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S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
Programmes like Bolsa Familia helped reduce poverty in Latin America. UNDP Brazil
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1
This paper was written by Rmulo Paes-Sousa, Director of the UNDP World Centre for Sustainable Development (RIO+ Centre). This chapter
was concluded during the authors residency at the Rockefeller Foundation Bellagio Center.
2
Based on the exchange rate from December 2014 of US$1 = BRL 1.99.
3
In the literature on social protection, authors refer to the 3P framework: prevention, protection and promotion. Promotional or social promotion
measures are those that aim to enhance real incomes and capabilities. For more, see chapter 7 of this report; World Bank, 2012; Devereux and Sabates-Wheeler, 2004; and Instituto de Pesquisa Econmica Aplicada, 2010.
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S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
In its Social Protection and Labour Strategy 20122022, the World Bank (2012) mentions the PBSM as a very promising programme in the fight
against poverty.
UN Photo/Eskinder Debebe
110
P L A N O B R A S I L S E M M I S R I A : F U N D A M E N TA L G O A L S
The debate about the links between social protection
and promotion, particularly in terms of labour, will
increasingly become the order of the day in future
social protection policymaking (World Bank, 2012;
IPEA, 2012; Devereux and Sabates-Wheeler, 2004). It
is no longer about contrasting social protection and
labour, but rather about initially creating a hybrid
situation in which public policy beneficiaries receive
a mix of protective benefits and income earned from
labour, while participating in programmes geared
towards intensive human capital development. This
strategy responds to deficits in human capital training
among extremely poor people and to the increasingly
demanding requirements of the labour market.
Consequently, the approach used in the inclusion
of extremely poor people should guarantee income
and enhance entry into or enable upward mobility
in the labour market through the development of
human capital.
Social assistance also plays a strategic role in the
PBSM, as the plans potential beneficiaries suffer from
various vulnerabilities. Social assistance must identify
beneficiaries, refer them to services, monitor the
connections between individuals/households and
such services, mobilize and monitor their (re-)entry
into the labour market and respond to the typical social
assistance demands of individuals and households.
The PBSMs fundamental goals are to:
promote equity to fight the discrimination to which
large portions of the population are subject. Potential
outcomes of the plan include the empowerment
of women and the reduction of income gaps based
on race and gender and between indigenous and
traditional peoples and the majority;
generate opportunities through the development
of human capital, while taking life cycle, gender, place
of residence (urban or rural) and cultural aspects into
consideration;
The SUAS has two kinds of referral centres: the Centros de Referncia de Assistncia Social (CRAS, Social Assistance Referral Centres), which offer basic
services and orientation to the population; and Centros de Referncia Especializados de Assistncia Social (CREAS, Specialized Social Assistance Referral
Centres).
6
In the MDSs initial budget allocation for 2011 (approved in 2010), the amounts for the PBF and the BPC accounted for 90.52 percent of the total
allocated budget.
5
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S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
Poverty line
Residual poverty
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Despite the intrinsic limitations of using a onedimensional model, experience with the PBSM
productive inclusion.
UN Photo/Shelley Rotner
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TABLE 1
AXES OF THE PBSM AND DESCRIPTIONS OF ITS PROGRAMMES
GUARANTEED INCOME
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
Improvements to the PBF, including the creation of new grants to cover the extreme poverty gap for all beneficiaries,
plus increasing the poverty threshold (from BRL 70 to BRL 77) by ten percent.
PRODUCTIVE INCLUSION
Rural
- Public purchases of products from family farmers (Programa de Aquisio de Alimentos, PAA, or Food
Acquisition Programme)
- Technical assistance and production-oriented cash transfer programmes
- Micro-financing for rural areas (Programa de microcrdito rural)
- Support for building cisterns to collect water for human consumption in rural areas (Programa gua para
Todos/Water for All Programme)
- Support for building cisterns to collect water for agriculture (water for production)
- Subsidies for forest conservation (Programa Bolsa Verde/Green Grant Programme)
- Provision of energy to all households (Programa Luz para Todos/Light for All Programme)
Urban
- Free professional training courses
- Capacity-building for micro-entrepreneurship (Programa Microempreendedor Individual, Individual Micro
Entrepreneur Programme)
- Production-oriented microcredit programmes
ACCESS TO SERVICES
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Cadnico was created by the federal government in 2001. In 2003, its use was broadened due to the implementation of the PBF.
This includes: indigenous peoples, members of quilombola (descendants of slaves) communities, people rescued from working conditions analogous to
slavery, Romani, workers from extractive industries, fisherfolk, Candombl communities, riverside communities, family farmers, agrarian reform settlements, beneficiaries of the Programa Nacional de Crdito Fundirio (National Land Credit Programme), people affected by infrastructure projects, collectors
of recyclable materials, the homeless and prison inmates.
7
8
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Guaranteed income
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
UN Photo/Eskinder Debebe
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TABLE 2
PBF ELIGIBILITY CRITERIA, COVERAGE AND GRANTS IN NOMINAL
T E R M S , J U LY 2 0 0 4 A N D J A N U A R Y 2 0 1 5
J U LY 2 0 0 4
Classification of families according
to thresholds
- Poor
- Extremely poor
Number of PBF beneficiary households
JANUARY 2015
- BRL60.01BRL120.00
- Less than BRL60.01
- BRL77.01BRL154.00
- Less than BRL77.01
4,279,542
13,980,524
- 1,366,664 families
- 292,861 individuals
- 3,549,892 individuals
- 346,290 families
BRL298,459,485
Funds transferred to beneficiaries
per month
Average amount transferred to PBF
beneficiaries per month
Basic monthly allowance
(regardless of a households demographic composition)
(Transitional programmes
BRL202,049,955)
BRL69.74
BRL167.56 (approximately
US$63.47)
BRL58
BRL77
Non-existent
As of December 2014, the programme had reached almost 14 million beneficiary households, with a
cumulative amount of US$12.24 billion transferred over the course of the year.
9
The Bolsa Familia Programme was the result of the merger of four federal cash transfer programmes: Bolsa Escola (School Grant), Bolsa Alimentao
(Food Grant), Auxlio Gs (Gas Subsidy) and Carto Alimentao (Food Card).
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S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
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Access to services
Productive inclusion
UN Photo/Sebastiao Barbosa
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S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
TABLE 3
SELECTED PBSM PROGRAMMES IN RURAL AREAS (2012)
PROGRAMME
OBJECTIVE
TARGET POPULATION
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STRATEGY
COORDINATION
- increase the use of technology, infrastructure and equipment to capture and store rainwater;
- support the installation of infrastructure and equipment to capture, preserve, treat and
distribute water from bodies of water, wells or springs;
- coordinate the actions of federal agencies and institutions that have mandates related to:
a) food and nutrition security;
b) water infrastructure for public water supply;
c) water use regulation; and
d) health and environment.
Ministrio da
Integrao Nacional
(MI, Ministry for
National Integration)
Direct quarterly cash transfers of BRL 300 per household for a period of up to two years. This
period may be renewed.
Ministrio do Meio
Ambiente (MMA,
Environment Ministry)
Non-reimbursable cash transfers and provision of technical assistance to farmers and other
groups identified as priorities by the executive branch. Heads of household receive a direct
transfer of up to BRL 2400 per household in at least three instalments and for a maximum of two
years.
MDS
To participate, states whose councils have signed up for PRONATER (National Programme for
Rural Technical Assistance) must become accredited with executing entities. Once accredited,
they may formulate suggestions on PRONATER activities and cooperate in the monitoring,
control, supervision and evaluation of the results. Companies or public entities duly accredited
via a public bidding processes offer technical support to beneficiaries.
Ministrio de
Desenvolvimento
Agrrio (MDA,
Ministry of Agrarian
Development)
Implemented through direct purchases from family farmers; support for stock formation;
incentives for milk production and consumption; and purchases of food to be donated to
charity organizations through partnerships with the Companhia Nacional de Abastecimento
(Conab, National Supply Company) and state and local governments. To participate, a farmer
must meet the criteria to qualify as a family farmer and registered in the Programa Nacional de
Fortalecimento da Agricultura Famliar (Pronaf, National Programme for Strengthening Family
Farming).
MDS
With its partners, the MDA Secretariat for Family Farming manages the preparations for seed
production and distribution, consolidates seed production by the Empresa Brasileira de Pesquisa
Agropecuria (Embrapa, Brazilian Agricultural Research Corporation) and makes these products
available to farmers participating in the harvest insurance programme. Municipal and state
governments also provide support for the actions.
MDA
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TABLE 4
SELECTED PBSM PROGRAMMES OR ACTIVITIES IN URBAN AREAS (2012)
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
PROGRAMME
Programa Crescer
(Microcredit
earmarked for
productive
activities)
Programa
Mulheres Mil
(Thousand Women
Programme)
Programa Nacional
de Acesso ao Ensino
Tcnico e Emprego
(Pronatec, National
Programme on
Access to Technical
Training and
Employment)
OBJECTIVE
Expand professional
and technical training
through programmes,
projects and activities
related to technical and
financial assistance
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TARGET
POPULATION
STRATEGY
COORDINATION
PBSM
beneficiaries
Ministrio da
Fazenda (MF,
Ministry of
Finance)
Socially
vulnerable
women
Ministrio da
Educao
(MEC, Ministry of
Education)
Public high
school students
or students
from private
institutions
under a full
scholarship;
workers;
beneficiaries
of federal
cash transfer
programmes
MEC
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S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
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CONTRIBUTION
OF
NONG O V E R N M E N TA L A C T O R S T O
THE PBSM
The business sector
Relations between the business sector and the
PBSM are in the form of partnerships. Partnerships
in the area of productive inclusion seek to change
the rationale behind purchasing products and
hiring labour in the private sector. In November
2012, three major organizations responded to
the PBSMs demands: the Associao Brasileira de
Supermercados (Abras, Brazilian Association of
Supermarkets), the Cmara Brasileira da Indstria
da Construo (CBIC, Brazilian Chamber of the
Construction Industry) and the Servio Brasileiro
de Apoio s Micro e Pequenas Empresas (Sebrae,
Brazilian Micro and Small Business Support
Service).
The partnership with Abras involves the MDS,
MDA, Conab and Embrapa (all are bodies of
the federal government) and aims to increase
the supermarket sectors participation in the
acquisition and sale of food produced by family
farmers and traditional communities and the
development of human resources. It also creates
opportunities for integrating these farmers into
the retail sector. In the late 2012, supermarkets
in north-eastern Brazil began to acquire products
from family farms authorized to export their
produce, meaning that they had high-quality
goods. This was a small-scale activity in which
state-level supermarket associations acted as
intermediaries. The electronic platform launched
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TABLE 5
SOCIAL PARTICIPATION IN THE PBSM
TYPE OF ACTIVITY
DESCRIPTION
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
Regional dialogues
T H E P B S M S I N I T I A L R E S U LT S
The initial results of the PBSM confirm that
maintaining high levels of investment in benefits,
services and household infrastructure (such as
cisterns and electricity), and the introduction of
innovative income generation programmes are
justified:
By January 2015, 1.38 million households had
been included in the PBF via the Active Search
programme. At the end of 2014, the plan was
providing benefits to more than 14 million
families;
1.37 million children in households with more
than three children (September 2012), and
166,000 pregnant and 206,000 breastfeeding
women (December 2012) have benefited from
changes to the procedure for distributing
variable benefits. The amounts transferred
to overcome the poverty gap benefitted
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T H E C H A L L E N G E S FA C I N G T H E P B S M
The agenda of the PBSM programmes needs to
be expanded, especially in regards to access to
services. Greater consistency in defining which
services and transferred assets to include in the
plan is also required.
The PBSMs main budgetary challenge is to strike
a better balance between the services offered
and the benefits transferred. In general, the social
protection model upon which the PBSM is based
repeats the same type of asymmetric focus on
benefits as the models that preceded it. Conditional
cash transfers account for more than 73 percent of
the PBSMs total budget.
While the relationship with state programmes has
been the greatest breakthrough in terms of the
plans institutional architecture, legal instruments
are required to improve the effectiveness of
partnerships forged with the states.
The management model behind the PBSM is agile,
flexible and efficient. It seems appropriate for
the initial stage of implementation, when rapid
decision-making is necessary. However, this model
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S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
CONCLUSIONS
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UN Photo/Eskinder Debebe
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