2010年-世界发展银行全球_Providing_Social_Protection_and_Livelihood_Support_During_Post-Earthquake_Recovery_8页_714kb

EAP DRM KnowledgeNotes Summary

Core Content

This document discusses disaster risk management (DRM) strategies, specifically cash transfer programs and public works programs, in the context of post-earthquake recovery. It draws on international experiences, particularly from Pakistan (2005) and Honduras (1998), to provide insights and recommendations for China in designing effective social protection and livelihood support mechanisms after the Wenchuan Earthquake (2008).

Main Approaches: Cash Transfer and Public Works Programs

1. Cash Transfer Programs

• Objective: Provide direct financial assistance to vulnerable households to alleviate poverty and stimulate local economies.
• Key Features:
  • Targeting: Programs can be universal, geographically targeted, or household-targeted, depending on the severity of the disaster and the distribution of affected populations.
  • Eligibility Criteria: Should be simple, verifiable, and include vulnerable groups such as large families, female-headed households, and those with disabled members.
  • Transfer Amount and Duration: Should be based on the poverty line and be clearly defined. In Pakistan, a monthly grant of USD 50 was provided for six months to households with seven members.
  • Delivery: Payments should be accessible, low-cost, and transparent. In Pakistan, free bank accounts were provided, but accessibility in remote areas was a challenge.
  • Cost Considerations: Includes benefit cost and implementation cost (about 10% of total). In Pakistan, the program cost USD 85 million to cover 250,000 households.
  • Exit Strategy: Should be clear and transparent to avoid dependency. For the most vulnerable, transfers can be integrated into regular social safety net programs.

2. Public Works Programs

• Objective: Provide short-term employment and income support, while contributing to the rebuilding of essential infrastructure.
• Key Features:
  • Labor Intensity: Programs are labor-intensive and cost-effective when the labor share is high (e.g., 70% in road and drainage projects).
  • Wage Setting: Wages should be slightly below market rates to ensure that the program attracts the neediest and does not crowd out permanent employment opportunities.
  • Project Selection: Should be based on the needs of disaster-affected communities and include infrastructure like roads, water supply, and sanitation.
  • Implementation: Can be either supply-driven or demand-driven, with the latter involving community participation and local decision-making.
  • Case Study: In Honduras after Hurricane Mitch, the Social Investment Fund (FHIS) quickly approved 2,100 projects with a total value of USD 40 million, creating 100,000 person-months of employment in three months.

Key Recommendations for China

• Cash Transfer Programs:

  • Cash vs. In-Kind Assistance: Cash transfers are more effective for rapid response and market stimulation.
  • Universality vs. Targeting: A universal approach may be appropriate in the short term, but a transition to targeted support is necessary.
  • Exit Strategy: Integrate with existing safety net programs (e.g., wubao and dibao) and consider preconditions for employment support.
  • Enhanced Benefits: Given the limited coverage of rural wubao and dibao, temporary enhanced benefits or lump-sum grants could be justified for the most vulnerable.

• Public Works Programs:

  • Leverage Existing Infrastructure: Build on existing administrative frameworks like the National Poverty Alleviation Program and the Ministry of Labor and Social Security.
  • Design and Management: Ensure the program is effective and flexible, focusing on short-term income support rather than long-term employment.
  • Community-Driven Development: Encourage community participation in project design and implementation, drawing on global experiences and the World Bank's collaboration with the State Council on poverty reduction.

Conclusion

The document emphasizes the importance of flexibility, transparency, and community involvement in post-disaster recovery programs. It advocates for a combination of cash transfers and public works to address both immediate needs and long-term infrastructure rebuilding, while also ensuring that these programs are integrated with existing social safety nets and can be phased out responsibly. The experiences of Pakistan and Honduras provide valuable lessons that can be adapted to China's post-Wenchuan Earthquake recovery efforts.