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• The Pantawid Pamilya conditional cash transfer program reached more than 4.4 million poor families in 2014. • Rigorous impact evaluation in 2012 and 2014 confirms that Pantawid Pamilya improves access to health services, keeps children in school, reduces child labor, and does not encourage dependency. • The Listahanan poverty targeting system is among the best in the world and ensures that benefits reach the poorest. • ADB’s Social Protection Support Project supports grants to nearly 640,000 poor households in selected areas. • Policy and operational challenges include adjusting the benefit levels to account for inflation, and ensuring sufficient and high quality education and health services. ADB BRIEFS NO. 38 July 2015 KEY POINTS SOCIAL PROTECTION BRIEF The Social Protection Support Project in the Philippines ISBN 978-92-9257-026-2 (Print) ISBN 978-92-9257-027-9 (e-ISBN) ISSN 2071-7202 (Print) ISSN 2218-2675 (e-ISSN) Publication Stock No. ABF157497 PIONEERING POLICY REFORMS FOR POVERTY REDUCTION Despite accelerating economic growth in the mid-2000s, poverty incidence in the Philippines remained stubbornly high and even increased during some periods. One of the key causes of poverty was chronic underinvestment in human capital, especially health and education. As a result, the Philippines lagged in meeting the Millennium Development Goal targets for universal primary education, maternal mortality, and access to reproductive health services. Past government efforts to address poverty and improve human development were compromised by low spending in the social sectors (particularly in social protection), weak poverty targeting systems, and a lack of policy and institutional coordination, with several departments undertaking uncoordinated and sometimes ineffective programs. To respond to these challenges, the government set out to strengthen its social protection system. The reform agenda, championed by the Department of Social Welfare and Development (DSWD), included piloting and expanding a conditional cash transfer (CCT) program; improving poverty targeting; improving monitoring and evaluation; and securing adequate and predictable social protection financing by consolidating programs and gradually expanding the budget. The CCT program became the cornerstone of social protection reforms. The Pantawid Pamilyang Pilipino Program (Bridging Program for the Filipino Family) provides cash grants to poor households based on their fulfillment of health and education related conditions. From a small pilot with 6,000 families in 2007, the program grew first slowly and then very rapidly to cover 4.46 million families as of the end of 2014, Karin Schelzig Senior Social Sector Specialist Human and Social Development Division Southeast Asia Department

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Page 1: KEY POINTS SOCIAL PROTECTION BRIEF - Asian … · access to health services, keeps children in school ... involved cooperation between DSWD and ADB ... social protection programs,

• ThePantawid Pamilyaconditionalcashtransferprogramreachedmorethan4.4 millionpoorfamiliesin2014.

• Rigorousimpactevaluationin2012and2014confirmsthatPantawid Pamilyaimprovesaccesstohealthservices,keepschildreninschool,reduceschildlabor,anddoesnotencouragedependency.

• TheListahananpovertytargetingsystemisamongthebestintheworldandensuresthatbenefitsreachthepoorest.

• ADB’sSocialProtectionSupportProjectsupportsgrantstonearly640,000poorhouseholdsinselectedareas.

• Policyandoperationalchallengesincludeadjustingthebenefitlevelstoaccountforinflation,andensuringsufficientandhighqualityeducationandhealthservices.

ADBBRIEFSNO. 38

July 2015

KEY POINTS SOCIAL PROTECTION BRIEFThe Social Protection Support Project in the Philippines

ISBN978-92-9257-026-2(Print)ISBN978-92-9257-027-9(e-ISBN)ISSN2071-7202(Print)ISSN2218-2675(e-ISSN)PublicationStockNo.ABF157497

PIONEERINg POLICY REFORmS FOR POvERTY REduCTION

Despiteacceleratingeconomicgrowthinthemid-2000s,povertyincidenceinthePhilippinesremainedstubbornlyhighandevenincreasedduringsomeperiods.Oneofthekeycausesofpovertywaschronicunderinvestmentinhumancapital,especiallyhealthandeducation.Asaresult,thePhilippineslaggedinmeetingtheMillenniumDevelopmentGoaltargetsforuniversalprimaryeducation,maternalmortality,andaccesstoreproductivehealthservices.

Pastgovernmenteffortstoaddresspovertyandimprovehumandevelopmentwerecompromisedbylowspendinginthesocialsectors(particularlyinsocialprotection),weakpovertytargetingsystems,andalackofpolicyandinstitutionalcoordination,withseveraldepartmentsundertakinguncoordinatedandsometimesineffectiveprograms.Torespondtothesechallenges,thegovernmentsetouttostrengthenitssocialprotectionsystem.

Thereformagenda,championedbytheDepartmentofSocialWelfareandDevelopment(DSWD),includedpilotingandexpandingaconditionalcashtransfer(CCT)program;improvingpovertytargeting;improvingmonitoringandevaluation;andsecuringadequateandpredictablesocialprotectionfinancingbyconsolidatingprogramsandgraduallyexpandingthebudget.TheCCTprogrambecamethecornerstoneofsocialprotectionreforms.

ThePantawid Pamilyang PilipinoProgram(BridgingProgramfortheFilipinoFamily)providescashgrantstopoorhouseholdsbasedontheirfulfillmentofhealthandeducationrelatedconditions.Fromasmallpilotwith6,000familiesin2007,theprogramgrewfirstslowlyandthenveryrapidlytocover4.46millionfamiliesasoftheendof2014,

Karin SchelzigSeniorSocialSectorSpecialistHumanandSocialDevelopmentDivisionSoutheastAsiaDepartment

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ADBBRIEFSNO.38

orabout21%ofthetotalpopulation.Ofthe63countriesthathaveaCCTprogram,Pantawidisamongthelargest.ThePantawidbudgetofPHP62.6billionin2014was0.5%ofGDP,upfrom0.1%in2010.

ThePantawidcashgrantshelppoorandvulnerablefamiliesmakeendsmeet,buttherealpovertyreductiongainsareexpectedinthefuture,whenhealthierandmoreeducatedchildrenfinishschoolandjointheworkforce.CCTsareaformofresults-basedfinancingthataimtopreventthetransmissionofpovertyfromparentstotheirchildren.Thecashhelpscoverthedirectandindirectcostsofaccessinghealthcareandschooling.Italsoreducestheincentivetotakechildrenoutofschoolsothattheycanworktosupplementthefamily’sincome.ThePhilippines’CCTprogramuniquelyrequiresparentstoattendmonthlyfamilydevelopmentsessionsasoneofthecoreconditions.Thesesessionsfocusonawiderangeoftopicsincludingresponsibleparenthood,healthandnutrition,education,activecitizenship,disasterpreparedness,andmore.

WhAT dO FAmILIES hAvE TO dO TO gET ThE gRANTS?

ThePantawid Pamilyaconditionsare:

• Pregnantwomenmusthavepre-andpost-natalcheckups,andbirthsshouldbeinahealthfacilityorattendedbyatrainedhealthprofessional

• 0-5yearoldchildrenmustreceiveregularhealthcheck-upsandvaccines

• Elementaryschoolchildrenmustreceivedewormingpillstwiceperyear

• Children3-5mustenrollinadaycareprogramorkindergartenandmaintainan85%attendancerate

• Children6to18mustenrollinelementaryorsecondaryschoolandmaintainan85%attendancerate

• Parentsmustattendmonthlyfamilydevelopmentsessions

hOW muCh dO FAmILIES RECEIvE?

HouseholdscanreceivePHP500permonthforcomplyingwiththehealthconditions(whichincludesthefamilydevelopmentsessions).Foreducation,eachchildindaycareorelementaryreceivesPHP300permonthandeachchildinhighschoolreceivesPHP500permonth.Amaximumof3childrenperhouseholdmayreceivetheeducationgrantfor10monthsoftheschoolyear.ThemaximumgrantwouldbeuptoPHP2,000permonthforafamilywith3childrenregularlyattendinghighschoolbutaveragegrantsaremuchlowerinpractice,sincefamilycompositionvariesandnotallhouseholdsmeetalltheconditionseverymonth.HouseholdsactuallyreceivedanaverageofaboutPHP8,300peryearin2013,equivalenttoabout$16permonth.

PROjECT dESIgN, COvERAgE, ANd ImPLEmENTATION

ADBapprovedthe$400millionSocialProtectionSupportProjectin2010.1Theexpectedimpactisreducedincomepovertyandnon-incomepoverty.TheexpectedoutcomeisincreasedconsumptionandincreasedutilizationofeducationandhealthservicesamongPantawidfamilies,especiallywomenandchildren.Thefouroutputssupportanefficientnationaltargetingsystemtoselectpoorhouseholds,conditionalhealthandeducationgrants,bettercapacityforCCToperations,andimprovedsystemsformonitoringandevaluation.

TheoriginaldesignaimedtosupportPantawidoperationsandtopartiallyfinancegrantstoabout582,000householdsin436municipalitiesand37citiesin53provinces.In2014thecoveragewasexpandedto517municipalitiesand53citiesin70provinces.Asoftheendof2014,ADBfinancingsupportedabout637,300poorhouseholds.Theprojectalsosupportsthenationalsocialprotectionreformagendathroughtechnicalassistance.

Guidedbyahighlevelnationaladvisorycommittee,DSWD’snationalprogrammanagementofficeand17regionalofficesareresponsibleforimplementingPantawid.About12,000fieldfacilitators(calledmunicipalandcitylinks),workwiththeparticipatinghouseholds,whichareorganizedintoparentgroupscoordinatedbyparentleaders.Localgovernmentunitshaveeachdesignatedatleastonefull-timestafftosupportPantawid.Variousmanagementinformationsystemssupportprogramimplementationincludingcommunityregistration,complianceverification,beneficiaryupdate,andgrievanceredresssystems.Theprojectincludesregularspotchecksofimplementationundertakenbyanindependentresearchinstitute,andtheCommissiononAuditconductsregularanddetailedauditsofPantawid.MultipleroundsofrigorousandnationallyrepresentativeimpactevaluationhaveinvolvedcooperationbetweenDSWDandADB,Australia,theWorldBank,thePhilippineInstituteforDevelopmentStudies,andotherimpactevaluationtechnicalworkinggroupmembers.

ARE ThE CCTS WORKINg?

Mostoftheproject’soutputindicatorshavebeenmetorexceededandtheoutcomeofincreasedconsumptionandutilizationofeducationandhealthservicesisexpectedtobeachieved.RigorousimpactevaluationfindingsincludethatPantawidimproveschildren’saccesstohealthservices,keepschildreninschool,andreduceschildlabor.2OtherimportantfindingsarethatPantawiddoesnotencouragedependency(adultscontinuetoseekwork)andthatPantawidparentsaremoreoptimisticabouttheirchildren’sfuturethannon-Pantawidparents.Self-ratedpovertyamong

1 ADB.2010.ReportandRecommendationtothePresidentontheSocialProtectionSupportProjectinthePhilippines(PHI-2662).Manila.2 Impactevaluationreportsareavailableatwww.dswd.gov.ph

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TheSocialProtectionSupportProjectinthePhilippines

familiesnearthepovertylineis7percentagepointsloweramongPantawidfamiliesthannon-Pantawidfamilies.Pantawid’stargetingaccuracytothepoorestfamiliesisconsideredamongthebestintheworld.3TheListahanandatabaseofpoorfamiliesisbeingupdatedin2015.

WhAT mORE CAN BE dONE?

• BenefitlevelshavenotchangedsinceDSWDdesignedtheprogramin2006.Thevalueofthecashgrantshaserodedsignificantlyinrealterms,andhasdeclinedasashareofpoorhouseholds’averageincome.Policydialogueisunderwayonadjustingthegrantsforinflationin2016.

• PublicperceptioncanbeinfluencedbynegativemediacoverageclaimingPantawidisa‘dole-out’thatcausesdependency,despitestrongevidencetothecontrary.Paymentsaremadeonlyoncecomplianceisverified,complianceratesareveryhigh,andpeoplearenotquittingjobsbecausetheyreceivegrants.Promotingabetterunderstandingoftheimpactevaluationevidencecancountersuchclaims.

• MorepublicoutreachcanalsohelptoclarifythattherecentslightincreaseinthenationalpovertyincidenceisnotanindicatorthattheCCTisnotworking.ThepovertyincidencemayhavebeenworsewithouttheCCTsgiventheimpactofcatastrophicnaturaldisastersandfoodpriceinflationin2013.Thereductionofpovertyandinequalityarelong-termimpactsthatcanonlybeexpectedwhenhealthierandmoreeducatedPantawidchildrengrowuptojointheworkforceandgetbetterjobs.Thegrantaloneisnotenoughtobringmanyfamiliesoverthepovertyline,thoughitdoesreducetheincomegap.

• Therearechallengesinensuringenoughschools,fullimmunizationanddeworming,andpre-andpost-natalcareanddeliveryinhealthfacilities.SomeofthesechallengesarerelatedtothesupplyofeducationandhealthservicesthatarebeyondPantawid’scontrol,whileothersmaybearesultoffamiliesnotfullyappreciatingtheimportanceofparticularconditions.ThiscallsformoreactivecoordinationwiththeDepartmentsofEducationandHealth,andforstrengtheningthefamilydevelopmentsessionstoreinforcetheimportanceofthehealthandeducationconditions.

About the Asian Development BankADB’svisionisanAsiaandPacificregionfreeofpoverty.Itsmissionis tohelpitsdevelopingmembercountriesreducepovertyandimprovethequalityoflifeoftheirpeople.Despitetheregion’smanysuccesses,itremainshometothemajorityoftheworld’spoor.ADBiscommittedtoreducingpovertythroughinclusiveeconomicgrowth,environmentallysustainablegrowth,andregionalintegration.

BasedinManila,ADBisownedby67members,including48fromtheregion.Itsmaininstrumentsforhelpingitsdevelopingmembercountriesarepolicydialogue,loans,equityinvestments,guarantees,grants,andtechnicalassistance.

ADBBriefsarebasedonpapersornotespreparedbyADBstaffandtheirresourcepersons.Theseriesisdesignedtoprovideconcise,nontechnicalaccountsofpolicyissuesoftopicalinterest,withaviewtofacilitatinginformeddebate.TheDepartmentofExternalRelationsadministersthe series.

TheviewsexpressedinthispublicationarethoseoftheauthorsanddonotnecessarilyreflecttheviewsandpoliciesofADBoritsBoardofGovernorsorthegovernmentstheyrepresent.ADBencouragesprintingorcopyinginformationexclusivelyforpersonalandnoncommercialusewithproperacknowledgmentofADB.Usersarerestrictedfromreselling,redistributing,orcreatingderivativeworksforcommercialpurposeswithouttheexpress,writtenconsentofADB.AsianDevelopmentBank6ADBAvenue,MandaluyongCity1550MetroManila,PhilippinesTel+6326324444Fax+6326362444

www.adb.org/publications/series/adb-briefs

Inthispublication,“$”referstoUSdollars.

ADBSocialProtectionBriefsaimtohighlightachievementsofADBprojectsthatsupportsocialprotectioninitiativesindevelopingmembercountries.

BriefpreparedbyADBSeniorSocialSectorSpecialist:KarinSchelzig

Creative Commons Attribution 3.0 IGO license (CC BY 3.0 IGO)©2015ADB.TheCClicensedoesnotapplytonon-ADBcopyrightmaterialsinthispublication.

3 WorldBank.2015.TheStateofSocialSafetyNets2015.Washington,D.C.


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