Building Effective Linkages in Social Protection Systems
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This document discusses building effective linkages between social protection systems and gender-based violence (GBV) services. It provides examples of cash transfer programs that have integrated GBV-sensitive components. The document motivates linking systems by explaining the gendered nature of poverty and vulnerability. It defines system linkages as connections between a cash transfer program and complementary services from another agency. Examples discussed include Ghana's LEAP program, Chile Solidario, Mozambique's Child Grant, Zambia's GEWEL project, and Turkey's CCTE for Syrian refugees. All show promise, but also challenges in meeting demand for GBV services. The conclusion reflects on lessons for advocating strengthened national systems and managing the tradeoff between integrated systems
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Building Effective Linkages in Social Protection Systems
- 1. Building Effective Linkages in Social Protection Systems Tia Palermo, Ph.D. PRESTO and University at Buffalo GBV and Cash Learning Event, January 27-28, 2022
- 3. Systems linkages: motivation • Gendered patterning of risk to poverty • sustainable poverty reduction requires addressing the underlying causes and vulnerability and drivers of inequality (Jones, 2021) • GBV is a critical source of gendered vulnerability • Integration of cash transfer programmes with other services has the potential to reduced gendered vulnerability & poverty • Systematic creation of linkages between demand for GBV services and supply Jones, N. (2021). Gender and social protection. Handbook on Social Protection Systems. E. Schuring and M. Loewe, Edward Elgar Publishing: 337-348. 3
- 4. Systems linkages: definition • External to the cash transfer system/program: Provides complementary support via explicit linkages into services provided by another sector/agency Figure: Roelen, K., et al. (2017). "How to Make ‘Cash Plus’ Work: Linking Cash Transfers to Services and Sectors." UNICEF Office of Research. 4
- 5. Why systems? • Sustainable • Scaled or scalable • Line items in national budgets • Under purview of national ministries • More extensive reach to rural & remote populations • Can address multidimensional needs (and more sustainable poverty reduction) when linked to cash 5
- 6. Examples of Social Protection & GBV Linkages 6
- 7. Ghana’s Livelihood Empowerment Against Poverty (LEAP) 1000 7 • Aim: Alleviate short-term poverty and encourage long-term human capital development • Implementer: Government • Target group: extremely poor households with pregnant women or women with a child <1 year • Program components: • Bi-monthly cash transfer [approx. GH₵76 (EUR14)] • Premium fee waiver for National Health Insurance Scheme (NHIS) Impacts on GBV • Decreased overall IPV experience among monogamous sample • Decreased frequency of IPV among monogamous & polygamous sample • Pathways of impact: • Reduced household tensions • Empowered / “counted as a person in the community” • No evidence between increased health-care seeking and support for IPV (barriers to disclosure)
- 8. Chile Solidario • Aim: Reduce poverty and build social capital through multi-sectoral and integrated approach • Implementer: Government (2002- 2012) • Components: • Cash transfer + additional subsidies • Psychosocial support + home visits • Preferential access to social programmes GBV-sensitive linkages • ‘Family accompaniment’ / preferential access into national social assistance programs • programmes to curb domestic violence; strengthening of the bond between parents and children in situation of risk. • Well-trained social workers crucial intermediary role & help navigate social service network Roelen, K., et al. (2017). "How to Make ‘Cash Plus’ Work: Linking Cash Transfers to Services and Sectors." UNICEF Office of Research. Veras Soares, F. and E. Silva (2010). Conditional cash transfer programmes and gender vulnerabilities in Latin America: case studies from Brazil, Chile, and Colombia. London, Overseas Development Institute. 8
- 9. Mozambique’s Child Grant 0-2 [“cash + care”] 9 • Start-up phase beginning in 2019 in Nampula province led by Ministry of Gender, Children and Social Action (MGCAS) • Targets female caregivers of children 0-2 years • Three components: • UCT ( ~ 10 USD / month) • Family support via case management for families with highest protection risks • Community-level SBCC for nutrition • Impact evaluation + process evaluation by AIR and UNICEF Innocenti shows promising results (not yet public)
- 10. Zambia’S GEWEL Project • Aim: enhance girls’ and women’s well- being through secondary education and livelihoods support • Implementer: Government • Problem: Participation may put girls at increased risk of GBV GBV-sensitive grievance mechanism • Survivor safety and robust M&E • Financial support to survivors • Multiple reporting channels • Women focal points in community • Specialized NGO, Lifeline/Childline Zambia, to provide access to its existing national hotline for GBV and other child protection issues Botea, I., et al. (2021). Safety First: How to leverage social safety nets to prevent Gender Based Violence. Washington, DC, World Bank. 10
- 11. • Launched in 2017 to align with the government of Turkey’s CCTE • Cash component: Provides bi-monthly payments varying by gender & grade level to refugee households conditional on 80% monthly attendance • Child protection component: Poor attendance triggers referral to Turkish Red Cross community centers and outreach teams for home visitation (information, referrals and additional support) • Evaluation by AIR finds child protection component reinforced schooling messages and helped address multiple vulnerabilities – however demand for services greatly outpaced capacity of outreach teams Source: Ring et al. 2020. Programme Evaluation of the Conditional Cash Transfer for Education (CCTE) of Syrians and Other Refugees in Turkey. AIR: https://www.air.org/sites/default/files/UNICEF-Turkey-CCTE-Evaluation-Report- September-2020.pdf 11 Turkey’s Conditional Cash Transfer for Education (CCTE) for Syrian Refugees In reference to the added value of the child protection component: “I think the CCTE will be more effective in certain situations like if a child is having trouble at school because of a hearing disability. The child protection teams could help kids get a hearing aid and the child is able to attend school again. I expect they have more success than if the child has psychosocial issues … or would require specialized services over a long period of time.” ~ UNICEF Child Protection staff
- 12. Conclusion • Services for GBV response are limited in availability and quality on the ground in many LMICs (Botea et al. 2021). • SSN program may not be directly responsible for or able to put these services in place • But, there is a need to advocate for the strengthening of national systems. • Limited GBV system linkage examples to replicate • What lessons can be learned from other sector systems linkage? • Vertical communication of design intent at national, district, and local level • Inter-agency MOUs • In early phases; is there a tradeoff between building integrated systems (i.e., with health sector or social welfare) v. standalone services with more expertise in GBV response (i.e., NGOs) • How can these work together? 12 To be explored in breakout session
- 13. Preview of resources 13 Attend the breakout session facilitated by Dina Hanania and me to learn more!
- 14. Introducing the GBV Pocket Guide
Hinweis der Redaktion
- The reason we need to think about systems linkages is because there is a gendered patterning of risk to poverty GBV is a critical source of this risk Therefore, sustainable poverty reduction requires intersectoral approaches Integration of cash transfers with other services has the potential to reduce these risks: One type of linkages is between GBV services, but others might include to health or protection sectors, etc.
- A program can be designed with multiple components including cash and GBV response. However, this is not likely to be sustainable or scalable. To reach the broadest population coverage, it’s important to strengthen and link existing systems.
- The first program I want to highlight is one whose objectives did not include violence reduction but did have several gender-sensitive components. The Ghana LEAP 1000 comprised a bi-monthly cash and a premium fee waiver for NHIS. The program was found to reduce overall IPV among women in monogamous households and the frequency of IPV among both monogamous & polygamous households. Pathways of impact… Implementer: MINISTRY OF GENDER, CHILDREN AND SOCIAL PROTECTION
- The next example is a highly integrated program which aimed to reduce poverty and build social capital through multi-sectoral and integrated approach The program provided linkages to health insurance, education, housing, employment, “family dynamics” Lessons learned i. Legislative frameworks are important for setting out roles and responsibilities across implementing ii. agencies, especially when many sectors are involved. Addressing supply-side constraints is vital for achieving positive change. iii. Social workers play crucial direct and indirect roles. Keys to success: A crucial factor in facilitating coordination of services at the municipal level and overcoming initial frictions was a law clarifying the procedural norms as well as improving the management of the Chile Solidario system in addressing potential institutional conflicts (ibid). In particular, the law charged the Ministry of Planning and Cooperation (Ministerio de Planificacion y Cooperacion – MIDEPLAN) with administration, coordination, supervision and evaluation of the programme. One of the consequences was that the different institutions operating in areas such as education, health, housing, justice and labour had to work in cooperation with MIDEPLAN to provide preferential access to programme beneficiaries. A second factor pertains to the devolution of programme implementation to sub-national and local levels and the focus on addressing supply-side constraints. Direct responsibility for implementation of the Puente programme at central, regional and municipal levels was transferred to the Fondo de Inversión Social (FOSIS),11 while responsibility for programme execution at local level was transferred to the Family Action Unit. This unit played a crucial role in ensuring and promoting coordination within the existing institutional supply of public and private services at local level. A Local Action Network convened by the municipality and composed of public and private service providers supported the Family Action Unit to better identify gaps and to promote solutions to achieve the targeted population (Ruz and Palma, 2005). Qualitative indicators were collected regularly on the local supply side (Carneiro et al. 2009) as well as on the social and demographic characteristics of each family participating in Chile Solidario, and progress and problems over each period (Larrañaga et al. 2015); this was aimed at facilitating creation and re-orientation of programmes. If the existing supply of services was insufficient for meeting minimum conditions, municipalities could turn to the provincial and regional levels for resources to address the constraints (Schulte, 2007). The reorganisation of public services at the local level also moved psychosocial support from its traditional position of a single stand-alone intervention to its integration into a comprehensive and coordinated system of social protection
- Another example of linkages to protection services has been implemented by the Govt of Mozambique through a start-up phase of the Child Grant 0-2 The intervention targets female caregivers of children 0-2 in rural districts and has three components, 1) an unconditional transfer, 2) family support via case management for families identified as having the highest protection risk (up to 20% of the cash transfer case load) and 3) community level SBCC for nutrition. More info about the case management: All entering households are screened and those at the highest risk are supported with these additional supports The case management is implemented by local female case workers (Premanentes) with technical support, oversight and engagement in high-risk cases by female technicians from the Health, Women and Social Action District Services (SDSMAS). Case management activities include basic psychosocial support, counselling and awareness on positive parenting practices, as well as information and referrals to local and statutory services. Female caregivers are the entry point for case management, identified primarily through a short triage tool administered at enrolment, following which a more in-depth family assessment is done, and a case plan is developed to address risks and needs of the family (with variation in the number, frequency and duration of home visits based on the needs of the family). This triage tool was developed to help target care services, explicitly based on protection risks, as human resources were not available to cater to the entire cash transfer case load. CT of 540 Meticals or 10 USD per month, equal to 1/3 of the poverty line Being implemented in the northern province of Nampula since 2019. An impact evaluation and process evaluation were led by AIR and UNICEF Innocenti covering the initial 24-month implementation period and results are not yet public, but show promising impacts on both IPV and violent discipline against children, both from the cash and additional protective effects from the case management.
- Now moving to examples of external linkages to non-governmental organizations. The first comes from Zambia. This program was implemented jointly by three ministries to increase girls’ secondary education enrolment and livelihoods support It was recognized that participation may put girls at increased risk of GBV Important steps were taken in the design of the grievance mechanism monitoring and information system module to ensure survivor safety including limited access to the module and serious complaint information not being visible to all users Multiple reporting channels: In addition to the complaint boxes already included in the initial grievance mechanism, two additional channels were established to facilitate the submission of GBV allegations Implementing Ministries: Ministry of Community Development and Social Services (MCDSS), Ministry of Gender (MoG), Ministry of General Education (MoGE) Multiple reporting channels: In addition to the complaint boxes already included in the initial grievance mechanism, two additional channels were established to facilitate the submission of GBV allegations. First, women focal points were selected in each community (based on a set of criteria, including being a trusted and respected member of the community) to lead sensitization efforts and collect complaints, especially when the complainer wishes to remain anonymous or when they have insufficient literacy skills to submit a written complaint by themselves. Second, GEWEL hired a specialized NGO, Lifeline/Childline Zambia, to provide access to its existing national hotline for GBV and other child protection issues. Callers receive counselling over the phone, referral to appropriate services in their district, and case management until the case is closed. „Survivor safety and robust monitoring and evaluation (M&E): Important steps were taken in the design of the grievance mechanism monitoring and information system module to ensure survivor safety including limited access to the module and serious complaint information not being visible to all users. To reinforce data privacy and security, a simple information sharing protocol was developed, outlining guiding principles for data sharing, management and security. The monitoring and information system module also includes an interactive M&E framework where officers at various levels can design, carry out, or review M&E activities and reports in real time. „Financial support to survivors: The GEWEL grievance mechanism is setting up a Fund to Address Serious Complaints that is allocated to each district. Guidelines are currently being developed to ensure an immediate response to GBV cases at the district level as well as providing additional support needed by survivors.
- Another example of how linkages were made to protection services is in the case of a large-scale program for refugees – focused on children. The program provides a cash payment conditional on 80% monthly school attendance, and the child protection component is triggered by low attendance. This triggers a referral to the Turkish Red Cross who operates community centers and outreach teams to visit households and assess the needs of all children and household members. An evaluation show the child protection component not only supported schooling objectives of the program, but also addressed broader vulnerabilities *** This was a program funded by a large group of development donors for refugees in Turkey and launched in 2017 to align with an existing CCT from the government of Turkey for poor Turkish nationals. The program was a subcomponent of the Emergency Social Safety Net, which is one of the largest humanitarian safety net in the world, reaching over 1.5 million refugees. An evaluation using DAC criteria was undertaken by AIR and conclusions show the child protection component not only supported schooling objectives of the program, but also addressed broader vulnerabilities. However, a key constraint was the capacity of TRC, as referral triggers were much higher than teams could support. https://www.air.org/project/program-evaluation-conditional-cash-transfer-education-ccte-syrians-and-other-refugees