (2010) suggest that
there is space to promote more sustainable
changes in notions around gender relations as well
as to design activities specifically targeted at men
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Impact CCTs
Qualitative research findings:
• Revision of the language used in CCT initiatives
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could create an opportunity to trigger discussion
within the household on the traditional roles of men
and women with regard to their responsibility for
children’s health and education.
Moreover, the social protection frameworks of which
these programmes are (or should be) just a
component should also provide economic
opportunities and childcare facilities for beneficiary
women/mothers.
Use of IT to lessen the burden on women on the
compliance with co-responsibilities.
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REFERENCES:
http://www.ipc-undp.org/pub/IPCWorkingPaper69.pdf
http://www.ipc-undp.org/pub/IPCOnePager115.pdf
THANK YOU
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