Alejandro Grinspun's (FAO) presentation at LASA on 27 May 2019.

1. TITLE
Retos institucionales para la articulación
de intervenciones de protección social y
desarrollo rural en África
Alejandro Grinspun
LASA Congress
Boston, 27 May 2019

2. Program description
Lesotho Ethiopia

3. Lesotho Ethiopia
• Reduce malnutrition, improve the living standards and
health status, increase school enrolment among OVC
• Increase food consumption and diversify livelihoods
Program description

4. Lesotho Ethiopia
• Reduce malnutrition, improve the living standards and
health status, increase school enrolment among OVC
• Increase food consumption and diversify livelihoods
• 27 000 households in 40 community councils (out of 64)
in all ten districts (2016)
• About 7 000 households in 5 councils enrolled in CGP
Program description

5. Lesotho Ethiopia
• Reduce malnutrition, improve the living standards and
health status, increase school enrolment among OVC
• Increase food consumption and diversify livelihoods
• 27 000 households in 40 community councils (out of 64)
in all ten districts (2016)
• About 7 000 households in 5 councils enrolled in CGP
• Poor and vulnerable households with OVCs aged 0-17
• Any community member (60% were CGP beneficiaries)
Program description

6. Lesotho Ethiopia
• Reduce malnutrition, improve the living standards and
health status, increase school enrolment among OVC
• Increase food consumption and diversify livelihoods
• 27 000 households in 40 community councils (out of 64)
in all ten districts (2016)
• About 7 000 households in 5 councils enrolled in CGP
• Poor and vulnerable households with OVCs aged 0-17
• Any community member (60% were CGP beneficiaries)
• Poverty-targeting, followed by community validation
• Self-selection
Program description

7. Lesotho Ethiopia
• Reduce malnutrition, improve the living standards and
health status, increase school enrolment among OVC
• Increase food consumption and diversify livelihoods
• 27 000 households in 40 community councils (out of 64)
in all ten districts (2016)
• About 7 000 households in 5 councils enrolled in CGP
• Poor and vulnerable households with OVCs aged 0-17
• Any community member (60% were CGP beneficiaries)
• Poverty-targeting, followed by community validation
• Self-selection
• Beneficiary enrolment / registration conducted by local
agents hired by MoSD, registry maintained by NISSA
• Beneficiary enrolment / registration conducted by CRS
Program description

8. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services

9. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers

10. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers
• Unconditional, but with strong messaging at pay points
• Unconditional, self-targeted

11. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers
• Unconditional, but with strong messaging at pay points
• Unconditional, self-targeted
• Communication about CGP conducted by MoSD agents
• Outreach, information & promotion by CRS, other NGOs

12. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers
• Unconditional, but with strong messaging at pay points
• Unconditional, self-targeted
• Communication about CGP conducted by MoSD agents
• Outreach, information & promotion by CRS, other NGOs
• No recertification in either program

13. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers
• Unconditional, but with strong messaging at pay points
• Unconditional, self-targeted
• Communication about CGP conducted by MoSD agents
• Outreach, information & promotion by CRS, other NGOs
• No recertification in either program
• No exit strategy in either program

14. Lesotho Ethiopia
• Reduce malnutrition, improve the living standards and
health status, increase school enrolment among OVC
• Increase food consumption and diversify livelihoods
• Improve food security, nutrition and resilience
• 27 000 households in 40 community councils (out of 64)
in all ten districts (2016)
• About 7 000 households in 5 councils enrolled in CGP
• Poor and vulnerable households with OVCs aged 0-17
• Any community member (60% were CGP beneficiaries)
• Poverty-targeting, followed by community validation
• Self-selection
• Beneficiary enrolment / registration conducted by local
agents hired by MoSD, registry maintained by NISSA
• Beneficiary enrolment / registration conducted by CRS
Program description

15. Lesotho Ethiopia
• Reduce malnutrition, improve the living standards and
health status, increase school enrolment among OVC
• Increase food consumption and diversify livelihoods
• Improve food security, nutrition and resilience
• 27 000 households in 40 community councils (out of 64)
in all ten districts (2016)
• About 7 000 households in 5 councils enrolled in CGP
• About 8 million beneficiaries (85% in public works, 15%
direct cash recipients)
• Poor and vulnerable households with OVCs aged 0-17
• Any community member (60% were CGP beneficiaries)
• Poverty-targeting, followed by community validation
• Self-selection
• Beneficiary enrolment / registration conducted by local
agents hired by MoSD, registry maintained by NISSA
• Beneficiary enrolment / registration conducted by CRS
Program description

16. Lesotho Ethiopia
• Reduce malnutrition, improve the living standards and
health status, increase school enrolment among OVC
• Increase food consumption and diversify livelihoods
• Improve food security, nutrition and resilience
• 27 000 households in 40 community councils (out of 64)
in all ten districts (2016)
• About 7 000 households in 5 councils enrolled in CGP
• About 8 million beneficiaries (85% in public works, 15%
direct cash recipients)
• Poor and vulnerable households with OVCs aged 0-17
• Any community member (60% were CGP beneficiaries)
• Food insecure households in targeted districts (deemed
to be highly food insecure)
• Poverty-targeting, followed by community validation
• Self-selection
• Beneficiary enrolment / registration conducted by local
agents hired by MoSD, registry maintained by NISSA
• Beneficiary enrolment / registration conducted by CRS
Program description

17. Lesotho Ethiopia
• Reduce malnutrition, improve the living standards and
health status, increase school enrolment among OVC
• Increase food consumption and diversify livelihoods
• Improve food security, nutrition and resilience
• 27 000 households in 40 community councils (out of 64)
in all ten districts (2016)
• About 7 000 households in 5 councils enrolled in CGP
• About 8 million beneficiaries (85% in public works, 15%
direct cash recipients)
• Poor and vulnerable households with OVCs aged 0-17
• Any community member (60% were CGP beneficiaries)
• Food insecure households in targeted districts (deemed
to be highly food insecure)
• Poverty-targeting, followed by community validation
• Self-selection
• Geographic, followed by community-based targeting of
households based on food insecurity criteria
• Beneficiary enrolment / registration conducted by local
agents hired by MoSD, registry maintained by NISSA
• Beneficiary enrolment / registration conducted by CRS
Program description

18. Lesotho Ethiopia
• Reduce malnutrition, improve the living standards and
health status, increase school enrolment among OVC
• Increase food consumption and diversify livelihoods
• Improve food security, nutrition and resilience
• 27 000 households in 40 community councils (out of 64)
in all ten districts (2016)
• About 7 000 households in 5 councils enrolled in CGP
• About 8 million beneficiaries (85% in public works, 15%
direct cash recipients)
• Poor and vulnerable households with OVCs aged 0-17
• Any community member (60% were CGP beneficiaries)
• Food insecure households in targeted districts (deemed
to be highly food insecure)
• Poverty-targeting, followed by community validation
• Self-selection
• Geographical, followed by community-based targeting
of households based on food insecurity criteria
• Beneficiary enrolment / registration conducted by local
agents hired by MoSD, registry maintained by NISSA
• Beneficiary enrolment / registration conducted by CRS
• Beneficiary enrolment / registration conducted by social
workers and development agents at local level
• Beneficiary registry maintained by MoA for public works
beneficiaries and MoLSA for cash transfer recipients
Program description

19. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash or food, combined with ante and post-natal and
nutrition counseling, and nutrition-sensitive agriculture
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers
• Unconditional, but with strong messaging at pay points
• Unconditional, self-targeted
• Communication about CGP conducted by MoSD agents
• Outreach, information & promotion by CRS, other NGOs
• No recertification in either program
• No exit strategy in either program

20. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash or food, combined with ante and post-natal and
nutrition counseling, and nutrition-sensitive agriculture
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers
• Cash benefits delivered by MoF or mobile payment
• Food transfers delivered by MoA
• Unconditional, but with strong messaging at pay points
• Unconditional, self-targeted
• Communication about CGP conducted by MoSD agents
• Outreach, information & promotion by CRS, other NGOs
• No recertification in either program
• No exit strategy in either program

21. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash or food, combined with ante and post-natal and
nutrition counseling, and nutrition-sensitive agriculture
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers
• Cash benefits delivered by MoF or mobile payment
• Food transfers delivered by MoA
• Unconditional, but with strong messaging at pay points
• Unconditional, self-targeted
• Unconditional for labor-constrained households
• Nutrition and health monitoring for pregnant and
lactating women, and malnourished children under 5
• Work requirement for households with labor capacity
• Communication about CGP conducted by MoSD agents
• Outreach, information & promotion by CRS, other NGOs
• No recertification in either program
• No exit strategy in either program

22. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash or food, combined with ante and post-natal and
nutrition counseling, and nutrition-sensitive agriculture
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers
• Cash benefits delivered by MoF or mobile payment
• Food transfers delivered by MoA
• Unconditional, but with strong messaging at pay points
• Unconditional, self-targeted
• Unconditional for labor-constrained households
• Nutrition and health monitoring for pregnant and
lactating women, and malnourished children under 5
• Work requirement for households with labor capacity
• Communication about CGP conducted by MoSD agents
• Outreach, information & promotion by CRS, other NGOs
• Conducted by local Community Care Coalitions, Social
Protection Committee or Food Security Task Force
• No recertification in either program
• No exit strategy in either program

23. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash or food, combined with ante and post-natal and
nutrition counseling, and nutrition-sensitive agriculture
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers
• Cash benefits delivered by MoF or mobile payment
• Food transfers delivered by MoA
• Unconditional, but with strong messaging at pay points
• Unconditional, self-targeted
• Unconditional for labor-constrained households
• Nutrition and health monitoring for pregnant and
lactating women, and malnourished children under 5
• Work requirement for households with labor capacity
• Communication about CGP conducted by MoSD agents
• Outreach, information & promotion by CRS, other NGOs
• Conducted by local Community Care Coalitions, Social
Protection Committee or Food Security Task Force
• No recertification in either program • Every 4-5 years
• No exit strategy in either program

24. Program description
Lesotho Ethiopia
• Quarterly cash payments, based on number of children
• Homestead gardening, nutrition information, savings &
lending groups, market clubs and referral to services
• Cash or food, combined with ante and post-natal and
nutrition counseling, and nutrition-sensitive agriculture
• Cash at pay points + bank, mobile payments in few sites
• Cascading training by CRS staff to lead farmers, field
agents and community health workers
• Cash benefits delivered by MoF or mobile payment
• Food transfers delivered by MoA
• Unconditional, but with strong messaging at pay points
• Unconditional, self-targeted
• Unconditional for labor-constrained households
• Nutrition and health monitoring for pregnant and
lactating women, and malnourished children under 5
• Work requirement for households with labor capacity
• Communication about CGP conducted by MoSD agents
• Outreach, information & promotion by CRS, other NGOs
• Conducted by local Community Care Coalitions, Social
Protection Committee or Food Security Task Force
• No recertification in either program • Every 4-5 years
• No exit strategy in either program • Graduation pathways for public works beneficiaries

25. Evolution of CGP and SPRINGS
2005 2007 2009 2011 2013 2015 2017 2019
2016: 27,000 CGP
households
2009: 1250 CGP households
June 2016: Start of 2nd phase of
SPRINGS (expansion to 2 more
CCs)
2015: Start of 1st
phase of SPRINGS
(ICWHR) in 3 CCs
2005–2009: EU project
in response to OVCs &
HIV/AIDS epidemic
2012–2014: Expansion of
CGP, now fully financially
supported by Govt. of
Lesotho
Sept 2018: End of
SPRINGS
2015 -2016: El Niño
shock

26. Institutional architecture: national level

27. Impacts of CGP and CGP + SPRINGS

28. Challenges to greater articulation
• CGP + SPRINGS consist of 2 different programs, with complementary goals,
under the responsibility of different institutions
 Type 1 or Type 3, depending on existence of (1) spaces for articulation, (2)
efforts to establish inter-institutional coordination for synergy
• Funding for SP outpaces funding for AG and comes mostly from government
• No mechanism for overall coordination of social protection
• Single registry for social assistance beneficiaries
• Role of MoA in the implementation of complementary programs
• Communication: Fear of loss of CGP transfers if beneficiaries join SPRINGS
• Staff capacity and availability of resources

29. Ethiopia: Institutional and policy context
• Extraordinary economic performance – 9.1% GDP growth p.a. in real terms between
2000-16
• SP codified in 1995 Constitution and key policy frameworks
• Spending on SP averaged 1.4% of GDP vs 1.6% for agriculture  Productive safety
nets accounted for >70% of SP spending between 2013 and 2016
• Growth of SP spending in real terms, but continued heavy reliance on donor financing
• Bulk of SP spending goes to FA1 (Productive Safety Nets), but real value of spending
on PSNP has declined steadily
• Sharp decline of ODA + sluggish performance of revenues  limited fiscal space for SP
• Federal structure, combined with weak and uneven capacities in regions and districts

30. Evolution of the PSNP
2005-2006
Transition
from relief
2007-2009
Consolidation
phase
2010-2014
Expansion
phase
2015-2020
Transition
to system
Phase I Phase II Phase III Phase IV
Districts 234 318 318 350
Beneficiaries 7 192 7 574 6 607 7 997
• Public Works 5 983 6 301 5 464 6 870
• Direct Support 1 208 1 272 1 143 1 127

31. Program eligibility, benefits and conditions
Household deemed
food insecure
Not eligible
Eligible for the PSNP
Adult labor available and
more than sufficient to
cover full household
needs
HH categorized as PW client
and entitled to 6 months of
cash, with a cap of 5 per hh
Adult labor available, but
insufficient to cover full
household needs
HH categorized as PW
client, but work capped at
max 15 days per month
Pregnant or lactating
women and primary
caregivers of malnourished
children <5 transition to
TDS status
No adult labor available
HH categorized as PDS =
UCT for 12 months, with a
cap of 5 per hh

32. Impacts of PSNP / IN-SCT
Mother-child sample
PW households with members
transitioning to TDS status

33. Institutional architecture – Federal

34. Institutional architecture – Regional

35. Institutional architecture – District

36. Challenges to greater articulation
• PSNP is a single program combining SP and RD. Its various components require close
intersectoral coordination between different institutions for implementation (Type 4)
 unique case given MoA’s role
• Growing domestic financing, but heavy reliance on donor funds, shrinking as % of GDP
• Evidence of fragmentation
 Horizontal: roles of MoA and MoLSA, RPSNP + UPSNP + Emergency, donors (USAID)
 Vertical: Federal structure, devolution to regional BoLSA and varying administrative,
organizational and institutional capacities
• Intra- e interinstitutional articulation: Little articulation within MoA itself, but intense
efforts at coordination across entities at every level
• Separate registries for PW and DS beneficiaries; lack of computerized MIS
• Staff capacity at local level (e.g. # of SWs per kebele)