Working Groups - Participants’ Presentations
Group 2
Targeting: How far, how accurate is enough? Lessons from Bangladesh, Ethiopia, Malawi, Nigeria, Papa New Guinea, Swaziland and Zambia
Md. Manzoor Alam bhuiyan, A K M Fazluz Zoha, Farid Ahmed Mollah, Andenet Degefa Bedada, Martha Chiwanda, Olonbayar Ravdandorj, Abubakar Atiku Musa, Koney Samuel, Gilis Tom, Melusi Zwane, Lisa Hjelm, Evelyn Mulenga, Nasiba Nyambe
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Introduction
Why target programs?
• To increase the effectiveness of programs by concentrating limited resources to the poorest and most vulnerable in the population.
Effective targeting needs to:
(i) Target and include the right people according to the objectives of the programme;
(ii) Be transparent and consistent;
(iii) Be cost effective
Purpose:
• To provide examples of how programs in Bangladesh, Ethiopia, Malawi, Nigeria, Papa
New Guinea, Swaziland and Zambia are targeted and the efficacy and challenges related
to targeting
Introduction
Examples of targeting criteria covered in our example countries :
• Geographical: Swaziland (areas with high prevalence of poverty and vulnerable children)
• Categorical: Papa New Guinea (targeting youth16-35 years)
• Means tested: Bangladesh (land ownership and poverty); Nigeria (proxy means test)
• Food insecurity: Ethiopia (continuous food shortage or loss of assets)
• Community based: Malawi (validation of selected households: 10% poorest)
• Self selection: Zambia (women register themselves and form groups/clubs in the Women
Empowerment Programme)
Country Example 1: Bangladesh
Program: Vulnerable Group Development (VGD) Targeting criteria:
• Landless/having less than 0.05 acres of land;
• Poor & Vulnerable Female household;
• Beneficiaries of other public SSNP excluded;
Targeting process:
• The beneficiaries are primary Selected by Union Parishad Committee, that is the lowest administrative unit of the local Government of Bangladesh.
Coverage:
• Number of beneficiaries: 1.0 million (2016-17)
• VGD provides 30 kg rice per beneficiary per month for a 24 month cycle.
• It Provides tainting on income generating activities
• Savings BDT 200 per beneficiary per month for capital formation.
Motivation for type of targeting:
• We know, 49.7% of our total population is women. Bangladesh has made substantial progress in poverty alleviation. But a section of our women is still living bellow poverty line. If we want to develop our country, we have to eradicate poverty from our country at an accelerated rate.
• VGD program selects beneficiaries from the targeted women group considering age, income level, assets and family burden.
• It is a large scale social safety net (SSN) program aimed at uplifting the socio-economic conditions of the poor and destitute women in the rural areas of Bangladesh.
• The program has been in existence for 42 years, having commenced in 1974.
Efficacy of that type of targeting in the country context:
• The specific objectives are to assist the rural poor women headed family, Strengthen the morale of the poor Women by providing food Support, improve malnutrition, enhance livelihoods and improve their lower social status;
Challenges:
• Eligibility criteria is not strictly followed;
• It may lead to supply of inferior quality of food grains.
Country Example 2: Ethiopia
Program:
Productive Safety Nets Programme
Targeting criteria:
• The household should be the member of that community
• The HH should be CFI who faced continuous food shortage for at least 3 consecutive years or above, and
• HH who suddenly become more food insecure as a result of a severe loss of assets and are therefore unable to meet their food needs
Targeting process:
• Administrative targeting focused on determining the number of PSNP clients in a specific geographic settings.
• Community – based approaches is used for the identification of HH’s by the community FSTF , and the verification of clients in a public meeting in which the entire PSNP client list is read out , discussed, and finally agreed
Motivation for type of targeting:
• Scientific (Poverty map used for Geographical targeting) + political consideration to ensure spread
• Administrative targeting focused on determining the number of PSNP clients in a specific geographic settings.
• The community FSTF & verification of clients in a public meeting in which the entire PSNP client list is read out , discussed, and finally agreed
Efficacy of that type of targeting in the country context:
• Retargeting from year to year for minimized error of inclusion and exclusion.
• At all steps of the process there is validation to ensure error of exclusion and inclusion is reduced .
• To replace graduation client by used of retargeting clients Challenges:
Dependence syndrome
The relationship of beneficiaries
Lack of coordination stakeholders
Budget shortages
Climate changes especial on lowland areas
Country Example 3: Nigeria
Program
NATIONAL SOCIAL SAFETY NETS PROGRAMME – NASSP
Targeting
• Geographical Targeting (with Political Spread consideration)
• Community-Based Targeting
• Proxy Means Test
Targeting Process:
• Targeting the 30% poorest LGAs from the States with consideration for political spread
• Constitution of Local government CBT Team to facilitate identification of poor and vulnerable HHs by communities
• Training of CBTT on Community-Based Targeting Process
• Identification of poor HHs by communities through FGD sessions
• Subject Database generated through PMT
Motivation for type of targeting:
• Scientific (Poverty map used for Geographical targeting) + political consideration to ensure spread and buy in
• Ownership – subjective knowledge of communities used to identify poor HHs
• PMT-ensures ranking of the poor and also validates the subjective choice of the HHs
Efficacy of that type of targeting in the country context:
• Acceptability of the targeting by all stakeholders of the process
• At all the stages of the process there is validation to ensure error of exclusion and inclusion is reduced tremendously
Challenges:
• Delays due to release of budgets for the process by counterpart Ministry
• Capacity of the LGAs to facilitate the process despite the training
•
Country Example 4: Malawi
Program:
Social Cash Transfer Programme (Mtukula pakhomo) Targeting criteria:
Community based targeting Categorical
Households headed by elderly persons Households headed by children
Households headed by persons with disability Households headed by chronically ill persons
Targeting process:
Community sensitization, training of CSSCs, EW and Chiefs, data collection 12%, data entry, community validation of households, District council validation and approval of households,
Ranking is done based on PMT
10% poorest households in the population are approved by district social support committee together with the community social support committee then beneficiaries are ready for enrolment and benefits
Motivation for type of targeting:
- Reduce poverty and hunger among extreme-poor and labour-constrained households
-Increase school enrolment among the children in the beneficiary households -Improve nutrition at household level through regular cash transfers
-18 districts already targeted and targeting is underway in 10 remaining districts.
Household target is 319,000. Currently 170,000 already targeted and targeting is still under way for the remaining households
Efficacy of that type of targeting in the country context:
-Targeting the extreme poor households and 80% of the household heads are women hence promoting nutrition at household level
-The country has now moved to the integrated and unified targeting process in the world bank funded districts, to serve multiple social support programmes with varying thresholds of eligibility.
Challenge
-Inclusion and Exclusion errors -Corruption by CSSCs
-Low educational level of CSSCs
Duplication of benefits by beneficiaries in various social protection programmes -10% coverage for the ultra poor and labour constrained households is limited such that targeting is a challenge to implement due to wide spread, deep and dynamic poverty
Way forward, adoption of the harmonizing targeting to reduce duplication and minimizing targeting costs.
Use of EW during data collection.
Use of mobile tablets
Country Example 5: Papa New Guinea
Program:
Urban Youth Employment Social Safety Net
Eligibility Targeting Criteria for Enrolment & Registration
• Youth aged between 16 and 35 years
• Youth that never been at school for at least six months study; their lack of equity in and access to the formal primary and secondary education system
• Out of school or not in paid job for at least six months, that they may have completed their formal education but still not been integrated into the labour market because of their lack of equity to access the labour market
• Living in National Capital District Capital City of Port Moresby for the last 12 months and have limited social and economic opportunities.
• Setting a general target of having up to a minimum 40% of trainees be young women; ii) ensuring that the socialization campaign will highlight and address the need for young women’s participation and explain the types of benefits the project provide them.
Targeting Eligibility Screening Process & Cycle
• Geographical Communication & Awareness Target – Eligibility Interview Screening Survey Instruments Self Proxy means test– Registration with ID photos, Mobile Phone and Bank Accounts – MIS - 5 Days Basic Life Skills Trainings – Public Works Program, Pre-Employment Training, On The Job Training – Mentoring, Coaching, referral and Exit Graduations
Motivation for type of targeting:
Temporary Income, Skills Training and employability Efficacy of that type of targeting in the country context:
• High demand but low intake due to limited space for each cycle.
• Still creating impact among the targeted groups that have gone on to formal and informal employment.
• Project able to achieved 80% success rate of youth exit graduation.
• All the mechanism and processes system in place for potential scale up
• Lift the profile of the project when 1,000 youth manpower participated in the FIFA Under 20 Soccer World Cup last year creating history.
Challenges:
1) Future Funding Sustainability of the Project by the Government and implementing agency remains a huge challenge after donor funds are fully disbursed.
2) Government has created a huge demand for youth participants with limited space for eligible participants and verification of adult youth over 35 age.
3) Managing youth high expectations
4) Managing gender needs of young girls and mothers (child care scoping and study being undertaken),
5) Tracking of youths who have graduated from the program and are earning income or on fulltime employment.
Country example 6: Swaziland
Program:
OVC-CT Targeting:
Chronic and extremely poor households with orphan and vulnerable children. 1) Geographic Targeting, 2) Community Based Targeting, and 3) Proxy Means Test
Targeting process:
Motivation for type of targeting:
. Its to providing regular and predictable cash transfers to chronic and extreme poor house hold having Orphan and vulnerable children in order to promote fostering and human capital if the children.
Efficacy of that type of targeting in he country context:
Increase enrolment and attendance of OVC in schools and reducing drop-outs
Promoting human capital development through adequate care to targeted OVCs through improving consumption of food in the chronic and extremely poor households
. Promoting civil registration of OVCs i.e birth registration and obtaining Personal Identity numbers (PINs).
Challenges:
Duplication of support to household by the various stake holders as a response to the prevailing drought situation.
Lack of budget and staff for targeting exercise and limitation of time allocated for targeting
1. Geographic Targeting
• Poverty Maps
• Data Analysis
• Developmnet of Criteria
• Selection of Constituencies
2. Community based Targeting
• Formation of Community Committees
• Capacity building of CCs
• Identification of Poor HH to be surveyed
3. Proxy Means Test based Targeting
• Planning and Managing the HH Survey
• HH Survey Staffing (Targeting Teams):
• Training of Survey Staff/Targeting Teams:
• Public information campaign
• Data collection process for HH survey
• Systemization of Information
• PMT formula application
• Recertification
Country example 7: Zambia
Program:
Micro-credit Scheme to Women (Village Bank) Targeting Criteria:
• Categorical – only vulnerable women (in low capacity households)
• Self selection – women who have the ability to engage in business or are already engaged in business (women that are fit to work)
• Geographical (in only 52 Districts out of the 105 districts in Zambia) Targeting process:
• The extension workers (Community Development Assistants) conduct community sensitisations. Women enrol/apply at the Government Offices in the sub-District. Extension worker endorses on the application to state whether eligible or not. List of eligible applications sent to the District.
District Village Bank Committee selects the women to benefit and cash is given to the women to engage in income generating activities. Women are provided with the loans twice in a year and then they graduate
Motivation for type of targeting:
• Concentration in half of the Districts in Zambia so as to be cost-effective and not spread resources thinly. Vulnerability levels for Women are high in the rural areas. Extension staff that are available in the rural areas would be ideal to use in the identification of these women including the monitoring of activities in the communities
Efficacy for that type of targeting in the country context:
• Equal chance for all vulnerable women to participate. Poverty levels are high, currently at 60%
and mostly women are the ones affected
• Low implementation costs as not much funds are spent on the outreach and enrolling the women. Therefore most of the resources are spent on the provision of the collateral free loans. Most of the women live in rural and remote areas.
• New program has been designed with multiple targeting criteria to include the PMT so as to reduce the inclusion errors. This is the Girls Education and Women Empowerment and Livelihoods (GEWEL) Project that is supported by the World Bank
Challenges:
• Inclusion errors are experienced as eligibility criteria is not strictly followed
• Lack of a Management Information System to track the beneficiary enrolment and graduation
• Double-dipping by the beneficiaries is prevalent amongst the various social safety net programs in Zambia. Same women benefit twice
