2016年-世界发展银行全球_Ghana_Social_Protection_Assessment_and_Public_Expenditure_Review_159页_2mb

Summary of Ghana: Social Protection Assessment and Public Expenditure Review (2016)

Core Content

This report presents a comprehensive assessment of Ghana’s social protection system and public expenditure management, focusing on how the country can better address poverty and vulnerability through targeted and efficient programs.

Main Messages

• Expansion of Key Social Assistance Programs: The report emphasizes the need to scale up targeted social assistance programs such as LEAP (Livelhood Empowerment Against Poverty), LIPW (Labor-Intensive Public Works), and NHIS exemptions to increase coverage of the poor, especially the extreme poor.
• Efficiency and Rationalization: Reducing overlaps and improving targeting of social protection programs can lead to efficiency gains. The government should reallocate resources from poorly targeted programs, such as energy subsidies, to more effective social assistance initiatives.
• Sustainable Livelihoods: There is a need to invest in sustainable livelihood activities for vulnerable groups who have the capacity to work, particularly the youth and working poor, to reduce their dependency on public transfers.
• Policy Development: A clear and consistent definition of social protection is needed, along with specific short-, medium-, and long-term goals. The report supports the development of a National Social Protection Policy (NSPS) and a National Social Protection Strategy (NSSP).
• Budget and M&E Framework: A medium-term expenditure framework and a robust monitoring and evaluation (M&E) system are essential to support the implementation of the social protection program portfolio.
• Reduced Dependence on External Funding: The report recommends reducing reliance on external financing and clearing government payment arrears to improve the sustainability of social protection programs.
• Reforms for Financial Sustainability: Both the National Health Insurance Scheme (NHIS) and SSNIT (Social Security and National Insurance Trust) require significant reforms to ensure long-term financial viability.

Key Vulnerable Groups and Risks

Core Social Protection Programs

Assessment of the Social Protection System

• Coverage: Current coverage is limited, with only 25% of extreme poor covered by LEAP, 10% of rural households by LIPW, and 31% of the poorest quintile registered with NHIS.
• Generosity of Benefits: Benefits are often insufficient to lift people out of poverty, especially for the most vulnerable.
• Targeting Accuracy: There is a need for better targeting mechanisms to ensure that resources reach the most vulnerable populations.
• Cost-Efficiency: Some programs, like LIPW and LEAP, are more cost-effective than others, particularly those with high administrative costs.
• Sustainability: The system faces sustainability challenges, especially due to high energy subsidies and low contributory pension coverage.
• Monitoring and Evaluation: The current M&E framework is inadequate, requiring more robust systems to track program performance and impact.
• Institutional Arrangements: The MoGCSP coordinates social protection interventions, but institutional coordination and clarity of roles across different levels of government remain weak.

Public Expenditure and Management

• Social Protection Spending: Social protection spending has increased over time, but it is still relatively low compared to other developing countries.
• Funding Sources: Expenditures are largely financed through external development partners and discretionary budget allocations.
• Budget Management: The MoGCSP and MMDAs (Municipal, Metropolitan and District Assemblies) are involved in budget formulation and execution, but coordination and transparency are lacking.
• Reforms: Ongoing reforms include the implementation of program-based budgeting (PBB), but more work is needed to ensure that budget codes reflect the needs of social protection programs.
• Implications: Improving the efficiency and targeting of social protection expenditures is crucial for fiscal sustainability and poverty reduction.

Recommendations

1. Scale Up Targeted Programs:

   • Expand LEAP, LIPW, and NHIS exemptions to cover more of the extreme poor.
   • Improve the targeting of scholarships and subsidies to better serve the poor.

2. Rationalize and Reallocate Resources:

   • Reduce overlaps and reallocate resources from regressive energy subsidies to more effective social assistance programs.
   • Promote graduation pathways and productive inclusion for vulnerable groups.

3. Strengthen Institutional Coordination:

   • Develop a clear medium-term program and action plan with defined roles for different levels of government.
   • Enhance program-based budgeting to ensure better coordination and accountability.

4. Ensure Financial Sustainability:

   • Replace external funding with domestic resources for key programs.
   • Implement reforms for NHIS and SSNIT to ensure long-term financial viability.

5. Improve Monitoring and Evaluation:

   • Strengthen M&E systems to track the impact of social protection programs and ensure accountability.
   • Use proxy means test (PMT) and community-based targeting (CBT) to improve targeting accuracy.

6. Promote Sustainable Livelihoods:

   • Invest in labor market information systems and job search assistance.
   • Expand youth employment programs and vocational training initiatives.

Conclusion

Ghana has made progress in reducing poverty and improving social conditions, but its social protection system still faces significant challenges in coverage, targeting, and sustainability. The report provides a roadmap for improving the efficiency and effectiveness of social protection programs through better coordination, rationalization of expenditures, and stronger institutional arrangements. It underscores the importance of developing a comprehensive and sustainable social protection strategy to ensure long-term resilience and equity for all vulnerable groups.