Suahasil Nazara

POVERTY ALLEVIATION PROGRAM DELIVERY:
UNIFIED DATABASE & PROGRAM REFORMS IN INDONESIA
SUAHASIL NAZARA
Policy Group Coordinator
Secretariat of the National Team for the Acceleration of Poverty Reduction
Brasilia, December 2012
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CONTENTS
• INTRODUCTION: INDONESIA IN BRIEF
• POVERTY ALLEVIATION: DYNAMICS AND POLICY
PERSPECTIVES
• UNIFIED DATABASE FOR TARGETING
• CASE OF RASKIN: TARGETING & PROGRAM REFORMS
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INDONESIA IN BRIEF
Independence
17 August 1945
Area 1.9 million km2
comprising 13,600 islands.
Population 236.7 million
Currency Rupiah
USD 1 = IDR 9500 (2012)
GDP USD 0.7 Trillion
GDP/cap USD 3,500 (2011)
Free political parties. Direct presidential
election. President Yudhoyono is the first
directly elected President – now in 2nd
term with about 60% votes
WB (2009): Lower Middle Income Country
Investment Grade by S&P, Fitch (2012)
Life expectancy 71 yrs. Literacy rate 92%
Unemployment 6.8% (2011)
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INDONESIAN ECONOMY:
PROGRESS WITH NEW CHALLENGES
41
36
Gini
Ratio(%)
33
Poverty
Rate (%)
18.4 18.2
Unemployment
Rate (%)
Real Economic
Growth (% p.a)
8.1
3.6
9.1
4.5
32
32
33
37
35
4.8
9.9 10.26 10.45 9.75
5
5.7
• Improvements in last decade in
terms of economic growth,
unemployment reduction , and
poverty alleviation
33
17.8
17.4 16.7
16.6
16.0
15.4
9.6
38
5.5
6.3
• Great potential to move further
14.2
13.3
8.46 8.14
7.41
6
4.6
6.2
12.5
6.8
6.5
• Increasing inequality
• Poverty alleviation and social
protection programs
2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011
Per Capita
Income (US$)
772 922 1098 1186 1318 1663 1938 2270 2350 3005 3543
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POVERTY ALLEVIATION:
DYNAMICS AND POLICY PERSPECTIVES
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CHALLENGES
FOR POVERTY ALLEVIATION PROGRAM IN INDONESIA
Poor
living below poverty line
Vulnerability
easily fall back below the poverty line
Inequality
interregional differences in the number
of poor and poverty rates
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Below Poverty Line: 12% of population (approx 29 million people)
but about 40% population lives around Poverty Line
2012 Monthly Household Percapita Consumption
Thousands
Approx. USD (PPP) 38/capita/mo.
(national average)
For capital city Jakarta appox.
USD (PPP) 57/capita/mo.
1.2xPL: 23% below
PL
12000
Poverty Line
1.5xPL: 38% below
10000
High vulnerability
around the Poverty Line
8000
6000
4000
2000
0
0
100
200
300
400
500
600
700
800
900
Poverty programs needs
to cover the poor and
the near poor
Monthly Household Per Capita Consumption (IDR 000)
Source: 2012 Susenas
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INEQUALITY
ACROSS DIFFERENT REGIONS IN INDONESIA
Gambar
Jumlah Penduduk Miskin menurut Propinsi di Indonesia, 2004
---------- : A2
Figure
Number of Poor People by Province in Indonesia, 2004
High poverty intensity in Eastern
Islands (Maluku, Papua, and Nusa
N
W
E
S
Tenggara)
High concentration of poor
people in Java Island
Jumlah P enduduk Miskin (00 0)
---------- --------------------- -Number of Poor Peop le (000)
< 50 0
500 - 1,000
1,000 - 1,500
1,500 - 2,000
> 2,000
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THREE CLUSTERS
OF POVERTY ALLEVIATION PROGRAMS
Cluster 1: Family-based integrated social assistance programs
Unconditional cash transfer, conditional cash transfer, rice for poor,
Scholarship for poor families, Health insurance for the poor
Cluster 2: Community empowerment program
Program Nasional Pemberdayaan Masyarakat (PNPM Mandiri),
or Self Empowerment National Program
Cluster 3: Development of micro and small enterprises
Kredit Usaha Rakyat (KUR), or People’s Credit Program
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THE UNIFIED DATABASE FOR TARGETING
FOR CLUSTER 1 PROGRAMS
SINGLE REGISTRY CONTAINING NAMES & ADDRESSES OF
40% OF HOUSEHOLDS AT THE LOWEST DISTRIBUTION
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TARGETING EFFECTIVENESS
SELECTED POVERTY ALLEVIATION PROGRAMS
Percent receiving program
This is a result of fragmented
targeting mechanism
TNP2K given mandates
to establish the
UNIFIED DATABASE
to improve targeting
Consumption deciles
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DATA COLLECTION: PPLS 2011
DATA COLLECTED BY INDONESIAN STATISTICS (BPS)
METHODOLOGY (REGISTRATION & PMT) DEVELOPED BY BPS AND TNP2K
Pre-listed Names & Addresses
Pre-listed
Households
(Poverty map
based on 2010
Pop Census)
+
Individual data from ongoing Programs
+
Consultation
With the Poor
+
Sweeping
Households to
Register
By
PPLS 2011
As the Unified Database comes in the middle of Program implementation,
the question: Will the Program use the new database?
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UNIFIED DATA MANAGEMENT:
NATIONAL TARGETING UNIT UNDER TNP2K
With Three Tasks



Program Services
• Ensure all relevant programs to use names and
addresses from the Unified Data as their data
• Technical support to Program & Local
Government
Research
• Ensure validity of different studies to improve
program targeting
• Monitoring the use of Unified Database
Information System
• IT-base Unified Database Management
• Providing different information from Unified
Database publicly
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13
WEBSITE UNIFIED DATABASE
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www.bdt.tnp2k.go.id
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NATIONAL TARGETING SYSTEM USING UNIFIED DATABASE
Eligibility Criteria
Social Protection Program
Unified Database
For Poverty Allev & Social Protection
Beneficiary
List
ofof
Beneficiary
List
Beneficiary
List
ofof
Social
Protection
Programs
Beneficiary
List
Social
Protection
Program
Social
Protection
Social
ProtectionProgram
Program
Set by each program. E.g. for PKH.
The criteria set by Minister of Social Affairs:
extreme poor households with elementary
school age children or pregnant mothers
Data by name & address,
containing the lowest 40% of population
Names and addresses of eligible beneficiaries
of the Social Protection Program
Program eligibility can be formulated using different criteria:  Geographical (e.g. based on
indicators of poverty, education, health, etc.)  Benefitting unit (e.g. individuals, households,
family)  Economic status (extreme poor, poor, near poor, vulnerable)  Demographic status (sex,
age, education status, types of works, etc.)
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THE USE OF UNIFIED DATABASE
TNP2K CONTINUOUSLY COORDINATING WITH PROGRAMS
ENSURING THE USE OF THE DATA
Health
Rice
CCT
Education
Jamkesmas
Raskin
• Fiscal year 2012 and 2013
• Starting July 2012 with new mechanism
PKH
• 2012 expansion
BSM
• Starting September 2012
Local Govt
• Data requests for local programs
ONCE DATA DISTRIBUTED TO PROGRAM, DIFFERENT REACTIONS ABOUT ITS
ACCURACY – THE PROTEST IS REALLY ABOUT COMPLACENCY
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EXAMPLE:
TARGETING FOR RASKIN
Raskin distributes monthly 15 kg of rice to 17.5 million households,
at subsidized price.
• BULOG (Raskin distributor) brings rice to village, and village apparatus
distributes (sells) to households.
• Practices of equal distribution, rather than targeted, to avoid local conflict
 complacency resulting in poor targeting (wrong price, amount, and time)
 Average rice received 4-5kgs (nationally), regional best practices also
there
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RASKIN PROGRAM REFORMS SINCE JULY 2012
1. New provincial/district quota distribution for 17.5 million HHs
2. New names & beneficiaries names from Unified Database
3. Better socialization & information to community & households
 socialization materials to village, incl. posters of beneficiary list
 New Raskin Cards to selected 1.3 million households
 New beneficiary replacement mechanism
NEW MONITORING OF RASKIN OPERATION
• Media monitoring of Raskin reforms.
• Cards monitoring in 3300 households to check effectiveness of Raskin
Cards in improving targeting, by TNP2K.
• RCT Impact evaluation in 600 villages, by JPAL & TNP2K.
• New questions in Susenas 2013 as new national evaluation.
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RASKIN CARDS: NEW TARGETING MECHANISM
Unified Database
Through Coord. Ministry of Social Welfare
Quota, names & addresses of Raskin
beneficiaries sent to Local Govt
New
Mechanism
Local District Govt
PT Pos
POST sends cards to
households
BULOG
Local Govt, getting the quota, issue
instructions to Village, based on
given quota
Bulog distributes rice to
selling/distribution points
Pre-printed cards with
names & information
Distribution Point
Village apparatus distributes rice at
distribution points
Households buy rice at distribution
point, by showing cards
Households buying rice
at selling points
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RASKIN CARDS
Logo & name of Local
Government - Improving buy in
Name, addresses, and
Other household info,
Including name of the
spouse
Rights of households
Basic terms and conditions
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NEW COMPLAINT MECHANISM
Previously: changes as villagers see fit, not accountability.
Village can change beneficiaries by way of Village Meeting. Official forms available
to remove and add new households, within the village quotas.
Reasons of change: (i) move out, (ii) dead, (iii) name duplication, (iv) rich. This is
about respecting local wisdoms.
Not every village conducted the Meeting, and much less so filled in the forms
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CHANGES ARE DIFFICULT QUICK RESULTS SO FAR
INSTITUTION: “It’s done? Not really!”
• Evidence is a lot, not necessarily picked up by policy
• Post Office sending out cards, end up with village heads
• Posters sent to village? Are they displayed? Not really
LOCAL WISDOM IN REPLACING BENEFICIARIES
• It is very important to respect local wisdoms
• Village meeting is there, but results are not necessarily socialized
• When ‘Folks’ says distribute equally – violating the poor?
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CHANGES ARE DIFFICULT QUICK RESULTS SO FAR
COMPLACENCY: “why change the system, it works so far”
• Govt (Central & Local): new regional quota brings in protests
• Village: new socialization, risky
• On-going village politics between apparatus-beneficiaries-BULOG addressing complacency.
• Village blames Central Govt for beneficiary data – despite replacement
mechanism – this is actually good.
• Continuous socialization at both households, community, and local
government important.
• Evidences remain important to collect to understand behavior, outputs
and impacts of Raskin program.
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FUTURE CHALLENGES OF INDONESIA’S
TARGETING PROGRAM
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UNIFIED DATA BASE & PROGRAM REFORMS
• Unified data alone is not enough, must be accompanied by program
reforms. Challenge: complacency
• Single ID system would fix a lot of complication. Matching Unified
Data and Population Registration Data now.
• Program’s grievance system – complaints on beneficiaries & program
implementation.
• Unified data updating system – national registration & local initiatives
• Continuous engagement with line ministries and local governments in
unified data & targeting
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Thank you!
SUAHASIL NAZARA
[email protected]
Policy Group Coordinator
National Team for the Acceleration of Poverty Reduction
Office of the Vice President of the Republic of Indonesia
TIM NASIONAL PERCEPATAN PENANGGULANGAN KEMISKINAN