2012年-世界发展银行全球_PKH_Conditional_Cash_Transfer_38页_930kb

Summary of PKH Conditional Cash Transfer

Core Content

The Program Keluarga Harapan (PKH) is a conditional cash transfer (CCT) program in Indonesia designed to improve health and education outcomes among poor households by providing financial incentives tied to their participation in local health and education services. Launched in 2007 as a pilot program, PKH has grown significantly and is now serving over 800,000 households, with plans to expand to 3 million. It is one of the few CCT programs in Indonesia that has incorporated a randomized controlled trial (RCT) for impact evaluation from the outset, making it a pioneering initiative in the country's social assistance landscape.

Main Objectives

• Reduce poverty and improve the well-being of very poor households.
• Encourage investment in health and education by linking cash transfers to service utilization.
• Break the intergenerational cycle of poverty through long-term behavioral changes.
• Support the Government of Indonesia's (GOI) Pro-Poor development goals and Millennium Development Goals (MDGs).

Key Features of the Program

• Cash transfer amounts: Range from a minimum of Rp 600,000 to a maximum of Rp 2.2 million per year.
• Conditions for receiving benefits:
  • Pregnant or lactating women must complete four antenatal visits, be assisted by a trained professional during birth, and have two postnatal visits.
  • Children aged 0–6 years must receive complete immunization and Vitamin A capsules twice a year, and undergo monthly or quarterly health check-ups.
  • Children aged 6–15 years must be enrolled in primary school with minimum 85% attendance, and enrolled in junior secondary school with minimum 85% attendance.
  • Children aged 16–18 years with less than 9 years of education must be enrolled in an education program to complete 9 years of schooling.
• Benefit adequacy: Average annual benefits are about 12% of pre-PKH household expenditures, which is lower than the 15% provided by the Bantuan Langsung Tunai (BLT) program.

Targeting

• PKH targets poor households in selected districts across 25 out of 33 provinces.
• Initially, the richest 20% of districts were excluded based on poverty, malnutrition, and education transition rates.
• Random selection was used to choose districts with available health and education service providers.
• Local governments are encouraged to support the program by providing resources and infrastructure, and must agree to assist with implementation.

Impact

• Health: PKH households increased visits to health services, including antenatal, postnatal, and immunization. Spillover effects were observed in non-beneficiary households, though at a smaller scale.
• Education: PKH improved school attendance for children in primary and junior secondary schools, but had limited impact on enrollment rates and child labor reduction due to high initial enrollment rates and insufficient benefit size.
• Household Expenditure: Most cash was spent on basic necessities like food, clothing, and health care. There was an increase in protein-rich food expenditure, indicating improved nutrition.
• Behavioral change: PKH encouraged healthier and smarter behaviors among beneficiaries and had a positive influence on community practices through facilitators.

Cost Effectiveness

• Total expenditure (2010): Rp 1.123 billion (US$ 143 million).
• Administrative cost per household (2010): Rp 237,777 (US$ 24).
• Benefit share of total Kemensos spending (2010): 30.1%, up from 21.9% in 2007.
• Share of central government social safety net (SSN) spending (2010): 4.3%.
• Share of total central government spending (2010): 0.3%.

Implementation Challenges

• Verification and data accuracy: Early issues with incorrect beneficiary data, form confusion, and backlogs in updating beneficiary profiles.
• Conditionality monitoring: Lack of enforcement due to inadequate monitoring systems and unfamiliarity with the computerized MIS system.
• Facilitator performance: While facilitators are crucial for program success, their effectiveness varies across regions, and they do not always follow up on missed appointments or school drop-outs.

Public Financial Management and Sustainability

• Budget execution ratio (2008–2010): Slight improvements but still below optimal levels.
• Financial sustainability: The program is financially sustainable under various scenarios, though continued attention is needed to improve efficiency and monitoring.
• Government scrutiny: PKH has been subject to detailed review by national and international stakeholders, highlighting its positive behavioral changes and potential for further expansion.

Summary and Recommendations

• Positive outcomes: PKH has shown success in reducing household vulnerability, improving health behaviors, and increasing school attendance.
• Recommendations:
  • Continue to refine implementation and improve conditionality monitoring.
  • Coordinate with local service providers and government agencies.
  • Develop a corps of skilled facilitators to ensure consistent support and encouragement.
  • Expand the program to 3 million households while maintaining program integrity and effectiveness.
  • Ensure benefit adequacy and real value preservation by adjusting nominal amounts as needed.

Key Information

• Design: Built on the success of previous large-scale cash transfer programs in Indonesia.
• Evaluation: Utilizes an RCT framework for assessing program effectiveness, a first for Indonesia.
• Partners: Includes Kemensos, BPS, Kemenkominfo, and local service providers.
• Future Plans: GOI aims to scale up PKH and make it more inclusive while maintaining its targeted approach and conditionality requirements.

References

• World Bank data and analysis.
• Government of Indonesia reports and policies.
• Surveys and studies from Indonesian universities and research institutions.