Draft Joint Sector Review Working Document
Introduction
The Social Protection sector contributes towards the Economic Development and Poverty
Reduction Strategy (EDPRS) by providing cash transfers and access to public works to the extreme
poor, as well as providing them a means of accessing other public services such as health and
education. These objectives are delivered by a wide range of institutions, both governmental and
non-governmental. MINALOC has the overall policy lead on Social Protection and chairs the Social
Protection Working Group which includes representatives from across Ministries, key para-statals,
development partners and NGOs intervening in Social Protection.
The social protection sector in Rwanda has seen a remarkable growth over the past five years.
From a collection of small MINALOC programmes and parallel fragmented donor supported projects
consisting mainly of food aid, social protection has grown into a sector aligned behind a common
strategy and implementation programme. The EDPRS flagship VUP programme is operational in
120 sectors and is now reaching 86,000 households with direct support or public works (2011/12
year to date). Other key programmes are also reaching tens of thousands of vulnerable people.
For example, FARG is supporting 23,360 needy genocide survivors with direct support, 164,187
received Mutuelle de Santé, 2,000 individuals have received each a cow under the one cow per
poor program under income generating activities and construction of houses for 1,166 households is
ongoing whereas 39,036 and 5,066 students are receiving education scholarship in secondary and
universities respectively and 2,443 vulnerable disabled ex-combatants received their monthly
subsistence allowance.
The recent EICV data shows that poverty has reduced by twelve percentage points nationally from
57% to 45% and extreme poverty from 36% to 24% in the past five years: a remarkable
achievement. International and national evidence suggests that the social protection sector will
have a key role to play in ensuring a continuation of this trend in poverty reduction. By the end of
this financial year we expect to have data that will quantify the contribution that social protection
programmes have made in reducing poverty in Rwanda.
a)
i) Progress in the Sector on EDPRS 2011/12 implementation
Summary of Progress in the implementation of the Sector against EDPRS Targets and Policy
Actions in 2010/11
The social protection sector continues to make very strong progress. All Social Protection 2010/11
policy actions were achieved by July 2011 and all indicators in the EDPRS Annual Implementation
Report 2010/11 scored green, except for one for which data was not yet available.
The substantial action taken by the social protection sector to fast track the implementation of policy
actions to ensure that targets are met is demonstrated in the following short review of progress
already made against the targets and key policy actions identified for 2011/12.
1. Government to continue support of VUP and to ensure coordination of all social
protection activities in accordance with National Social Protection Strategy
(NSPS), ensuring that NSPS Implementation Plan (IP) milestones are met
Significant restructuring has taken place to support the social protection sector. In MINALOC a
Directorate in charge of community development and social affairs became operational and a
Director General was appointed. In order to support effective implementation of VUP, a general
Directorate of social protection was also established in the Rwanda Local Development Support
Fund and fully staffed.
1
An institutional framework to support the implementation of the National Social Protection Strategy
has been put in place, led by MINALOC, which brings together Government, development partners,
para-statal organisations and civil society actors. A high level Leadership Team, a Technical Group
and four Sub-Committees are now operational. Short-term technical assistance is in place to
support implementation of the strategy and ensure that all Implementation milestones are met. The
recruitment of additional permanent staff to MINALOC is underway, in order to ensure the required
long-term support to strategy implementation.
2. Continue scale up of PW in accordance with international best practices in 120 sectors
The Public Works Programme has been scaled up to 120 sectors, where 152 projects are under
implementation. Since July 2011, 61,411 households have benefitted, of which 28,591 (47%) are
female headed. The target ‘35% of eligible households granted Public Works’ has already been
exceeded. 45% of eligible households have accessed Public Works during the year to date.
The re-targeting process carried out in 2011 introduced delays and no new public works projects
were started between July and December, but 60 % of Districts have now submitted their new
projects for funding and technical staff have been sent to support the remaining Districts.
The sector strives to continually improve the impact and efficiency of public works programmes. To
this end, the gender review to be carried out later this year will look at how pregnant women and
nursing mothers access public works; and a study next financial year will look at the access of
people with disabilities.
3. Continue scale up of direct support in accordance with international best practices in 120
sectors
The Direct Support component was also scaled up to 120 sectors and reached 26,525 households,
of which 17,020 (64%) were female headed. These households contained a total of 59,949
individuals.
As mentioned above, the 2011 re-targeting process carried out during 2011
occasioned a delay in finalising beneficiary lists and these meant that no Direct Support payments
were made between July and December 2011. Now, beneficiary lists have been finalised and all
eligible households have benefited from a six month back payment of Direct Support. Tools for
handling appeals and complaints were rolled-out to all sectors.
4. Roll out financial services targeting the poor in all VUP sectors. VUP financial services
policies and procedures are clarified and defined and presented to the SWG.
This component was also rolled out in 120 sectors. In the first six months of 2011/12, 14,000
people were reached, of whom 46% were women.
The final financial services policies and procedures have yet to be presented to the Sector Working
Group. A recent review has identified a number of strategic risks to this component, including
limited institutional capacity, low repayment rates and a lack of a clear exit strategy. Given these
challenges, the social protection sector is in the process of reflecting on the options and
recommendations in the report and is deciding on the best way forward. As part of this a technical
committee has been set up, which includes representatives from RLDSF, MINECOFIN and BNR.
5. Ensure that 2000 communities are implementing Ubudehe community projects
All preparatory work for project implementation of projects has been carried out. To promote
efficiency of implementation, it was decided to concentrate all 2000 projects within ten Districts.
Training for Ubudehe committees, cell secretaries and village leaders has been completed.
Planning and approval of all individual and community projects was also carried out before the end
of the 2011 calendar year, though disbursal of funds did not commence. In order to ensure that the
2
budget is fully executed by year end, project implementation will be accelerated during the
remainder of the year.
3
Progress Against EDPRS 2011/12 Targets and Policy Actions
EDPRS
STRATEGIC
OUTCOMES
(Results)
INDICATORS
2.8.1
Improved
Social Safety Net
2.8.1.
percentage
households
bottom
categories
extreme
according
UBUDEHE
The
of
in the
two
of
poverty
to
EXPECTED PERFORMANCE
PUBLIC POLICY ACTIONS
Baseline
2010/11
Target
2011-12
Traffic
light
scoring
and
actual
performa
nce
Key policy Benchmark/output 2011/12
Status
(fully
achieved,
or not fully
achieved)
Brief progress and Proposed Evidence
34% (2007)
29.3%
N/A
Government to continue support of VUP
and to ensure coordination of all social
protection activities in accordance with
National Social Protection Strategy
(NSPS), ensuring
that NSPS
Implementation Plan (IP) milestones are
met
Ongoing
The Ministry of Local Government is in the
process of strengthening the staff through
recruitment of technical assistance to
ensure that the implementation activities
are implemented.
A department of social protection where
VUP is situated was created under the
Rwanda Local Development Support
Fund to strengthen the implementation of
VUP. Since September 2011, staff
recruitment was done in order to ensure
implementation of government policies.
Baseline survey is ongoing and at the
level of data entry;
Terms of reference for conducting
evaluation of VUP were advertised
2.8.2 Percentage of
eligible households
granted public works
91%
35%
45%
Continue scale up of PW in accordance
with international best practice in 120
sectors
Ongoing
The selection of PW beneficiaries was
concluded and about 60% of the sectors
submitted projects and implementation is
underway. Technicians have been sent to
the remaining districts where PW have not
yet been identified to support those
districts
4
EDPRS
STRATEGIC
OUTCOMES
(Results)
INDICATORS
EXPECTED PERFORMANCE
PUBLIC POLICY ACTIONS
Baseline
2010/11
Target
2011-12
Traffic
light
scoring
and
actual
performa
nce
Key policy Benchmark/output 2011/12
Status
(fully
achieved,
or not fully
achieved)
Brief progress and Proposed Evidence
2.8.3 Percentage of
eligible households
granted
direct
support
in
VUP
sectors
100%
85%
100%
Continue scale up of direct support in
accordance with international best
practices in 120 sectors
Ongoing
Lists of all Direst Support beneficiaries
have already been submitted and
processing of payments is ongoing
Ongoing
Tools for handling appeals and complaints
were developed and successfully pilottested in 5 VUP sectors. A circular to roll
out this appeals and complaints
mechanism to all VUP sectors has been
prepared. A brief summary of the roll out
process is in its draft form awaiting
validation.
2.8.4 Percentage of
VUP sector adult
population with an
active account in
financial services
<19%
(Finscope
Survey 2008)
Roll out financial services targeting poor
in all VUP sectors
Ongoing
The selection process has already been
finalized
VUP financial services policies and
procedures are clarified and defined and
presented to SWG
Ongoing
Technical committee was set up.
Members of Technical committee include
representatives of RLDSF, MINECOFIN
and BNR.
The Technical committee
produced a draft proposal report matching
Financial Services component/VUP with
SACCO. Draft report is available
35%
N/A
VUP beneficiaries training manual was
developed. There is a need of validation.
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EDPRS
STRATEGIC
OUTCOMES
(Results)
INDICATORS
2.9
Integrated
Social Protection
Programming
2.9.1
Level
of
harmonization of the
Social
Protection
sector
EXPECTED PERFORMANCE
Baseline
2010/11
Target
2011-12
MINALOC
represent
about
80%
total
Social
Protection
Spend
Prog-ress
to SWAp
Eg MOU
PUBLIC POLICY ACTIONS
Traffic
light
scoring
and
actual
performa
nce
Key policy Benchmark/output 2011/12
Status
(fully
achieved,
or not fully
achieved)
Brief progress and Proposed Evidence
Ensure that National Social Protection
Strategy Implementation plan milestones
(NSPS) met.
Ongoing
There are a set of policy actions as
detailed in the implementation plan which
are at different stages of implementation
e.g. the development of MIS is in its initial
stages; the different technical working
groups and membership for the SWG
were approved by the leadership team;
the roadmap for VUP scaling up for
2012/13 was developed and is awaiting
validation; the process of recruiting
Technical assistance to support the
implementation of the NSPS are
underway.
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a) ii) Summary report of budget execution by programme and sub-programme.
Budget Execution July 2011 to March 2012
Ministry/Agency
Sub program
Approved Budget
Execution
%
17,405,950,037
13,539,255,241
78%
Promotion
of
Social Protection
Support
to
Vulnerable
groups
Support
to
Genocide
Survivors
National
Commission for
Demobilization
and Reintegration
62,253,000
28,843,397
46%
315, 128, 901
182,790,254
58%
8,866,934,399
5, 498,680,268
62%
3, 973,744,000
3,775,472,686**
95%
Support to rural
settlement
4, 187, 889,737
4,053,468,636
97%
347,822,918
29,000,000
8%
222,063,999
15,000,000
7%
125,758,919
14,000,000
11%
262,584,008
157,149,773
60%
262,584,008
157,149,773
45%
376, 158, 664
140, 505, 465
37%
MINALOC
MIDIMAR
Assistance,
protection
of
refugees
and
reintegration
of
returnees
Risk
reduction
and
disasters
management
PRIMATURE(MIGEPROF)
Family promotion
and protection
Child
rights
promotion
and
protection
RLDSF (Social Protection)
17,396,789,548
47%
Direct Support
3,807,660,458
2,123,990,299
56%
Public Works
10,833,970,558
5,097,334,809*
47%
Financial
Services
Ubudehe
Community
Projects
2,309,477,192
1,040,711,324*
45%
445,681,340
0
0%
13,444,160,698
6,888,078,001
51%
DISTRICTS (Ear Marked)
Social protection (MINALOC)
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Ministry/Agency
Sub program
Approved Budget
Execution
%
12,037,549,100
6,260,629,135
52%
1,406,611,598
627,448,866
45%
1,007,846,137
525,648,515
52%
Child
rights
promotion
and
protection(
833,257,698
422,549,689
51%
Gender
and
women promotion
174,588,439
103,098,826
59%
Support
genocide
survivors
to
Support
to
vulnerable groups
MIGEPROF)
** This amount includes the already committed funds; the actual payments are 2,675,578,353 which
is equal to 63.3% of budget execution
Some of the budget lines that are underspent and the reasons for this are as follows:
Risk Reduction and Disaster Management (11%): TBD
Child Rights Promotion and Protection (37%): Their social protection budget is at 37.4% execution
which is low spending because the budget approved for child rights and protection sub program was
transferred to National council for children (a new budget agency) implementing the said program.
Two sub programs (budget lines) have spent substantially more than the 70% which would be
expected in the last quarter of the financial year. The reasons for this are as follows:
National Commission for Demobilisation and Reintegration (95%): The execution rate in the
commission is at 95% because it includes the already committed funds. The actual spend is
2,675,578,353 which is 63%.
Support to Rural Settlement (85%): the budget execution on rural settlement was mostly spent on
supporting vulnerable households in eradication of grass thatched houses specifically on purchasing
of iron sheets which was all done in the second quarter.
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a) iii) The key challenges and lessons learned and a summary report of progress on
underperforming areas identified in the 2010/11 EDPRS Annual Implementation Report
and JSR
Challenges and Lessons Learned
The cross-cutting nature of social protection and the rapid scale up of social protection programming
in Rwanda were flagged in the previous Forward Looking Review (April 2011) as key challenges
and they continue to form the context for our work in the sector.
Key lessons learned in the sector are that:
 There is an urgent need to strengthen both human and institutional capacity to deliver on social
protection. Substantial progress has already been made by setting up new Directorates in both
MINALOC and RLDSF; by re-energising the social protection Sector Working Group structures; by
securing short term technical assistance; and by training social protection staff at national and
decentralised levels. But, in the face of continued rapid scale-up of innovative programmes, much
more remains to be done. In order to maintain programme quality and ensure results, long-term
policy capacity within MINALOC and programme delivery capacity at both national and
decentralised levels require substantial further strengthening. In the absence of this, there is a real
risk that achievements to date will not be sustained. .
 Targeting mechanisms need to be reviewed and strengthened to maximise the impact of social
protection programme, the efficiency of spending in the sector and the timeliness of payments. One
challenge faced during the period July to December 2011 was the interruption in payments to VUP
Direct Support and Public Works beneficiaries, occasioned by a revision of the Ubudehe targeting
mechanism. Back-payments have now been made to all eligible households and action has been
taken to improve the timeliness of payments going forward.
 Improved monitoring, evaluation and analysis (including gendered analysis of access and
impacts) is required in order to inform policy and programming decisions. In the medium term this
needs to be underpinned by an effective management information system (MIS).
 Improved harmonisation of efforts has led to greater effectiveness and efficiency in the sector
and the Social Protection Sector is now performing very well in this regard. There is still scope for
further improvement through the development of a Social Protection SWAp.
 There is still considerable need to increase the scale and coverage of social protection
programmes. Substantial investment in the sector will be required to enable this to happen and
financing needs to be underpinned by a strengthened MTEF and stronger linkages between
planning and budgeting processes. This is particularly important in the context of fiscal
decentralisation.
The first three months of 2011/12 saw the finalisation and approval of the Implementation Plan of
the National Social Protection Strategy, which set out a detailed action plan, taking account of all the
lessons listed above. Since September 2011, the first steps to putting the plan into practice have
been taken.
a) iv) New Priorities for the Medium Term
Given the challenges and lessons learned listed above, the following have been identified in the
Social Protection Strategy as the key priorities for the Social Protection Sector over the medium
term. These were also the key recommendations of the April 2011 Forward Looking Joint Sector
Review.
1. Leadership, coordination and capacity on social protection strengthened across
government
9
The newly created structures within the Social Protection Working Group will be strengthened and
participation broadened; a new social protection team will be set up within MINALOC; and an
extensive programme of capacity building will be undertaken.
Since the April 2011 Forward Looking JSR : a two tiered Social Protection Working Group was
established, with a high level Leadership Group and a Technical Working Team with four subcommittees with high representation from across government, development partners and civil
society organisations. Short term technical assistance to support the Implementation Plan for the
National Social Protection Strategy was sourced and will support capacity building of the MINALOC
social protection team. Also social protection training for staff involved in SP programmes and
policy making at national and decentralised levels was carried out.
By the end of 2011/12 the Social Protection Sector will: keep up the momentum of the two tiered
Social Protection Working Group, ensuring that the high level Leadership Group meets at least
twice in the year and that the Technical Team meets every two months and that meetings are wellstructured and usefully guide the work of the sector. The four newly created Sub-Committees on
policy, systems, finance and early warning systems will finalise their terms of reference and
workplans and will meet at least three times before the end of the year. A team of consultants will
provide short term technical assistance to move forward urgent actions in the Social Protection
Strategy Implementation Plan. In order to ensure the required long term capacity on social
protection, a restructuring plan for the Community Development and Social Affairs Department will
be developed and the recruitment of any required additional staff will be launched. We will also
develop a staffing and capacity building plan for the expansion of VUP.
In the medium term the Social Protection Sector will: put in place a permanent social protection
policy team in MINALOC and its capacity will be built by the short term technical team. Social
protection will be mainstreamed into the work of the JADFs at District and Sector levels and we will
develop stronger linkages between the centre and Districts. The Sector Working Group structures
will continue to function effectively and will enjoy the active participation of a wide range of
stakeholders, including not only Government Ministries and Agencies, but also NGOs and the
private sector. The training programme to build social protection capacity at national and
decentralised levels will be institutionalised and trainings will continue to be provided regularly. The
Government of Rwanda will also work collaboratively with partner states within the East Africa
region on social protection issues of common interest.
2. Social protection policies developed that are evidence-based and appropriate for Rwanda
By carrying out impact analysis of existing social protection programmes and feasibility studies of
potential new approaches, the social protection sector will ensure that policy and programme
development is based on high quality national and international evidence.
Since the April 2011 Forward Looking JSR, MINALOC has: carried out, with the support of
development partners, a social protection mapping of stakeholders and a social safety nets study.
By the end of 2011/12: an assessment of the implications of the two studies will be carried out. We
will also assess the recent performance of the Ubudehe targeting mechanisms, looking at whether
any risks and challenges can be addressed through minor modifications and additional verification
processes, or whether more fundamental review is required. We will start looking at how existing
social protection programmes are reaching particular groups within the extreme poor, including the
elderly, children and people with disabilities; and we will develop framework/TORs for assessing the
feasibility, the advantages and disadvantages of complementary or alternative programmes to reach
these groups. We will also develop framework/TORs for looking at the feasibility, advantages and
disadvantages of developing an employment guarantee scheme. We will launch a major three year
evaluation of the VUP programme; we will update the social protection sector logframe; and we will
feed in to the development of EDPRSII.
In the medium term: the analysis of how well existing social protection programmes are reaching
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vulnerable groups will be completed and we will carry out the feasibility studies into an employment
guarantee scheme, child grant, old age grant and disability grant; we will model the costs involved;
and based on the outcomes of the study, recommendations will be taken into consideration for
future social protection programming in the medium term. As well as these studies, there are
planned in-depth evaluations of key social protection programs which will inform the revision of the
social protection policy which is planned for 2013/14.
3. Increased coverage of gender-sensitive social protection programmes that support the
provision of a minimum income for families
The VUP Direct Support and Public Work programmes will be substantially extended. Formal
sector programmes will be expanded and efforts made to ensure that all social protection
programmes support the goals of gender equality and women’s empowerment.
Since the April 2011 Forward Looking JSR the Social Protection Sector has: expanded the VUP
Direct Support and Public Works Programme to 120 sectors and developed the TORs for a gender
analysis of the VUP programme.
By the end of 2011/12: a gendered analysis in the social protection sector specifically of VUP will
be carried out with the intention of identifying the level of access to and impacts of the VUP
programme disaggregated by gender. We will also use EICV and Ubudehe data to determine the
geographical focus of the VUP scale-up plan and the sectoral budget allocations.
In the medium term: Vision 2020 Umurenge Program will continue to scale up Direct Support to all
sectors across the country and Public Works to 240 sectors. In scaling up, programme quality will
be maintained and strengthened, taking account of the lessons learned from implementation to date
and the analytical work that we will have carried out. We will carry out a mid-term review of the VUP
programme in 2012.
4. Strengthened systems established for the delivery and monitoring of social protection
programmes
During the early implementation phase of social protection programmes, lessons have been learned
about how delivery can be strengthened. Key improvements will be made in the areas of monitoring
and evaluation (M&E) systems, payments mechanisms and appeals processes.
Since the April 2011 Forward Looking JSR: a preliminary assessment of existing management
information systems (MIS) in key SP institutions was conducted, and a decision on the institutional
location for a new computerised MIS was reached and as a first step, the TORs for a design
consultancy for the MIS were developed. The appeals and complaints mechanism to all operational
sectors were rolled out in all operational sectors, and we have developed a draft graduation and exit
policy and have scoped the potential for linking social protection and early warning systems.
By the end of 2011/12: the monitoring and evaluation framework of the sector will be strengthened
through developing of some tools such as the log frame; and work will commence on the design of
the Social Protection MIS that will underpin strengthened monitoring and evaluation in the sector.
We will also finalise the VUP graduation and exit policy.
In the medium term: a social protection MIS will be developed, pilot tested and rolled out. We will
review e-payment options, pilot test and the roll-out the preferred approach; and we will carry out a
review of the implementation of the VUP graduation and exit policy.
5. Financial resources generated and sector-wide financial system developed to support
delivery of social protection programmes
A significant challenge facing the sector is generating the necessary financial resources. The
activities set out in the Implementation Plan for the National Social Protection Strategy will require
11
an annual budget of approximately 60 billion Rwf by 2015/16. By demonstrating success in the
sector we have managed to secure new sources of funding, but there is still a key financing gap,
which needs to be addressed.
Since the April 2011 Forward Looking JSR MINALOC has: carried out a preliminary internal review
on how to harmonise existing cash transfer programmes in the social protection sector.
By the end of 2011/12 the Social Protection Sector will: develop a financing strategy, identifying
means of generating increased funding; and develop a funding mechanism for the social protection
sector, supporting the formalisation of a social protection SWAP and improved MTEF. We will also
carry out further analysis on how best to harmonise social protection programmes.
In 2012/13 the Social Protection Sector: have a social protection SWAP in place with MOUs signed
with all contributing developing partners.
6. Social development and complementary programmes to social protection implemented
that support family and community efforts to move out of poverty
There are a range of programmes that fall outside the social protection sector as defined in the
social protection strategy, but which nonetheless are important complementary activities to those of
the core social protection sector. These include financial services and Ubudehe community
projects; as well as policy and programmes on nutrition, early childhood development, Mutuelles de
Santé and child protection that are led by other Ministries, including MINISANTE, MIGEPROF,
MINEDUC and MINAGRI. For example the Government has just approved the “Rwanda National
Care Strategy: Family Based care for Children in Institutions”, which includes a child grant to be
paid to each child for 2 years post-placement. Implementation of this will be led by MIGEPROF.
Since the April 2011 Forward Looking JSR the RLDSF has: scaled up VUP financial services to 120
sectors and carried out a review of this component. We have also rolled out Ubudehe projects in
2000 communities.
By the end of 2011/12 the Social Protection Sector will: consider the recent review of VUP financial
services and decide on the way forward. We will also strengthen linkages and synergies of the
sector with policy areas relevant to social protection objectives. We will engage with MINEDUC on
the Early Childhood Development Policy (2011), with MINISANTE on Mutuelles de Santé and with
MINISANTE and MINAGRI on nutrition.
In 2012/13 the Social Protection Sector: will reach 3500 communities with Ubudehe community
projects. We will continue to strengthen synergies with complementary programmes across
Ministries, in order to maximise sustainable graduation out of poverty (bearing in mind that some
people may not graduate.) We will work with other Ministries and the Social Cluster to develop
shared targets to guide social protection and complementary programmes. We will engage
increasingly with private insurance providers for health, pensions and employment.
7. Increased awareness across Rwanda and internationally of the benefits of social
protection programmes and lessons learnt.
In order to create more awareness of social protection programs amongst all stakeholders, an
effective communications is critical, in order to promote a shared understanding and commitment to
common objectives.
Since the April 2011 Forward Looking JSR: a communications strategy for the social protection
strategy is under development.
By the end of 2011/12: a communications strategy will developed to promote a greater shared
understanding of social protection by all key stakeholders, including: policy makers at national level
across a range of Ministries; staff involved in implementing, overseeing and communicating about
social protection programmes at decentralised levels; and the population at large, including the
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target population of social protection programmes. We will pay attention to ensuring that relevant
communications reach marginalised groups, including people with disabilities.
In 2012/13: the communications strategy will be implemented.
b) Sector Budgetary Allocations
Indicative budget for social protection sector 2012/13
BUDGET AGENCY/ Sub
program
Outputs
2012/2013 BUDGET
2013/2014
BUDGET
2014/2015
BUDGET
1.
Social protection coordination
and financing mechanisms
established.
Capacity building of
stakeholders
Establish legal frame work for
elderly people
Improved targeting
mechanism
Households in the categories
of extreme poverty reduced
399,854,869
193,936,720
170,837,146
Social assistance provided to
extremely poor and
vulnerable groups (HMP,
PWD, Ex-Combatants, and
Genocide survivors
156,854,869
66,536,720
57,637,146
MINALOC
1.
Promotion of social
protection
2.
3.
4.
5.
2.
Support to vulnerable
groups
1.
RWANDA LOCAL DEVELOPMENT SUPPORT FUND (VISION 2020 UMURENGE)
1.
Direct Support
Scale up direct support in 180
sectors based on EICV data.
6,071,445,263
2.
Public Works
Scale up public works in 150
sectors based on EICV data
18,000,000,000
3.
Financial Services
Scale up financial services to 150
services in 150 sectors
3,280,000,000
RWANDA LOCAL DEVELOPMENT SUPPORT FUND (UBUDEHE PROGRAM)
Ubudehe Community Projects
Implement 3500 Ubudehe priority
projects at the community and
household level using the
Ubudehe database
2,922,184,289
FARG
13
BUDGET AGENCY/ Sub
program
Outputs
2012/2013 BUDGET
2013/2014
BUDGET
2014/2015
BUDGET
Support to genocide Survivors
1. Pay education scholarship in
11,156,490,259
11,745,966,803
11,655,337,94
5
11,199,815,520
5,263,991,252
5,223,375,650
NATIONAL COUNCIL OF
PERSONS WITH
DISABILITIES (NCPWD).
600,000,000
660,000,000
690,000,000
Promotion of social protection
600,000,000
660,000,000
690,000,000
Early Warning System are
effectively monitored
Vulnerability and hazard
mapping in disaster prone
areas.
133 725 000
153 865 710
177 039 875
Reintegration of returnees
Assistance ,coordination and
protection of refugees
Repatriation of Rwandan
refugees
138 577 982
182 461 875
209 942 992
698 001 421
858 538 821
950 476 919
secondary, University and
TVET
2. Support needy genocide
survivors to access health
care services
3. Support genocide survivors in
income generating activities
through Girinka Program
4. Provide decent shelter for
needy genocide survivors
5. Provide direct support to
extremely needy genocide
survivors.
NATIONAL COMMISSION FOR
DEMOBILISATION
SOCIAL PROTECTION
1.
2.
3.
Payment of subsistence
monthly allowances,
Construction of category
2 houses for disabled ex
combatants. Provision of
health services to disabled ex
-combatants
MIDMAR
1.
Risk reduction and disaster
management
1.
2.
2.
Assistance, protection
of refugees and reintegratio
n of returnees
1.
2.
3.
NATIONAL COMMISSION
FOR CHILDREN
1. Child rights promotion and
protection
INDICATIVE CEILING FOR SOCIAL PROTECTION AT DISTRICT LEVEL
SOCIAL PROTECTION
10,982,836,485
14
BUDGET AGENCY/ Sub
program
Outputs
2012/2013 BUDGET
2013/2014
BUDGET
2014/2015
BUDGET
(MINALOC)
1.
Support to genocide
survivors
9,660,194,025
2.
Support to vulnerable
groups
1,322,642,460
CHILD RIGHTS PROMOTION
AND
PROTECTION(MIGEPROF)
822,230,245
1.
Child protection
731,907,726
2.
Support to the children
rehabilitation centres and
orphanages
90,322,519
The table above presents the medium term expenditure framework for the sector within the sector
ceilings. Some of the major milestones that will be implemented in the medium term include are
described in section a (iii) above:
15
c) i) EDPRS Results and Policy Matrix for 2012/13
EXPECTED PERFORMANCE
Indicator
Baselin
e (2006)
Basel
ine
(2008
)
2.8 Improved Social Safety
Net
2.8.1. The
34%
percentage
(2007
of
)
household
s in the
bottom two
categories
of extreme
poverty
according
to
UBUDEHE
classificati
on No
baseline
survey to
be
conducted
in 2009
Targ
et
2009
-10
Targ
et
2010
-11
PUBLIC POLICY ACTIONS
Targ
et
2011
-12
Target
201213
Source
of data
2008
2009
2009/10
2010/11
2011/12
2012/13
29.3
%
28.6%
MINAL
OC
(VUP
program
, VUP
poverty
baseline
s/
impact
study
July
2011))
Governmen
t has
committed
budget
allocations
to
implement
the VUP
program in
at least 6
pilot
sectors and
established
a core
manageme
nt team to
implement
the VUP
policy
framework.
Governme
nt has
committed
budget
allocations
to
implement
the VUP
program in
at least 15
pilot
sectors and
ensured
coordinatio
n of all
social
protection
activities, in
accordance
with
National
Social
Protection
Policy
Governme
nt has
committed
budget
allocations
to
implement
the VUP
program in
at least 30
pilot
sectors
and
ensured
coordinatio
n of all
social
protection
activities,
in
accordanc
e with
National
Social
Protection
Governme
nt to
continue
support of
VUP and to
ensure
coordinatio
n of all
social
protection
activities,
in
accordanc
e with
National
Social
Protection
Policy
Governme
nt to
continue
support of
VUP and to
ensure
coordinatio
n of all
social
protection
activities,
in
accordanc
e with
National
Social
Protection
Policy
Social
Protection
Implement
a-tion Plan
milestones
met
Governmen
t to
continue
support of
VUP and to
ensure
coordinatio
n of all
social
protection
activities, in
accordance
with
National
Social
Protection
Policy,
ensuring
that Social
Protection
Implementa
tion Plan
milestones
are met
Social
Protection
Implement
at-ion Plan
adopted
16
EXPECTED PERFORMANCE
Indicator
2.8.2
Percentag
e of eligible
household
s granted
public
works
Baselin
e (2006)
0
Basel
ine
(2008
)
35%
Targ
et
2009
-10
35%
Targ
et
2010
-11
35%
Targ
et
2011
-12
35%
PUBLIC POLICY ACTIONS
Target
201213
35%
Source
of data
VUP
reports,
CDF
reports,
District
Social
Affairs
Department
reports,
EICV
for data
for 2010
2008
Finalise
budget
allocations
for VUP
public
works in
line with
EDPRS
priorities
and
complete
the
implementa
tion
manuals of
PW
programme
s
incorporatin
2009
2009/10
Baseline
survey to
be
conducted
Policy
Policy on
public
works
applied in
accordanc
e with
internation
al good
practice in
respect of:
wage rates
(ration to
market
wage less
than 1);
community
selection of
projects;
voluntary
Scale up
public
works in
according
to
internation
al good
practice in
respect of:
wage rates
(ration to
market
wage less
than 1);
community
selection of
projects;
voluntary
savings
2010/11
Publicise
eligibility
criteria and
programm
e policy
and
procedures
and
disclose
lists of
eligible
household
s at sector
and village
levels.
2011/12
Assess
overall
reduction
in extreme
poverty
between
end-2008
& end2011 and
contributio
n of social
protection
Continue
scale up of
PW in
accordanc
e with
internation
al best
practice in
120
sectors
2012/13
Continue
scale up of
PW in
accordance
with
international
best practice
in 150
sectors.
Evaluation
of PW
programme
presented to
SWG.
Introduce
an
independe
17
EXPECTED PERFORMANCE
Indicator
2.8.3
Percentag
e of eligible
household
s granted
direct
support in
VUP sector
Baselin
e (2006)
0
Basel
ine
(2008
)
0
Targ
et
2009
-10
60%
Targ
et
2010
-11
70%
Targ
et
2011
-12
85%
PUBLIC POLICY ACTIONS
Target
201213
90%
Source
of data
MINAL
OC,MIN
ISANTE,
MINED
UC
MIGEPROF,
MIJESP
OC,
CSOs,
EICV
for data
for
2010,
other
external
studies
2008
2009
2009/10
2010/11
g
internationa
l good
practice.
savings
and direct
payment of
wages,
and with
budget
allocations
reflecting
EDPRS
priorities.
Policy of
direct
transfers
applied in
accordanc
e with
internation
al good
practice
policies in
respect of
transparent
communic
ation
systems
for
determinin
g eligibility
of clients
and timely
payment of
and direct
payment of
wages,
and with
budget
allocations
reflecting
EDPRS
priorities.
nt
mechanis
m to
handle
complaints
in 5 pilot
sectors.
Scale up
VUP direct
supports
according
to
internation
al good
practice
and ensure
coordinatio
n of all
social
protection
activities in
accordanc
e with the
national
social
protection
policy.
Publicise
eligibility
criteria and
programm
e policy
and
procedures
and
disclose
lists of
eligible
household
s at sector
and village
levels.
Finalise
budget
allocations
for VUP
direct
support
packages
in line with
EDPRS
priorities
and
complete
the
implementa
tion
manuals of
DS
programme
s
incorporatin
g
2011/12
2012/13
Continue
scale up of
DS in
accordanc
e with
internation
al best
practice in
120
sectors.
Continue
scale up of
DS in
accordance
with
international
best practice
in 180
sectors.
Evaluation
of DS
programme
presented to
SWG.
Introduce
an
independe
nt
mechanis
18
EXPECTED PERFORMANCE
Indicator
2.8.4 % of
VUP sector
adult
population
with an
active
account in
a financial
institution
Baselin
e (2006)
Basel
ine
(2008
)
Targ
et
2009
-10
<19%
Targ
et
2010
-11
Targ
et
2011
-12
PUBLIC POLICY ACTIONS
Target
201213
35%
Source
of data
Finscop
e
survey
2008
2009
internationa
l good
practice.
benefits,
with
budget
allocations
reflecting
EDPRS
policy
priorities.
Policy of
microfinan
ce applied
in
accordanc
e with
internation
al good
practice
policies
2009/10
2010/11
2011/12
2012/13
Roll out
financial
services
targeting
the poor in
all VUP
sectors.
VUP
financial
services
policies
and
procedures
are
clarified
and
defined
and
presented
to the
SWG.
Evaluate
financial
services
targeting the
poor in all
VUP
sectors.
Roll out
financial
services in
150 sectors.
m to
handle
complaints
in 5 pilot
sectors.
Scale up
VUP
microfinan
ce in
accordanc
e with
internation
al good
practice
Continue
scale up
VUP
microfinan
ce in
accordanc
e with
internation
al good
practice
2.9 Integrated Social Protection
19
EXPECTED PERFORMANCE
Indicator
Baselin
e (2006)
Basel
ine
(2008
)
Targ
et
2009
-10
Targ
et
2010
-11
PUBLIC POLICY ACTIONS
Targ
et
2011
-12
Target
201213
Source
of data
2008
Prog
-ress
to
SWA
p
Eg
MOU
SPI
developed
(to
delete)
;
District
s
provide
eviden
ce of
harmo
nisation
betwee
n SP
provide
rs in
DDPs
PER
2006,
MINAL
OCMINECOFI
N.
District
budget
and
annual
plan
docs,
SPI
Undertake
comprehen
sive
mapping of
social
protection
sector by
MINALOC
and inform
social
protection
strategy
developme
nt.
2009
2009/10
2010/11
2011/12
2012/13
Complete
socioeconomic
surveys for
30 pilot
VUP
sectors
using
standard
methodolo
gy and
complete
early
review of
VUP.
Adopt
Socioeconomic
audit
methodolo
gy by all
districts.
Ensure
NSPS IP
milestones
met.
Ensure
that 2000
communiti
es are
implementi
ng
Ubudehe
community
projects.
Ensure
NSPS IP
milestones
met,
including on
gender
equity.
Programming
2.9.1 Level
of
harmonizat
ion of
Social
Protection
Sector
MINAL
OC
represe
nts
about
80%
total SP
spend
(2005):
FARG,
Ubudeh
e and
HIMO
PW.
Donor
support
parallel,
fragmen
t-ed,
dominat
ed by
food
aid.
Endorse
minimum
package of
services for
OVCs.
Finalise
Social
Protection
Strategy
drawing on
lessons
from VUP
pilot and
other
programm
es, and
approved
by Cabinet.
Establish
institutional
and legal
framework
s for
implementation.
3500
communities
are
implementin
g Ubudehe
priority
projects
(community
and
household.)
Sector-wide
funding
mechanism
in place.
20
EXPECTED PERFORMANCE
Indicator
Baselin
e (2006)
Basel
ine
(2008
)
Targ
et
2009
-10
Targ
et
2010
-11
Targ
et
2011
-12
PUBLIC POLICY ACTIONS
Target
201213
Source
of data
2008
2009
2009/10
2010/11
2011/12
2012/13
c) ii) Revised EDPRS indicators and policy actions (with clear justification)
Current
Proposed Change
Reason
2.8 Improved Social Safety Net
INDICATORS
21
Current
Proposed Change
Reason
2.8.1 The percentage of households in
the bottom two categories of extreme
poverty
according
to
UBUDEHE
classification:
Baseline: 34.0% (2007)
Target 2012/13: 28.6%
2.8.2 Percentage of eligible households
granted public works
Baseline: 0 (2008)
Target: 35% (2012/13)
2.8.3 Percentage of eligible households
granted direct support in VUP Sector
Baseline: 0 (2008)
Target 2012/13: 90%
2.8.4 Percentage of VUP sector adult
population with an active account in a
financial institution
Baseline: <9% (2008)
22
Current
Proposed Change
Reason
Delete SPI developed.
More reflection is required on the Social
Protection Index. Given other priorities, it is
Target: 2012/13:35%
POLICY ACTIONS
2.8.1. Government to continue support
of VUP and to ensure coordination of all
social protection activities in accordance
with National Social Protection Strategy
(NSPS), ensuring that NSPS
Implementation Plan milestones met.
Assessment on overall reduction in
extreme poverty between 2006/7 and
2010/11 in VUP Sectors.
2.8.2 Continue scale up of PW in
accordance with international best
practices in 150 sectors. Evaluation of
Public Works Programme presented to
Sector Working Group.
2.8.3 Continue scale up of DS in
accordance with international best
practice in 180 Sectors. Evaluation of DS
programme presented to SWG.
2.8.4
Evaluate
financial
services
targeting the poor in all VUP sectors.
Roll out financial services in150 sectors.
2.9. Integrated Social Protection
Programming
2.9.1 Level of harmonisation in social
protection sector
23
Current
Baseline: MINALOC represents about
80% of SP spend, FARG, Ubudehe
and HIMO PW. Donor support
parallel, fragmented, dominated by
food aid (2006)
Target: 2012/13: SPI developed.
Districts provide evidence of
harmonisation between social
protection providers in DDPs.
Proposed Change
Reason
now planned in the Implementation Plan for the
Social Protection Strategy to develop the index
by 2015.
2.9.1 Ensure NSPS implementation plan
milestones met, including on gender
equity.
3,500 communities are implementing
Ubudehe priority projects (Community
and Household).
Sector wide funding mechanism in place.
24
Annex 1: Analytical Studies
The priority areas for undertaking analytical works in the 2012/13 fiscal year
Study Area
Relevance
Timeline for the study Proposed
(month)
source
of
funding
and
cost
SECTOR-WIDE
Review of Ubudehe targeting mechanism
It is critical that social protection programming can
depend on robust targeting. The Ubudehe targeting
mechanism underlies the flagship VUP programme,
as well as other major national programmes, such as
the Mutuelle.
Evaluation of e-payment options for cash This study will look at whether there are payment
transfers / public works
options that would deliver quicker, more reliable
payments to beneficiaries.
Feasibility study for an old age grant
These studies will assess whether all vulnerable
groups can most effectively be reached through the
extension and modification of existing programmes, or
Feasibility study for a disability grant
whether alternative or additional programmes are
required. The vulnerable groups that will be looked at
Feasibility study for a child grant
are:
older people, people with disabilities and
vulnerable children.
Feasibility
study
for
an
Employment This study will explore the feasibility, advantages and
Guarantee Scheme
disadvantages of an Employment Guarantee Scheme
(which would guarantee a minimum number of days
work to all eligible households).
Model using EICV-3 data to simulate costs,
Once technically feasible options for reaching
vulnerable groups have been outlined in a series of
coverage and impacts of different options in
feasibility studies, it will be necessary to compare the
feasibility studies
costs and impacts of these approaches. A microsimulation model will be developed to do this.
Oct 2012 (followed by pilot
testing of a system in Dec
2012)
Nov 2012
Mar 2013
Mar 2013
Nov 2012
By April 2013 (alongside
feasibility studies)
PROGRAMME SPECIFIC (VUP/FARG)
25
Study Area
Relevance
Timeline for the study Proposed
(month)
source
of
funding
and
cost
Gender audit of VUP
In Rwanda extreme poverty is higher in female July 2012
headed households (FHH) than in male headed
households and indications are that poverty in FHH is
reducing more slowly. No practical assessment of
these issues has yet been carried out in Rwanda.
This study will address this gap.
Research into how people with disabilities are Decisions as to how best to reach vulnerable groups by Sept 2012
benefiting from VUP and any challenges
will depend partly on the results of the feasibility
studies listed above, but also on an assessment of
how vulnerable groups are benefiting from current
programmes. This study will look at one such group:
people with disabilities.
The Social Protection Sector proposes to draw up a comprehensive list of key analytical works produced in the last 5 years in Rwanda and will
categorise these. The list, with links to the original documents, will be placed on the MINALOC website.
26
Annex 2: Progress Report on Cross Cutting Issues (CCIs)
The social protection sector has chosen to report on the cross-cutting issues of gender and
environment.
Gender
The National Social Protection Strategy and Implementation Plan set out the requirement for all
programmes to actively seek to promote gender equity and women’s empowerment. All monitoring
data is disaggregated and the sector is committed to regular gender audits of programmes.
The VUP baseline indicated that female-headed households are significantly poorer than male
headed households. While substantial efforts have been made to ensure equality of access to
VUP and equity of outcome, considerable gender gaps in terms of poverty reduction outcomes
have been identified. The 2009/10 VUP annual review found that poverty fell less fast in femaleheaded than in male-headed households and that female-headed households were less likely to
graduate to a higher Ubudehe category. The 2010/11 annual review raised questions about the
constraints to access to VUP Direct Support and Public Works by pregnant women and nursing
mothers.
Plans are currently underway for a gender audit of the VUP programme. The study will assess how
men and women access the VUP programme benefits and also how VUP differentially impacts on
men and women. It will look at how reproductive and caring roles impact on women’s access to
direct support, public works and financial services. It will look at different groups of men and
women to see how access varies by age, disability status, family size and composition etc. The
assessment of impacts will entail not only comparing impacts on male and female headed
households but also looking within households at how decisions about use of VUP cash are made,
how the benefits of VUP are distributed between household members, and how VUP affects the
roles and time use of men, women, girls and boys.
This study is expected to generate information useful not only in strengthening VUP, but also to the
social protection sector as a whole.
Environment
The National Social Protection Strategy and Implementation Plan identify one of the roles of social
protection measures, such as the VUP cash transfers and public works, as enabling families and
communities to cope better with shocks, including shocks due to natural disasters. Commonly
experienced risks /disasters in Rwanda include heavy rains and floods, landslides, droughts,
earthquakes, fires and volcanic eruptions. Increased climate variability linked to global climate
change may exacerbate some of these risks in the future.
-
The pillars of effective risk management are:
Mitigation measures (for example terracing) to protect the natural environment from climatic
events
Early warning systems to indicate the need for a response as early as possible
Contingency plans and contingency financing, so that actors have already thought through
how they will respond and there are resources in place to respond quickly
Response capacity, so that institutional arrangements are in place to respond quickly.
The VUP already makes a contribution to mitigation through the terracing carried out in public
works. Over half of all public works expenditure in 2010-11 was on terracing. Within the social
protection sector there is potential to use early warning information to enable existing programmes
(such as VUP direct support and public works) to be scaled up to meet transitory needs in
response to shocks. Programme modifications could include increased payments to existing
beneficiaries (where the populations affected were in VUP Sectors) or an extension of programme
coverage (where the affected populations were not already covered by VUP).
27
In order to fully realise this role, it is critical that links be forged between social protection
programmes and other stakeholders working on disaster risk reduction and that practical linkages
are built between social protection and early warning systems (EWS). A scoping study of existing
early warning systems and potential linkages to social protection programmes has already been
carried out, with support from the World Bank. A sub-committee of the Social Protection Working
Group has now been set up to bring together all key actors to progress work in this area.
28