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2007
Sharing knowledge and lessons learned
• National Background
• Program Background
• Oportunidades: Present Status
• Design & Operation: Key Factors
• Challenges faced for the consolidation of the Program
Contents
• Mexico is a country of sharp constrasts, rich in resources but with a large segment of the population living in poverty
• Has one of the highest inequality indexes in Latin America (GINI Index: 49.5% in 2006)
Population: 103 million (2005)
GDP: $ 831,272 million USD (2006)
GDP per cápita: $ 8,050 USD (2006)
National Background
Total population
Non poor51%
Poor49%
50 million
Poor population
Extreme poverty
50%
In food poverty + capacities poverty:25 million peopleor 5 million families
Evolution of Poverty in Mexico
0
10
20
30
40
50
60
70
1984 1992 1996 1998 2000 2002 2004 2005
Po
bla
ció
n
(mil
lon
es)
0
10
20
30
40
50
60
70
80
Po
rcentaje (%
)
Pobres Alimentarios Pobres Capacidades Pobres Patrimonio
% Pobres Alimentarios % Pobres Capacidades % Pobres Patrimonio
Año
Map of Poverty in Mexico
Rural and Urban Poverty
• Poverty is concentrated in rural areas
8.2 mill households
65%
35%15.1 mill
households
URBAN
RURAL
DISTRIBUTION OF TOTAL HOUSEHOLDS IN THE
COUNTRY
HOUSEHOLDS IN EXTREME POVERTY (FOOD + CAPACITIES)
3.5 mill households
URBAN
RURAL
41%
2.4 mill households
59%
• National Background
• Program Background
• Oportunidades: Present Status
• Design & Operation: Key Factors
• Challenges faced for the consolidation of the Program
Contents
Program Background
High prevalence of cronic malnutrition in under 5s in 1988 in spite of high expenditure in food distribution and subsidies:
Rivera y Col., 1994
11.3
24.8
9.9
33.9
18.9
48.1
39.2
15.7
5.8
22.8
36.4
0
10
20
30
40
50
60
Norte Centro C. Mexico Sur Rural Urbana Indigena Bajo NSE NSEMedio
NSE Alto Nacional
Región Lugar de residencia NSE
%
Programs targeted to the poor
Mexico has a long experience in these type of programs:
• Social supply of milk (1944)
• Education Promotion, Support to Rural Education, Administrative Support to the Education Sector –CONAFE– (1971)
• School shelters INI (Indigenous National Institute) (1972)
• DIF – School Breakfast Program (1975)
• General Coordination for the National Plan on Depressed Regions and Marginalised Groups –COPLAMAR– (1977 a 1983)
• Rural Supply Program (1980)
• Generalised subsidies to tortilla (1986 to 1998) and bread (1983 to 1998)
• Targeted subsidies to tortilla (1990 to 2004)
• Program for Greater Coverage (1996)
Inefficient Generalised Subsidies
• Emphasis on generalised subsidies: 63% of budget (1994) • Biased coverage of food programs:
77% in urban areas & 23% in rural (1994)• 59% of poor rural families without support y 28% with less than 8 USD per month
(1996)
(data in millions of pesos)
Budget for Food Programs, 1994
Urban9,599 (77%)
Rural2,749 (23%)
GeneralSubsidies8,945 (63%)
TargetedSubsidies3,404 (37%)
No support
59%Support
41%
Program Background
PRONASOLNational Solidarity Program
(1989-1994)
Aimed at modifying the relationship between civil society and Govt. with an
emphasis on regional development and priorising interventions on marginal
areas
Focused on communities
Identification of beneficiaries by the
community
Set benefits for the community
Flexible budget
Local operation
PROGRESAProgram for Education, Health
and Food (1997-2001)
Created as an alternative to PRONASOL. Its aim: promote human capital accumulation of the poor generation of basic
skills conditional transfers
Focused on households in extreme poverty, only rural
Central Identification of beneficiaries x System of
regional points
Pre-set benefits defined centrally
Pre-set budget
Central Coordination
OPORTUNIDADESProgram for Human Development
(2002-2007…
Strengthening of PROGRESA w/new interventions: greater access to development opportunities +
promotion of citizen participation and transparency
Focused on households in extreme poverty, all contexts
Central identification of beneficiaries x Sole Point System
Pre-set benefits defined centrally + new initiatives and services (eg.
JOP’s, AM)
Pre-set budget
Centralized coordination + Model de Attention & Service + Points of
Service Attention to CPC + Corresponsability
12 a ñ o s 6 a ñ o s
• National Background
• Program Background
• Oportunidades: Present Status
• Design & Operation: Key Factors
• Challenges faced for the consolidation of the Program
Contents
Vicious circle of Poverty
Families in extreme poverty experience:• Greater school desertion• More illnesses and malnutrition
H ogares en pobreza de capacidades
H ogares de m ayores ing resos
0
5
10
15
20
25
15
6
23
13
Prevalencia de d iarreas y enferm edades respiratorias severas en niñosm enores de cinco años, según condición socioeconóm ica, 1999
PORC
ENTA
JE
Diarreas Enferm edades respira toriasseveras
5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 215
0.2
0.4
0.6
0.8
1.0
1.2
Asistencia escolar por edad, condición socioeconómica ylugar de residencia, 2000
POR
CEN
TAJE
EDAD
Hogares con mayores ingresos
Hogares urbanos en pobreza de capacidades
Hogares rurales en pobreza de capacidades
This leads, among other things, to the transmission of poverty from one generation to another, as people have no human and social capital that enables the opening of exits from poverty, including more productive and better
paid jobs
This leads, among other things, to the transmission of poverty from one generation to another, as people have no human and social capital that enables the opening of exits from poverty, including more productive and better
paid jobs
• The main social program of the Mexican Government created in 1997 (known as Progresa)
• General aim: To support families living in extreme poverty so as to strengthen the abilities and skills of their members and widen their alternatives to reach greater levels of welfare, through the improvement of their education, health and food options. In addition to contribute to the linkage of new services and development programs that foster the improvement of their socio-economic conditions and their quality of life
• Cash transfers linked to integrated actions within five components.
Oportunidades: what is it and what does it achieve?
Hunger alleviationShort term
Development of abilities and linkage with other development options
Long term
Strengthening of Oportunidades
2001Working in semi-urban areas
Scholarships for High School Education
Recertification and density of households
2002
Working in urban areas
Access to saving mechanismo thorugh bank accounts
Community Promotion Committees (Committee members)
2003Wealth component Jóvenes con Oportunidades
Differentiated support schemes
2004Inclusion of cities > 1mill inhabitants & metropolitan area
General coverage and administration target
2005
NEW healthcare package: Lifeline Strategy
New care strategy for malnutrition
Redesign of “talks”: Workshops for health selfcare
2006 Component for senior citizens
2007 Quality + Evaluation + Focus + Supervision + Energetic
Greater coverage and benefits, & improvement of its components:
Oportunidades in numbers, 2006
Households 5 mill
People 25 mill (25%)Children under nutrition control 2 mill
Scholars 5,298,756
Primary level 2,867,760
Secondary 1,734,643
High school level 696,353
Savings Accounts JOP’s 218,532
Senior citizens 820,000
Locations 93,164
Rural 90,162 (96.8%)
Semi urban 2,500 (2.7%)
Urban 502 (0.5%)
Municipalities 2,435 (100%)
States 32 (100%)
Household beneficiaries by location size
697,838
3,440,909
861,253
rural
semi
urban 69%
17%
14%
• Coverage in 80% (66,311) of locations with high or very high levels of poverty. 20% not covered is because of a lack of education and health services to certify corresponsability, so they are covered by the Food Support Program (a pre-Oportunidades program)
• Coverage in 97.8% of total rural locations of high and very high poverty levels with between 100 to 2,500 inhabitants.
• Coverage of 99.8% of total semiurban locations with high and very hight poverty levels and 97.8% of total urban locations.
• 76.9% of total locations where 40% or more are of indigenous origin are catered for.
• One in four households covered live in locations where 40% or more are of indigenous origin.
Relevant coverage issues to 2006
Total budget and running costs
Presupuesto 2007 (USD) 3.2 billones*
% PIB (2006) 0.4%
% Gasto Neto Total (2007) 1.5%
Gasto operativo total*
Desglose:
Gasto corriente y de capital del Programa
9.05%
2.77%
Costo de distribución de transferencias a Instituciones liquidadoras 2.01%
Gasto operativo del sector salud 4.28%* Cifras de 2006
Estimated Actual Expenditure 2006
(CNO + Salud)
Budget and running costs 2001-2006
0
200
400
600
800
1,000
1,200
1,400
0
0.5
1
1.5
2
2.5
3
3.5
Presupuesto (USD) 464 624 795 905 1,017 1,281
Gasto operativo (%) 3.2 2.9 2.4 3 2.5 2.8
2001 2002 2003 2004 2005 2006
Nota: Estimated closing figures for 2006
Mil
lon
es
US
D
• The budget allocated to the National Coordination (NC) grew 2.3 time during the period.
• Every year reached the expected household coverage target.
• The NC allocates and distributes food & education support to the households, the running costs has reported and average of 3% during the period.
mill
Po
rce
nta
je
882.5
1,284.4
1,663.31,908.1
2,243.5
2,595.1
-
500.0
1,000.0
1,500.0
2,000.0
2,500.0
3,000.0
2001 2002 2003 2004 2005 2006
mill
on
es U
SD
From 2001 to 2006: growth of 1,713 million USD = 194%
Evolution of resources transferred
• National Background
• Program Background
• Oportunidades: Present Status
• Design & Operation: Key Factors
• Challenges faced for the consolidation of the Program
Contents
Design & Operation: Key Factors
• Targeting of resources
• Cash transfers as incentive to human development
• Integrated approach and interagency coordination at the three government levels
• Efficacy and efficiency in service and operation
• Control and permanent improvement under the Follow-up and Monitoring System and Impact Evaluation
• Transparency and accountability
COMPONENTES INTERVENCIONESMONTOS
Alimentación $16 p/fam
Apoyo en efectivo para mejorar el ingreso y la alimentación
Complemento nutricional a niños menores de 5 años y mujeres embarazadas y en lactancia
SaludServicios básicos de salud preventivaTalleres de capacitación en salud y nutrición
Educación$11 - 69 p/becario
Becas escolares crecientes desde 3º de primaria hasta 3º de Educación Media Superior (12º grado)
Adultos mayores
$ 23 p/adulto
Apoyo en efectivo a adultos de 70 años o más integrantes de familias beneficiarias
Jóvenes con Oportunidades $ 300
Entrega de una cuenta de ahorros para los becarios que concluyan el nivel medio superior
Human Development: Interventions with synergies
Cantidades en USD
The average monthly transfer of the Program is equivalent to approximately 20% of beneficiary
household income.
Corresponsability Scheme
Food Household Attendance to health care services
Health Person >15 yearAttendance to health self-care workshops
Education
All scholars (8 to 21 years old)
Regular school attendance of children/youth
Youth high school scholars
Attendance to health self-care workshops for young people
Senior CitizensAdults 70 years or
olderAttendance to twice a year health check-ups (Proof of life)
Jóvenes con Oportunidades
Youth scholars from Year 9
Finish high school before being 22 of age and formalize their savings accounts
Support CORRESPONSABILITIESRESPONSIBLE
Policy decisions:
• Council of Ministers and Technical Committee of Deputy Ministers)
• Specialized body with technical autonomy: National Coordination of the Oportunidades Program
Institutionalization of the program:
• General Law on Social Development and Administrative Ruling
• Presidential Decree
• Interagency coordination body at the three governmental levels
• Operational rules of the program
Inter Agency Coordination
Coordination Bodies Levels of
governmentBody Representation General Faculties
Federal
Ministers of :• Treasury• Social Development• Health• Education• Social Security Institute
• Normativity• Financing• Evaluation• Equity
Ministry representatives of:• Treasury• Social Development• Health• Education• Social Security Institute
State
State representatives:• Social Development /
Coplade• Social Development
Ministry• Health• Education• Social Security Institute• Comptrollership
• Operation• Service
coordination• Follow-up
Municipality Municipal representative:• Linkage
• Operation support
National Council
National Technical Committee
State Technical Committee
Municipal participation
Certification of Corresponsabilities
Filling of CertificationFormats
(400 thousand formats)
Certify corresponsabilities
Printing of certification
formats E2 y S2
(400 thousand formats)
State Coordination
Health and Education State
Sectors115
thousand
17 thousandl
Health units
Schools
1
2 3
4
56
7
&
State
State
Points of
delivery
Holder receives cash transfer and detailed receipt
Central office
Estimation of money transfers for 10.3 million
people in 5 mill beneficiary households
(=25 mill people)
Paying institutions
Dispersion of resources and electronic transfer of
payments
Permanent process of support delivery
Filling of formats
(400 thousand formats)
State Coordination
(32)
(7,500 MAPs)
7
8 9
101112
Points of
delivery
• National Background
• Program Background
• Oportunidades: Present Status
• Design & Operation: Key Factors
• Challenges faced for the consolidation of the Program
Contents
Challenges for the consolidation of Oportunidades
• Improve the quality of services provided by the Program to the beneficiary population (internal audit, continue with evaluation).
• Generate an energetic subsidy component for beneficiary households.
• Catering for vulnerable groups (disabled, young households with small children, among others)
• Revision of transfer structure and amounts for greater impact, with emphasis on the education component.
• Multimodal intervention to take into account the regional differences in the country.
• Redefinition of duration of support (EDA), considering household vulnerability situation.
• Strengthen the link and coordination with the health and education sectors to improve coverage and quality of services requesting full corresponsability in order to achieve the gradual reduction of the existing gap as regards access.
• Linkage with other efforts that are being implemented at federal, state or municipal level, so as to promote focusing their development action to the population that has achieved a growth in human capital and now requires an exit from poverty.
¡Muchas gracias!
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