Program Implementation Matters for Targeting Performance Country Study: Kyrgyz Republic

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1 Kyrgyzstan Program Implementation Matters for Targeting Performance Country Study: Kyrgyz Republic The World Bank Lukashova Irina CASE-Kyrgyzstan Bucharest, 2005

2 Outline Key Features of the Program Context Benefits, formula and size of the Unified Monthly Benefit Targeting and eligibility System of the program administration Financing and payment systems Administrative Costs Graduation and Emancipation Policies Lessons Learned

3 Country Context Population (millions) GDP per capita (current USD) GDP growth (%) Labor force, total 2,160,634 2,207,254 2,258,356 2,309,685 Unemployment, total (% of total labor force) Poverty rate (%), $PPP 2.15/day National All urban Rural Gini (per capita) Share of Government (% of GDP) Public expenditures on health Public expenditures on education Social Protection spending (% of GDP)

4 The Role of the Programs of Social Assistance Spending (% GDP) Num. of beneficiaries thous. Average benefit som per year Trends 2003/2000 Total Social Protection 7.8 up Total Social Insurance 6.0 Pensions up Unemployment Benefit up Total Social Assistance 1.8 Unified Monthly Benefit up Social Benefits up Privileges up Minimal wage 100 som/month (1 200 som/year) Average wage 1916 som/month ( som/year)

5 Territorial-administrative Organization of the Country and Main Institutions Involved in Program The President Government Parliament of KR (Jogorku Kenesh) Ministry of Labor and Social Protection (MLSP) Dept. of Social Protection (DSP) Ministry of Finance Ministry of Agriculture Other state agencies Oblast(7)/cities(2) Administration Oblast/City DSP Oblast Payment Centers (6) Kyrgyz Post Services Rayon(40)/towns (20) Administration Ayl Okmotu (477) Administration Rayon/town DSP Ayl okmotu Social Worker Urban beneficiaries (35%) Rural beneficiaries (65%) Post Post Post

6 Program Outcomes, Poorest decile Total th - Richest th rd nd st - Poorest Adequacy % Targeting % Coverag % Adequacy % Targeting % Coverage % Adequacy % Targeting % Coverage % Per capita cons., constant prices Rural Urban National Quintiles

7 Key Features of the Program Objective of the Program Remove the gap in the income of the poorest families with children up to the level of the guaranteed minimum level of consumption (GMLC) Eligibility Rules: Eligible recipients in the family; Aggregate monthly income per one member of the family should be less then GMLC Type of Financing Centralized, from the state budget

8 Formula for the UMB Determining UMB = (GMLC AAFI)* p UMB GMLC AAFI p where benefit, granted for one family; guaranteed minimum level of consumption; monthly average aggregated family income per family member; number of eligible family members to get UMB.

9 UMB Level Average size of the UMB, som/month 71,8 96,7 89,5 The level of extreme poverty, som/month 375,8 383,7 395,6 General level of poverty, som/month 624,2 673,3 657,1

10 Targeting Target Group of the Program: Poor families with children up to 16 years. Targeting Methods: Categorical filters (children); Means-test (monthly average income per member less than 140 som). Eligibility Checking : Documents checking; Interview with beneficiaries; Home visits (selective).

11 Informing Population about the Program Formal Radio TV Newspapers Announcement in local administration bodies (at ayl okmotu, rayons) Booklets and information materials (at ayl okmotu, rayons) Informal Through acquaintances, etc.

12 Application Process Visit to Social Worker (ayl okmotu, rayon department of social protection); Interview for Eligibility; Application Registration; Collection and Submission of all Necessary Documents; Home Visit to Potential Beneficiary (rayon department of social protection); Benefit Granting.

13 List of Documents for UMB Granting Documents Certifying the Status of Beneficiaries; Documents Certifying Family s Income Size.

14 Documents Certifying the Status of Beneficiaries Copy of Applicant's Passport Certificate from Medical Labor Expert Commission Certificate from the Educational Institution for the Students of Ages; Copy of Birth Certificate. Decree about Tutelage; Copy of Marriage Certificate or Divorce Certificate; Certificate for Unwed Mothers and Other Certificate on the Status of Unemployed and Other.

15 Documents Certifying the Size of Family Income Statement about Living Conditions; Copy of Work-book; Certificate on a Salary Size; Certificate from the Tax Inspection; Certificate on a Alimony Size; Certificate on a Scholarship Size; Certificate on a Size of Labor and Social Pension, Social Benefit or Loss of a Bread-winner and Other. Certificate of a Size and Type of the Land and Imputed Income from the Land (for Rural People).

16 Recertification According to the Law «About state benefits in the Kyrgyz Republic» UMB is granted for a period of one year. In practice For families with unemployed members it is necessary to certify the status of unemployed every 6 months. In Bishkek city for beneficiaries - inhabitants of new erected buildings жителей новостроек every 3 month, as temporary registration is given only one time for a quarter. Beneficiary Bears Responsibility for Recertification!

17 Monitoring of the Program Ministry of Labor and Social Protection, Rayon and Oblast Departments of Social Protection Carry out the Monitoring Monitoring Objects: Number of applicants and beneficiaries; Eligibility of beneficiaries; Accuracy of UMB size granting; Timeliness of program financing, etc. Targeting use of budget resources. Donors carry out research projects. Objects of research: Efficiency Targeting.

18 Training of Social Workers Training of Social Workers was organized: In 1998 during launching the UMB program by World Bank в In 2001 for social workers of ayl okmotu UNDP supported New personnel are trained in practice, consulting with more experienced colleagues and by using normative documents. UMB program does not provide for raising the skills and special trainings for employers. Separate important problems are discussed at the general meetings of workers of Social Protection Departments.

19 Monitoring and Control Internal control Department of internal audit. External control Accounting Chamber of the Kyrgyz Republic Objects for control are all activities of the Territorial Department of Social Protection, Payments center and Post.

20 Financing the Program 93% of the program is financed centralized from the republican budget (administrative costs of supporting of the MLSP and payment centers, and also resources for benefits); 7% is financed from the local budgets (administrative costs of territorial Departments and social workers of ayl okmotu).

21 Program Budget Planning MLSP prepares the budget project - Ministry of Finance defines the volume of financing Agreed between two ministries, the volume of financing is discussed in the Government The final decision in the form of Law About Budget is taken in the Parliament

22 Actual Execution of the Budget Budget execution have been improved in recent years as in terms of timeliness of payments as in terms of funding... before 2002: Huge arrears on UMB took place. It was a common practice to pay UMB in kind.

23 UMB Payments UMB is paid through the post offices of the beneficiaries residence. Problems exposed after examinations: Payment delays; Corrections in payment dates; Payments without signature cards or passport information; Writing-off UMB amounts without actual payments;

24 Explicit Administrative Cost of the UMB Expenditures of the MLSP of the Kyrgyz Republic Expenditures of the territorial DSP Expenditures of the Payment Centers Expenditures of the Accounting Chamber Expenditures of the Aiyl Okmotu Expenditures on the post services

25 Explicit Administrative Cost of the UMB (cont d) Expenditures of organizations that are not directly involved in UMB implementation on the preparation and issuing certificates required for eligibility confirmation.

26 Estimation of the UMB Program Costs Costs MLSP Territorial DSP Payment Centers Accounting Chamber Aiyl Okmotu Post Services Certificates TOTAL Thous. Soms Share in total 0,72% 5,61% 1,50% 0,03% 1,34% 2,00% 0,25% 11,46% Per beneficiary administrative costs is 122 soms per year

27 Administrative Costs Structure Почтовые расходы Post services 17,46% 17.5% Certificates 2.2% MLSP 6.3% Выдача справок 2,22% МТСЗ 6,30% Aiyl Okmotu 11.7% Айылокмоту 11,71% Territorial Территориальные УСЗ DSP 48,93% 48.9% Accounting Chamber 0.3% Счетная палата 0,26% Выплатные центры 13,12% Payment Centers 13.1%

28 Emancipation and Graduation Policies UMB payments are terminated or UMB size are revised in the following cases: After the family income is changed After a child becomes16 After a student becomes 21 After an eligible person is deceased When the required documents are not submitted in time When an eligible person is transferred to the total public maintenance

29 Lessons Learnt Simple and Clear Design Targeting performance of the program provides transparency; GMLC binding provides clear procedure for UMB size calculation; Relatively Inexpensive Administration due to Application Nature of the Program Steady Improvement of the Program: Pilot project on annual amount of the UMB issuing in one installment; MLSP proposals on inclusion of the imputed income from cattle to the aggregate family income.

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