SOCIAL POLICIES AND FOOD SECURITY IN SOUTH AFRICA: BETWEEN RELIEF
AND COMPREHENSIVE SOCIAL PROTECTION: SOME CHALLENGES FOR
SOCIAL POLICY TRANSFORMATION
Viviene Taylor
Department of Social Development --- University of Cape Town
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SOCIAL POLICY & THE RIGHT TO FOOD
CONCEPT UAL DEFINITIONS
THE APPROACH TO SOCIAL POLICY/ PROTECTION IN SOUTH AFRICA &
AFRICA
SOME FORMS OF SOCIAL POLICY INTERVENTIONS IN SOUTH AFRICA
BETWEEN RELIEF AND COMPREHENSIVE SOCIAL PROTECTIONADVANCING AN AGENDA FOR SOCIAL TRANSFORMATION
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
University of Cape Town
SOCIAL POLICY & THE RIGHT TO FOOD
• Constitutional mandate: Section 27 of Chapter 2 (Bill of Rights of
RSA Constitution of 1996:13)
1.“Everyone has the right to have access to: a) health care services
including reproductive health care ;
b) sufficient food and water and
c) social security, including if they are unable to support themselves and
their dependents, appropriate social assistance.
2. The state must take reasonable legislative and other measures within its
available resources, to achieve the progressive realisation of each of these
rights.
3. No one may be refused emergency medical treatment.”
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
SOCIAL POLICY & THE RIGHT TO FOOD
• There is a social & economic imperative in the context of mass based
chronic poverty, structural unemployment and increasing inequality to
focus on the links between economic and social objectives.
• There is a moral imperative given the shadow of apartheid and resulting
structural barriers to social and economic development to promote social
inclusion, redress & equity.
• The constitutional mandate for social and economic rights implies a
normative injunction to progressively realise rights and entitlements to
social rights such as social security, food security, children’s well being and
others as expressed in the Bill of Rights.
• Social Policy responses that are relief oriented target symptoms and are
short term, incremental measures and do not address the structural roots
of poverty, unemployment, inequality and food insecurity in South Africa.
• South Africa’s social policy responses lie between relief and a basic
comprehensive social protection net.
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
University of Cape Town
CONCEPTUAL DEFINITIONS
SOCIAL POLICY FROM A TRANSFORMATIVE PERSPECTIVE IS UNDERSTOOD AS
Laws, policies and practices that provide guidelines on:
• Courses of action to address peoples’ social conditions,
needs & concerns
• Links micro level concerns with macro social and economic
interventions
• Promotes equitable distribution of goods, services and
benefits
• The establishment, maintenance and legal enactment of
social services & provision
• Framed within a rights based approach to entitlements they
give expression to constitutional mandates.
• Government and society wide action to address structural
barriers to people’s development – all spheres of society.
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
CONCEPTUAL DEFINITIONS : SOCIAL POLICY & SOCIAL
PROTECTION
SOCIAL PROTECTION IS A TOUCH STONE OF SOCIAL POLICY.
• The ILO (2005) states that social protection or social security should be
understood as a set of institutions, measures, rights, obligations, and
transfers whose primary goal is: to guarantee access to health and social
services; and
to provide income security to help people cope with important risks at
various stages of their life cycle (inter alia, loss of income due to invalidity,
old age, or unemployment) and prevent or alleviate poverty.
• Social security and social protection are terms that are often used
interchangeably.
• Social protection differs from social security in that it has wider
application and can include developmental strategies such as active
labour market strategies for training, retraining, and ensuring that people
are able to access economic & social opportunities such as work, food and
the capabilities to participate in decision-making structures.
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
Functions of Social Protection
Social protection measures provide income (cash) and/or consumption (food, health,
education) transfers to the poor, protects the vulnerable against livelihood risks and
enhances the social status and rights of socially excluded and marginalised people. It
has 5 functions.
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A protective function when measures are introduced to save lives and reduce
levels of deprivation in a society.
A preventive function when measures are taken to assist people from falling into
deeper poverty or becoming vulnerable to risks arising from natural disasters, crop
failure, accidents and illness.
A promotive function of social protection aims to enhance the capabilities of
individuals, communities and institutions to participate in all spheres of activity.
A transformative function focuses on reducing inequities and vulnerabilities
through changes in policies, laws, budgetary allocations and redistributive
measures.
A developmental and generative function. Countries that have introduced cash
transfer programmes are producing social and economic developmental outcomes
(Taylor, 2008)
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
SOUTH AFRICA ADOPTS A COMPREHENSIVE SOCIAL PROTECION
APPROACH
In 2003 the South African Government adopted an approach to social
protection that includes a comprehensive package of measures to
address:
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Income poverty – through income support measures (grants)
Capability poverty – measures to address deprivations in
Health,
Education, etc.
Asset poverty – through housing, land reform, own production – micro initiatives
for sustained livelihoods, training and retraining, credit facilities.
Building economic and social assets through a range of affirmative action
programmes such as Broad Based Black Economic Empowerment (BBBEE)
programmes.
Standard social insurance / security interventions (health insurance, pensions,
Unemployment Insurance Funds, COIDA, etc).
The Taylor Report argued that such a comprehensive approach is best suited to
a developmental process and would ensure the progressive realisation of social
and economic rights of those who are excluded from the benefits of economic
and social development. (Taylor Report, 2002)
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
A COMPREHENSIVE DEVELOPMENTAL APPROACH TO SOCIAL
POLICY AND SOCIAL PROTECTION
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The research and investigations undertaken by the Taylor Committee
highlighted why a Euro centric or American / industrialised country approach
to social policies would not work in South Africa.
Some of the critical factors included:
Structurally determined mass based unemployment,
Educational and skills deficits,
Historic institutional exclusions based on racial discrimination
Resource and power asymmetries
Geography of apartheid (etc.)
Central to the need for a transformative social policy approach in South Africa
is the need to address initial conditions of poverty, deprivations and
inequalities.
Examples of a developmental approach that drew on country experiences in
the global South (Brazil, Costa, Rica, India & South East Asia) were examined.
Because of the exclusions of the majority of its citizens from social and
economic benefits South Africa adopted a developmental approach to rights.
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
AFRICA ADOPTS A DEFINITION OF SOCIAL PROTECTION
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During the last decade debates on social policy and social protection have gained
ground in Africa alongside the need for sustainable strategies to address poverty and
vulnerability.
Debates on social policy tend to be dominated by two main arguments. One which is
economically deterministic and focuses on social policy as pure consumption and a
drain on state finances – argued as unsustainable in the long term. The other focuses on
the role and functions of social protection to address multi-dimensional poverty using a
rights based framework (Taylor, 2008 and 2010).
At the first African Union Conference of Ministers of Social Development—held in
Windhoek, Namibia from 27–31.10.2008—a Social Policy Framework for Africa (SPF)
was debated and adopted.
This framework promotes the gradual building of social protection in African countries.
It promotes social policies that are:
“… based on comprehensive longer-term national social protection action plans.
Measures will include: extending existing social insurance schemes (with subsidies for
those unable to contribute); building up community based or occupation based
insurance schemes on a voluntary basis, social welfare services, employment guarantee
schemes and introducing and extending public-financed, non-contributory cash
transfers”
(Taylor, 2008 citing African Union, www.africanunion.org).
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
AFRICA ADOPTS A DEFINITION OF SOCIAL PROTECTION
• The AU understands Social Protection as a
"package" of policies and programmes with the
aim of reducing poverty and vulnerability of large
segments of the population. This it does through
a "mix" of policies/programmes that promote
efficient labour markets, reduce people's
exposure to risks, and contribute to enhancing
their capacity to protect and cover themselves
against lack of or loss of adequate income, and
basic social services (African Union documents,
2007).
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
SOME FORMS OF SOCIAL POLICY PROVISION & IMPACTS
• Social transfers in the form of cash today reach close to 14 million
people.
• The majority of recipients are women and children
• Evidence shows that these cash transfers are the most efficient in
targeting the poorest households.
• Reductions in poverty and inequality are among the effects.
• Poor households use at least 80% of cash transfers on food
consumption
• The purchasing power of poorest households has increased.
• It plays an important role in alleviating hunger but does not
guarantee food security.
• Cash transfers have a multiplier effect – for every rand spent there
are economic gains within communities of at least two rand.
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
SOME FORMS OF SOCIAL POLICY INTERVENTIONS IN SOUTH AFRICA
SOCIAL TRANSFERS POVERTY BASED
AS SOCIAL POLICY MEASURES- HEALTH
MEASURES ACROSS
GOVT
POVERTY BASED
MEASURES EDUCATION
POVERTY BASED
MEASURES –ASSETS
CATEGORICAL
PROVISION SOCIAL ASSISTANCE
SELF TARGETED
PROVISION
UNIVERSAL
PROVISION
TYPES OF
PROVISION
Access to free
schooling
Free housing for
households with
income below
R3500 per month
Social Grants:
Child support grant
Disability Grant
Old Age Pension
Foster care grant,
Care Dependency
Grant - in the form
of cash transfers
Working for water,
Working for fire,
Expanded Public
Works Programmes
(EPWP)-Social sector
public works
programme,
infrastructure
programme,
Community Works
Programmes
Short term work
opportunities of 100
days per annum
offered below market
related minimum
wage levels
Certain staple
foods are zero
rated for VAT.
Access to primary
health care, free
health care for
pregnant women and
children under 6 years
Early childhood
development Educare
Nutritional
supplements for
mothers and babies
Loans and bursary
schemes for higher
education and
further education
and training.
School feeding
schemes
Farm Inputs (seeds,
training,
implements, funding
–subsidies not sure.
Social Relief –
temporary income
support and food
parcels as
emergency ad hoc
aid
Specific allocation
of free water and
electricity
Dept of Health &
Dept of Education
Dept Social
Development o n ECD.
Dept of Agriculture, Dept of Social
Land & Housing
Development
Dept of Water, Labour National
Cooperative and Local Government
Government,
National Budget
National Budget
National Budget
National Budget
National Budget
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
National Budget
SOCIAL
TRANSFERS AS
SOCIAL POLICY
MEASURES
ACROSS GOVT.
Principles & Issues
POVERTY BASED
MEASURES HEALTH
POVERTY BASED
MEASURES
EDUCATION
POVERTY BASED
MEASURES –
ASSETS
CATEGORICAL
PROVISION &
SOCIAL
ASSISTANCE
SELF
TARGETED
PROVISION
UNIVERSAL
PROVISION
Universal access to
primary health care
Reduces deprivations
in health.
Promotes equity
Universal access to
primary education
Reduces deprivations
to education.
Promotes social
inclusion
Poverty reduction
through asset
building
Promotes social
redress and
inclusion.
Income support to
specific categories of
people based on
means tests.
Reduces poverty by
approx 40%
Reduces inequality
Promotes gender
justice through CSG &
DG – targeted at
poorest.
Temporary
employment
opportunities.
Not offered at
scale.
Benefits all. Poor
households in informal
settlements & rural areas
without access to
electricity and piped
water do not benefit.
Capabilities
enhancement
Building Capabilities
Responds to issues
of land restitution,
redistribution,
reform and land use.
Reducing income
poverty
Significant multiplier
effects in terms of
local development.
Options for household
poverty reducing
strategies.
Provides limited
inclusion for
missing middle income support
While all have access to
certain free units of
electricity and liters of
water - initial conditions
of the poorest mean that
they are not able to
benefit from these
provisions.
Focus on early
childhood
development
Reducing hunger/
increasing food
consumption
Focus on housing for Increasing purchasing
the poorest (RDP),
power of poorest
land use, credit
households
facilities and
sustainable
livelihoods
Programmes
have capacity
building
Provide social /
community
services
Popular demands for
services such as
sanitation, water,
electricity and housing
are increasing & leading
to violence.
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
SOCIAL TRANSFERS
AS SOCIAL POLICY
MEASURES ACROSS
GOVERNMENT
POVERTY BASED
MEASURES HEALTH
EARLY CHILDHOOD
DEVELOPMENT
CRITICAL GAPS I.E.
POLICY, PROVISION,
CAPACITY,
INSTITUTIONAL
ARRANGEMENTS,
ETC.
POVERTY BASED
MEASURES
EDUCATION
POVERTY
BASED
MEASURES –
ASSETS
CATEGORICAL PROVISIONSOCIAL ASSISTANCE
SELF TARGETED
PROVISION –EPWP
EXPANDED PUBLIC
WORKS
PROGRAMMES
UNIVERSAL
PROVISION
Lack of institutional
Lack of social
capacity
Infrastructure
- Administration of
services in all spheres
of govt- local,
provincial, national –
is not working.
Allocation of
resources and
maintenance of
equipment &
infrastructure is not
adequate. Services
are not scaled up to
meet demand.
Lack of
information and
training on how
to access land,
credit and
housing to
develop
livelihood
strategies.
No / few
extension
services and
training
EPWP 11 being scaled
up to 2 million work
opportunities.
Structural barriers –
prevent transitions to
formal employment.
Local government
structures and
provincial
governments have no
systems or designs in
place to use EPWP or
to bring them to scale.
Service delivery
issues are
largely driven
by capacity of
local
government
structures as
well as
provincial
governments.
Inefficiencies
relate to lack of
expertise,
corruption,
cronyism.
Collapsing Health
infrastructure
& Governance issues
The pace and
delivery of land
reform,
restitution and
redistribution
targets have
not been
achieved.
Social grants reach more than
25% of South Africa’s
population, women &
children being the majority of
recipients. Cost to GDP ratio
in the region of 2.8% per
annum (R52 billion approx).
Social relief offered in form of
food parcels & cost R118
million in 2011/12.
No income support for
unemployed 18-59 year olds.
between the ages 18 years
and above the assumption is
that paid work would be
available.
Most direct and efficient
income poverty reducing
strategy. Problems in
administering grants at
payout points. Adequacy of
child support grant is an issue
at R270 per month per child
in 2012.
Demographic youth
bulge means that large
numbers (at 70%) of
unemployed are those
In age group 18- 35
years. Few alternate
options are available
for transition from
school to work
Spatial planning
of poor
communities
does not
address issues
of public
infrastructuregreen areas etc.
School feeding
reaches poorest
schools only on
designated days. R4,
6 billion for 8 978 002
learners in quintile 1
to 3 primary and
secondary schools
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
University of Cape Town
BETWEEN RELIEF AND COMPREHENSIVE SOCIAL PROTECTION - ADVANCING
AN AGENDA FOR SOCIAL POLICY TRANSFORMATION
Advancing an agenda for social policy transformation requires
countries to focus on how to:
1.
Identify and disaggregate structural barriers to capability
2.
3.
4.
5.
6.
enhancing processes including food security.
Ensure distribution and equity in input allocations and
outcomes to address initial conditions and inequalities.
Develop strategies for sustainable resource use (natural,
financial, institutional capabilities, human. etc)
Design appropriate policy frameworks and monitor regulatory
frameworks at global, regional and national levels against violations
of basic rights and access to food security and other basic rights.
Ensure transparency guarantees and accountability measures are in
place to deal with power and information asymmetries
Provide inclusive processes for effective participation of critical
parts of society (government, business, workers, civil society
formations and un-organised working people).
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,
REFERENCES
• RSA (1996) The Constitution of the Republic of South Africa. Chapter 2,
Section 27 (1)c.
• Sen, Amartya (1993) ‘Capability and Wellbeing’ in Nussbaum, Margaret C.
and Sen, Amartya (1993). The Quality of Life, Oxford: Clarendon Press
• Taylor Report of the Committee of Inquiry into a Comprehensive System of
Social Security for South Africa, Transforming the Present – Protecting the
Future, 2002 (Taylor Report), Government of the Republic of South Africa,
Pretoria.
• Taylor V (2008). Social Protection in Africa: An Overview of the
Challenges.Research Report prepared for the African Union. Unpublished
Report. Available at:
http://www.eprionline.com/wpcontent/uploads/2011/03/Taylor2008AUS
ocialProtectionOverview.pdf
Between Relief and Comprehensive Social
Protection: Advancing an Agenda for Social
Policy Transformation by Viviene Taylor 2012, Dept of Social Development,