Conference on Social Inclusion in Eastern Europe Conference on Social Inclusion in Eastern Europe and Central Asia –Towards Mainstreaming and and Central Asia –Towards Mainstreaming and
ResultsResultsSponsored by the World Bank and the Government Sponsored by the World Bank and the Government
of Hungary of Hungary Budapest, 25-26 September 2007Budapest, 25-26 September 2007
CCT: Jamaican Case StudyCCT: Jamaican Case StudyPresented byPresented by
Faith InnerarityFaith Innerarity
Outline of PresentationOutline of Presentation
Overview:Overview:– Profile of JamaicaProfile of Jamaica– Social Safety ReformSocial Safety Reform– Design of PATHDesign of PATH
ResultsResults– Institutional and Legislative Framework– Educational impact– Health impact– Impact on elderly
Challenges and Way ForwardChallenges and Way Forward
Country ProfileCountry Profile
Jamaica is located in the North Western section of the Jamaica is located in the North Western section of the Caribbean Archipelago, 145 kilometres south of Cuba, Caribbean Archipelago, 145 kilometres south of Cuba, 161 kilometres west of Haiti and 898 kilometres south 161 kilometres west of Haiti and 898 kilometres south east of Miami. With an area of 10,991 square kilometres, east of Miami. With an area of 10,991 square kilometres, it is the third largest island in the Caribbean. it is the third largest island in the Caribbean. According to the 2001 Census, the population size is 2.6 According to the 2001 Census, the population size is 2.6 million. million. It is a middle-income country with a GNP per capita of It is a middle-income country with a GNP per capita of US$2,900 (World Bank Development Indicators July US$2,900 (World Bank Development Indicators July 2005). 2005). The level of human development has been classified as The level of human development has been classified as medium range by the United Nations Development medium range by the United Nations Development Programme (UNDP). Programme (UNDP). Multi-ethnic population, with majority of African descentMulti-ethnic population, with majority of African descent
MAP OF JAMAICAMAP OF JAMAICA
Social Policy Agenda: JamaicaSocial Policy Agenda: Jamaica
Integration of economic and social Policies Integration of economic and social Policies to achieve macro-economic stability while to achieve macro-economic stability while simultaneously pursuing social simultaneously pursuing social development objectives.development objectives.Re-orienting social sector spending for Re-orienting social sector spending for increased equity and human development.increased equity and human development.Promotion of social inclusion through the Promotion of social inclusion through the reduction of poverty, risk and vulnerability reduction of poverty, risk and vulnerability among disadvantaged groups.among disadvantaged groups.
Social Safety Net Reform: Social Safety Net Reform: RationaleRationale
Analysis of social safety net programmes in Analysis of social safety net programmes in 1999-2000 led to recognition of need to:1999-2000 led to recognition of need to:– Remove fragmentation and duplication in Remove fragmentation and duplication in
provision of social assistance benefits provision of social assistance benefits – Develop system for more cost effective delivery of Develop system for more cost effective delivery of
benefitsbenefits– Improve targeting of beneficiariesImprove targeting of beneficiaries– Increase coverage of the poorIncrease coverage of the poor– Adopt more developmental rather than welfare Adopt more developmental rather than welfare
approach by establishing link between benefits approach by establishing link between benefits and human capital investment and human capital investment
PATH: Principal Design FeaturesPATH: Principal Design Features
Institutional changes – Merger of principal social Institutional changes – Merger of principal social assistance programmes, new legislative assistance programmes, new legislative framework, strengthening of institutional capacity framework, strengthening of institutional capacity in programme managementin programme managementUse of scientific targeting mechanismUse of scientific targeting mechanismIntroduction of conditional cash transfers to Introduction of conditional cash transfers to support human capital investment in education support human capital investment in education and healthand healthCase managementCase management
@#PATH Beneficiary Target Groups 236,000
71%
5%
14%
8%2%
Children 0-17 years
Pregnant &lactating
Elderly (> 60yrs)
Persons with Disabilities
Adult poor (18-59 yrs.)
PATH TARGET GROUPS and BENEFICIARIES
Categories Targeted
Registered
Beneficiaries (July 2007)
NO. % NO. %
Children 0-17 years 168,000
71 182,039
74.89
Pregnant /LactatingWomen
11,000
5 819
0.34
Elderly 33,000
14 51,583
21.22
Persons withDisabilities (18-59 yrs)
19,000
8 5,633
2.32
Destitute (18-59 years) 5,000
2 2,978
1.23
Total 236,000
100 243,052
100
Programme Outcome: Programme Outcome: Administrative EfficiencyAdministrative Efficiency
Increased efficiency in programme delivery Increased efficiency in programme delivery including significant reduction in administrative including significant reduction in administrative costcostPayments made to beneficiaries in more Payments made to beneficiaries in more dignified manner (cheque payment through post dignified manner (cheque payment through post offices and Cash Cards)offices and Cash Cards)Social workers interact more closely with Social workers interact more closely with beneficiariesbeneficiariesBeneficiaries have access to wider range of Beneficiaries have access to wider range of social benefitssocial benefits
Programme Outcome: TargetingProgramme Outcome: Targeting
From the standpoint of redistribution and From the standpoint of redistribution and coverage of the poorest and most coverage of the poorest and most vulnerable PATH has been fairly vulnerable PATH has been fairly successful in terms of its targeting successful in terms of its targeting mechanism. mechanism. However, concerns in terms of errors of However, concerns in terms of errors of inclusion and exclusion have had to be inclusion and exclusion have had to be addressed. addressed.
PATH Relative to Other Social Programmes: Distribution of PATH Relative to Other Social Programmes: Distribution of Households Receiving Benefits by QuintileHouseholds Receiving Benefits by Quintile
ProgrammeProgramme Quintile 1Quintile 1
(Poorest)(Poorest)
Quintile 2Quintile 2 Quintile 3Quintile 3 Quintile 4Quintile 4 Quintile 5Quintile 5
(Most (Most Affluent)Affluent)
Food StampFood Stamp
School Fee School Fee AssistanceAssistance
Public AssistancePublic Assistance
Poor ReliefPoor Relief
SESPSESP
JADEPJADEP
PATHPATH
36%36%
20%20%
60%60%
35%35%
24%24%
9%9%
58%58%
26%26%
21%21%
17%17%
23%23%
32%32%
19%19%
22%22%
20%20%
25%25%
14%14%
22%22%
20%20%
42%42%
14%14%
12%12%
23%23%
5%5%
15%15%
16%16%
13%13%
5%5%
6%6%
11%11%
4%4%
4%4%
7%7%
17%17%
1%1%
PATH Beneficiaries by Quintiles and Area
QuintileQuintile KMAKMA OtherOtherTownsTowns
RuralRural All IslandAll Island CumulativeCumulative
1122334455Below PovertyBelow PovertyLineLine
767677161611007878
60602222131355006565
57572222151555115757
58582222141455115959
5858797994949999100100 n/an/a
PATH Beneficiaries Household Characteristics
Household CharacteristicHousehold Characteristic PATHPATHBeneficiaries Beneficiaries
(PATH (PATH 2003)2003)
Poor Jamaicans (SLC Poor Jamaicans (SLC 2002)2002)
AllAllJamaicaJamaica
(SLC 2002)(SLC 2002)
Household SizeHousehold Size11223-53-56 and over6 and over
99
7735354949
1313131337373636
2323191941411818
Presence of childrenPresence of children 8585 6767 5757
Presence of ElderlyPresence of Elderly 4141 3232 4444
Head of Household worked previous 12 monthsHead of Household worked previous 12 months 5757 6464 7272
Main material of outer wallsMain material of outer wallsWoodWoodBlock and steelBlock and steelOtherOther
464637371717
414141411818
292954541717
Has indoor tap/pipeHas indoor tap/pipe 99 1414 3838
Uses Pit toiletUses Pit toilet 8080 7070 4747
Has electricityHas electricityOwn:Own:TVTVWashing MachineWashing MachineCarCar
6464
5555 11 11
6767
52521122
8585
747410101313
Source: PATH Participant Survey 2003, JSLC 2002
Targeting Outcome: Exclusion Targeting Outcome: Exclusion Errors – Urban PoorErrors – Urban Poor
Beneficiary Identification System (BIS) has had Beneficiary Identification System (BIS) has had to be reviewed to address, among other issues, to be reviewed to address, among other issues, the disproportionate selection of households the disproportionate selection of households from urban centres including the Kingston from urban centres including the Kingston Metropolitan area. Metropolitan area.
This is linked to the complexity of having a single This is linked to the complexity of having a single poverty measurement instrument that can poverty measurement instrument that can adequately capture the distinguishing features of adequately capture the distinguishing features of rural versus urban poverty.rural versus urban poverty.
Distribution of PATH Beneficiaries Compared with Distribution of Poor and Share in Total Population
By Parish (Percentages)
Parish Percentage PATH
Beneficiaries in Parish Oct. 2006
Percentage Jamaica’s Poor in Parish (SLC
2002)
Parish Share in Total Population *
Kingston & St. Andrew 7.97 20.9 24.8
St. Thomas 5.06 5.1 3.5
Portland 5.11 5.0 3.1
St. Mary 7.39 5.9 4.3
St. Ann 8.48 12 6.4
Trelawny 3.87 4.4 2.8
St. James 5.54 4.5 6.8
Hanover 5.12 1.8 2.6
Westmoreland 7.63 5.1 5.4
St. Elizabeth 10.54 5.8 5.6
Manchester 9.12 8.9 7.1
Clarendon 12.97 12.6 9.2
St. Catherine 11.13 5.8 18.4
Total 100 100 100
*Based on Population Census 2001
Education OutcomeEducation Outcome
PATH has resulted in increased PATH has resulted in increased school attendanceschool attendanceThere is, however as yet, no There is, however as yet, no significant evidence that other significant evidence that other outcomes such as advancement to outcomes such as advancement to the next grade or test scores have the next grade or test scores have been impacted by participation in the been impacted by participation in the programme.programme.
Education Compliance RatesEducation Compliance RatesParishParish March-April 2007March-April 2007 May-June 2007May-June 2007
MalesMales FemalesFemales MalesMales FemalesFemales
KingstonKingston 8484 8787 8686 8989
St AndrewSt Andrew 8484 8888 8888 9191
St. ThomasSt. Thomas 8181 8383 8383 8787
PortlandPortland 7777 8383 8282 8686
St. MarySt. Mary 8080 8787 8787 9090
St. AnnSt. Ann 8080 8585 8585 8989
TrelawnyTrelawny 7878 8585 8484 8989
St. JamesSt. James 8282 8787 8181 8787
HanoverHanover 8383 8686 8282 8585
WestmorelandWestmoreland 8181 8585 8484 8888
St. ElizabethSt. Elizabeth 8080 8484 8383 8787
ManchesterManchester 8585 8989 8383 8686
ClarendonClarendon 8282 8686 8181 8585
St CatherineSt Catherine 8080 8383 8888 9090
Island AverageIsland Average 8181 8585 8484 8888
Health OutcomeHealth Outcome
There has been an increase in There has been an increase in preventative health visits for children preventative health visits for children in the programme in the programme Health care visits for children 0-6 Health care visits for children 0-6 years increased by 38%.years increased by 38%.As yet, there is no evidence of As yet, there is no evidence of improvement in health status as a improvement in health status as a result of the programmeresult of the programme
Supply ChallengesSupply Challenges
In respect of PATH compliance requirements a In respect of PATH compliance requirements a number of supply side difficulties have been number of supply side difficulties have been encountered in relation to the physical and encountered in relation to the physical and human capabilities of health facilities and human capabilities of health facilities and schools.schools.
Specific concerns include the need to expand Specific concerns include the need to expand primary health care capacity at the community primary health care capacity at the community level and increase secondary school places for level and increase secondary school places for the 15-17 years age group for which a gap still the 15-17 years age group for which a gap still exist.exist.
Need for Expanded Beneficiary Need for Expanded Beneficiary Support ProgrammesSupport Programmes
In terms of the beneficiary households, the high In terms of the beneficiary households, the high cost of transportation, especially in rural areas cost of transportation, especially in rural areas has impacted negatively on affordability of has impacted negatively on affordability of schooling. Special measures are therefore schooling. Special measures are therefore required to address this issue.required to address this issue.
Availability of subsidised lunches has been Availability of subsidised lunches has been found to be critical for attendance and in this found to be critical for attendance and in this regard, the School Feeding Programme needs regard, the School Feeding Programme needs to be strengthened.to be strengthened.
Slow Pace of Legislative Slow Pace of Legislative ChangeChange
The new social protection legislation, the The new social protection legislation, the National Assistance Act, which will repeal National Assistance Act, which will repeal the Poor Relief Law of 1886, is critical for the Poor Relief Law of 1886, is critical for the achievement of the goals of the Social the achievement of the goals of the Social Safety Net Reform but the pace of Safety Net Reform but the pace of legislative change has been slow.legislative change has been slow.Finalization of post project institutional Finalization of post project institutional structure depends on passage of new structure depends on passage of new legislation.legislation.
Legislative and Institutional Legislative and Institutional FrameworkFramework
National Assistance Board
National Assistance Department/
PAD DIVISON MLSS
MLSS Parish Offices
Local Authorities
Residential Facilities Homeless Shelters
Parish Appeals Committees
Coverage GapsCoverage Gaps
Incidence of poverty 14.8% in 2005Incidence of poverty 14.8% in 2005Poverty Line 2005Poverty Line 2005– Individual J$63,717Individual J$63,717– Family of five J$240,816Family of five J$240,816
Estimated 394,000 persons are below the Estimated 394,000 persons are below the poverty line poverty line PATH covers 236,000PATH covers 236,000Approximately 158,000 persons below the Approximately 158,000 persons below the poverty line are not covered by PATHpoverty line are not covered by PATH These are mainly the working poorThese are mainly the working poor
Working PoorWorking Poor
“ “ The working poor are individuals The working poor are individuals engaged in either paid or self employment engaged in either paid or self employment who belong to households with an adult who belong to households with an adult equivalent per capita household equivalent per capita household expenditure (or income) that falls below a expenditure (or income) that falls below a specified poverty line” (specified poverty line” (Labour Market and Labour Market and Poverty Studies Unit, University of the Poverty Studies Unit, University of the West Indies, Trinidad and TobagoWest Indies, Trinidad and Tobago))
Working Poor: Results of ILO StudyWorking Poor: Results of ILO Study
Males dominate the working poorMales dominate the working poorThe working poor are clustered in the 25 to 44 The working poor are clustered in the 25 to 44 age groupage groupThe working poor have lower levels of educationThe working poor have lower levels of educationThe working poor are employed in a variety of sectors, The working poor are employed in a variety of sectors, but most are found in agriculture, community and social but most are found in agriculture, community and social services, construction and wholesale/retail sales.services, construction and wholesale/retail sales.
The working poor work fewer hours than their The working poor work fewer hours than their non-poor counterpartsnon-poor counterpartsIn Jamaica 34% of the working poor are in In Jamaica 34% of the working poor are in agriculture.agriculture.
Coverage Gaps: Coverage Gaps: Elderly/IncapacitatedElderly/Incapacitated
Food Stamp programme catered to 88,641 Food Stamp programme catered to 88,641 elderly/incapacitated persons in 2002 when it was elderly/incapacitated persons in 2002 when it was merged with PATH.merged with PATH.PATH currently provides benefits for 51,583 elderly PATH currently provides benefits for 51,583 elderly persons and 5,633 adults with disabilities between 18-59 persons and 5,633 adults with disabilities between 18-59 years (57,216).years (57,216).Gap of over 32,000 exists in respect of number of elderly Gap of over 32,000 exists in respect of number of elderly and persons with disabilities receiving social assistance and persons with disabilities receiving social assistance benefits when both programmes are compared.benefits when both programmes are compared.It should be noted however, that some of the persons It should be noted however, that some of the persons receiving Food Stamps were not below the poverty line.receiving Food Stamps were not below the poverty line.
Distribution of National Insurance Scheme Distribution of National Insurance Scheme Pensioners (2007)Pensioners (2007)
Population Population cohortcohort
Total in Total in PopulationPopulation
Number Number NIS NIS PensionersPensioners
Percentage Percentage NIS NIS PensionersPensioners
60-6460-64 71,30071,300 9,4829,482 13.313.3
65-6965-69 62,20062,200 14,49514,495 23.323.3
70-7470-74 50,90050,900 17,14617,146 33.733.7
75and over75and over 94,60094,600 37,06537,065 39.239.2
TotalTotal 279,000279,000 78,18878,188 28.028.0
Coverage Gap: ElderlyCoverage Gap: Elderly
Population 60 and above Population 60 and above (2005)(2005)
279,000279,000
No. NIS PensionersNo. NIS Pensioners 78,18878,188
No. PATH Beneficiaries age No. PATH Beneficiaries age 60 and above60 and above
51,58351,583
Number Elderly covered by NIS Number Elderly covered by NIS and PATHand PATH
129,771129,771
Number Elderly not covered by Number Elderly not covered by NIS or PATHNIS or PATH
149,229*149,229*
% Elderly Population not% Elderly Population not
covered by NIS or PATHcovered by NIS or PATH
53.5053.50
**These persons are distributed across various social groupsThese persons are distributed across various social groups
Age Dimension of PovertyAge Dimension of Poverty
Children (0-18 years)are over-represented among the Children (0-18 years)are over-represented among the poor. They account for 52.3% of persons in poverty while poor. They account for 52.3% of persons in poverty while constituting 38.2% of the overall population.constituting 38.2% of the overall population.
Sixty one percent (61%) of the poor are under 25 years.Sixty one percent (61%) of the poor are under 25 years.
Consistent with their overall share of the population, the Consistent with their overall share of the population, the elderly (60 years and over) account for 9.6% of the poorelderly (60 years and over) account for 9.6% of the poor
Source: Economic and Social Survey of Jamaica 2001 Source: Economic and Social Survey of Jamaica 2001
Long Term Options for Expanded Long Term Options for Expanded Safety NetSafety Net
Welfare to work initiative focusing on persons in Welfare to work initiative focusing on persons in the economically active age-group in PATH the economically active age-group in PATH beneficiary and other poor households.beneficiary and other poor households.
Young school leavers – focus on school to work Young school leavers – focus on school to work transition process with link to Jamaica Youth transition process with link to Jamaica Youth Employment Network (JYEN) and initiatives.Employment Network (JYEN) and initiatives.
Social pension Social pension
Provisions for street and homeless personsProvisions for street and homeless persons
Welfare to WorkWelfare to Work
Training and job placement for members Training and job placement for members of beneficiary household in economically of beneficiary household in economically active age groupsactive age groups
Promotion of entrepreneurial activities Promotion of entrepreneurial activities through revamped rehabilitation grant through revamped rehabilitation grant programmeprogramme
Community based interventionsCommunity based interventions
Provision of range of referral servicesProvision of range of referral services
School to Work TransitionSchool to Work Transition
Support for PATH beneficiaries beyond age 17 Support for PATH beneficiaries beyond age 17 (8,000- 10,000 PATH School Leavers annually)(8,000- 10,000 PATH School Leavers annually) Assistance for further education (Government Assistance for further education (Government
guarantee of Students Loans)guarantee of Students Loans) Stipend for skills training/apprenticeshipStipend for skills training/apprenticeship Provision of Job placement servicesProvision of Job placement services Promotion of Entrepreneurship (grants or soft loans Promotion of Entrepreneurship (grants or soft loans
for income generating projects)for income generating projects) Training centre for Young persons with disabilities in Training centre for Young persons with disabilities in
Western JamaicaWestern Jamaica
School to Work TransitionSchool to Work Transition
Overall unemployment among the 14-29 Overall unemployment among the 14-29 years age group stands at 26.5% (35.05 years age group stands at 26.5% (35.05 for females and 18.9% for males)for females and 18.9% for males)
At risk youth to be targeted:At risk youth to be targeted:Youths in rural areas and inner-city Youths in rural areas and inner-city
communitiescommunitiesYouths with disabilitiesYouths with disabilitiesHIV/AIDS victimsHIV/AIDS victims
Social PensionSocial Pension
PATH implementation highlighted immense PATH implementation highlighted immense need for income support to the elderly poorneed for income support to the elderly poorSignificant coverage gap exists in respect of Significant coverage gap exists in respect of social insurance scheme with only approximately social insurance scheme with only approximately 28% of persons 60 and above qualifying for 28% of persons 60 and above qualifying for benefits.benefits.Social (non-contributory) pensions are a Social (non-contributory) pensions are a valuable and strategic element of a minimum valuable and strategic element of a minimum social security package. They also make social security package. They also make important contributions to older people’s important contributions to older people’s empowerment.empowerment.
Social PensionSocial Pension
Social pensions are an effective way of reducing Social pensions are an effective way of reducing income and other forms of poverty among older income and other forms of poverty among older people.people.Regular cash transfers also increase poor older Regular cash transfers also increase poor older people’s access to services, particularly health people’s access to services, particularly health care.care.Most older people live and share resources with Most older people live and share resources with younger family members, therefore social younger family members, therefore social pensions have a substantial impact on child well-pensions have a substantial impact on child well-being.being.Social pension can actually reduce rather than Social pension can actually reduce rather than create dependency.create dependency.
Street and Homeless PersonsStreet and Homeless Persons
Currently there are programmes Currently there are programmes implemented by the NGO community implemented by the NGO community which target both children and adults on which target both children and adults on the streets, but a comprehensive social the streets, but a comprehensive social policy framework and Government policy framework and Government intervention strategies are necessary for a intervention strategies are necessary for a greater impact.greater impact.
Street and Homeless PersonsStreet and Homeless Persons
In the institutional arrangements for the Social In the institutional arrangements for the Social Safety Net Reform, the issue of homeless/street Safety Net Reform, the issue of homeless/street people is one of the designated areas of people is one of the designated areas of responsibility for the Local Authorities. responsibility for the Local Authorities.
However, there have been discussions as to However, there have been discussions as to whether these persons should also be targeted whether these persons should also be targeted for cash transfers under PATH, after a process for cash transfers under PATH, after a process of settlement in half-way houses and eventually of settlement in half-way houses and eventually permanent dwellings. permanent dwellings.
Street and Homeless PersonsStreet and Homeless Persons
Children living on the streets have also Children living on the streets have also posed a particular difficulty as it is not posed a particular difficulty as it is not prudent to provide them with cash which prudent to provide them with cash which could be used to support delinquent could be used to support delinquent behaviour patterns. behaviour patterns. Based on the design of PATH, they would Based on the design of PATH, they would need to be reconnected with a family unit need to be reconnected with a family unit in order to be assessed for benefits and in order to be assessed for benefits and meet programme conditionalities. meet programme conditionalities.
The EndThe End
