Institutional Challenges on CCTs Experience of Bolsa Famila (Brazil)

Romulo Paes de Sousa,

IDB-ADB South-South learning event on Conditional Cash Transfers Manila, 16-19 April 2013

Characteristics of the institutional arrangements of the BFP

Strong decentralization of some operational activities Integration with other public policy systems Emphasis on cash transfer High heterogeneity of local capacity Recent extra investment on ultra poor population (beneficiaries and non beneficiaries)

Characteristics of the institutional arrangements of the BFP

The programme is hosted by the Ministry Social Development and Fight against Hunger, which is also responsible for with social protection and food security programs
Social protection is different from antipoverty policy

4 previous cash transfer programmes were merged in to BFP

MINISTRY OF SOCIAL DEVELOPMENT AND THE FIGHT AGAINST HUNGER

Food Security and Nutrition Conditional Cash Transfer Social Assistance

Food Bank Indian Identity Cisterns Consad Community Kitchen Distribution of Food Food and Nutrition Education PAA Popular Restaurant Urban Agriculture

Bolsa Famlia Program

Conditionalities Complementary Actions Unified Registration (Cadnico)

CRAS - PAIF [Reference Center for

Social Assistance -Program of Integral Attention to Families]

CREAS Reference Center for Specialized Social Assistance Social Protection Service for Children ,Teenagers and their Families - Victims of Violence, Abuse and Sexual Exploration and Person with disabilities

Extreme Poverty Eradication

Brazil Without Misery

P E T I Children Erradication Labour Program

SAGI
Monitoring, Evaluation and Information Management

Continuous Cash Benefit- BPC

Casual Benefits BPC in School

CONJUR

AECI

ASPAR

AI

Ministers Cabinet
SPO

Executive Secretariat

SAA

The BFPs assets and demands

Staff In 2010, 242 thousand civil servants working in the social assistance programs (107 thousand with precarious contract) Budget In 2013, US$ 11 billion (10.7 only for the benefits) Clientele 13.9 million families

Bolsa Familia growth

MINISTRY OF FINANCE OF BRAZIL (2012). Brazilian economic outlook. MF: Braslia. 15th Edition. p 42.

Coverage of bolsa Familia 2004 to 2010

Institutional arrangements: roles in the implementation

Programme Coordination:
Overall coordination: Ministry of Social Development and Fight against Hunger (MDS) Overall supervision: Secretariat of Income of Citizenship M&E: Secretariat of Evaluation and Information Management

Institutional arrangements: roles in the implementation

Main tasks of the federal level: Designing Planning Funding, including good performance incentives Regulating, including the legal framework
Main tools: Mobilization Training Web based training, workshops, guidelines, best practice dissemination (awards, IT systems MDS, states and municipalities, sign terms of agreement, regulating responsibilities for BF implementation.

Institutional arrangements: Roles in the implementation

States: monitoring overall state implementation and coordination Municipalities: registration of all poor households into the national single registry and for the monitoring of conditionality compliance in education and health. set up social councils responsible for the overall monitoring of BF implementation at the municipal level.

Institutional arrangements: Roles in the implementation

Service provision: the ministries of education and of health are responsible for the provision of universal public education and health services through schools and health centres. Other ministries are responsible for labour policies, microcredit, job training, family farm funding, etc. Benefit payment: transfers are paid directly to beneficiary families from the CAIXA federal bank

Comparing horizontal vs. vertical model

In relation to the horizontal model, the vertical one tends to produce: Quicker implementations, Higher homogeneous routine, Higher level of transparency, because the federal level is more sensitive to that issue than the subnational levels, More stable staff. However, the vertical model tends to produce: Administrative conflict with the subnational levels, Implementation of concurrent programmes, especially by the affluent states and municipalities. Therefore, producing redundancy and resource waste, Limit in the programme implementation in some areas due to lack of cooperation with the state or municipal authority.

Brazil Without Extreme Poverty

Guaranteed Income Axis 0-7 year olds, extra benefit. Family Allowance Programme. Productive Inclusion Axis Rural - Food Procurement Programme (PAA) - Technical assistance - Seeds - Financial incentive - Cisterns - Forest conservation subsidy Urban - Qualification (with a specific programme for women) - Microcredit Access to Services Axis Education - Fulltime school
Source: MDS documents and interviews

Health Basic health clinic Dental care Family Health Eye care Public drugstore Mother and child care Health care in school Social assistance

Social Assistance Reference Centres (CRAS) Specialized Social Assistance Reference Centres (CREAS) Nutrition and food security Food banks Subsidized restaurants and canteens

The role of the civil society

Institutional articulation 33 activities in 2012
Dialogues of the BwEP (Federal Government with the civil society) Participation in national meetings (Council meetings and Conferences) Regional meetings Other meetings (example: Rio+ Conference)

Operational participation (monitoring and participation on implementation)

Social councils of Bolsa Famlia
Source: Secretariat of the Presidential Cabinet

Talking to the beneficiaries

The relationship center provides information on all social protection programs under the MSD, and collecting complaints, suggestions and compliments. It operates via telephone (24-hours a day service), mail, e-mail, fax, and face-to-face assistance; a chat service is forthcoming. The center employs 232 staff. In 2012, calls were related to registry verification (43%), payments (9.8%) and value of the benefit (9.7%).

ECIALISTA SNAS, ESPECIALISTA SESAN, HELP DESK, ATIVO, OUVIDORIA

aixas institucionais, que so: bolsa.familia@mds.gov.br; cadastrounico@mds.gov.br ; 12 Telephone calls (million) Humano 6.000 ds.gov.br; gestorbpf@mds.gov.br; juventude@mds.gov.br; paif@mds.gov.br ; 4.892 10 5.000 4.474 v.br; e suasweb@mds.gov.br. 8 3.756 mento, cuja principal atuao est em subsidiar informa es e respostas ao 1 Nvel 3.549 as 4.000 3.397 3.345 2.991 s do MDS, situados na Esplanada dos Ministrios, Bloco C, sala 948 -2.707 Coordenao6 3.000
Milhares

Relationship Center of MSD EVOLUES DAS LIGA ES RECEBIDAS Atendimento

tas Frequentes) e 404 Respostas-padres ativas em sua base de conhecimento para co. 1.000
0

2.000

1.894

2.002

2003
120.000 100.000 80.000 60.000

2004 2005 2006 2007 2008 2009 2010 EVOLU O* DE E-MAIL'S V LIDOS RECEBIDOS consolidado at E-mails o ms de Dezembro/2012
99.678

2011

2012*
108.471

Fonte: Call Tecnologia e Servios Ltda - Sumrio Executivo - DEZ/2012.

79.758 78.442 Demandas de Telefonia 38.261

por

Secretaria Nacional de Renda de Cidadania - SENARC 33.064 40.000 Demandas de Outros Orgos 27.794
18.596 16.146 20.811

Janeiro Fevereiro Maro 284.080 220.026 247.831 2 4.661 4.429 3.928 1.143 1.372 5.635

20.000 Secretaria Extraordinria para Superao da Extrema Pobreza - SESEP

5.054 1.935 1.909 Secretaria 0 Nacional de Assistncia Social - SNAS 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012* 96 84 163 Secretaria Nacional de Segurana Alimentar e Nutricional - SESAN * consolidado at o ms de Novembro/2012 34 19 11 Programas Parceiros Source: Internal report of the Center of Relationship of the MSD of Brazil. 15/01/2012.

Challenges
Inter-sectorial programs are easy to proclaim, but not so easy to implement Legal frameworks related to agreements between the federal level and sub-national levels is not very consistent Big municipal role helps to reduce political tensions but can overload small municipalities with a lot responsibilities When the federal level has strong role on funding the policy, sub-national actors tend to be less enthusiastic on funding

Lessons
Stronger contribution to the municipal level tends to improve the quality of the program Beneficiaries need open channels for accessing the program authorities Vertical and horizontal coordination are key activities for good performance Leadership matters

Thank you

r.paes@ids.ac.uk mstampini@iadb.org