2001年-世界发展银行全球_Ukraine___Social_Safety_Nets_and_Poverty_Volume_1_52页_2mb

Ukraine: Social Safety Nets and Poverty Summary

Core Content

This report provides an analysis of the social safety net system in Ukraine and evaluates its effectiveness in addressing poverty. It was prepared in response to the Government of Ukraine's request for assistance in developing a National Poverty Reduction Strategy, with the aim of improving the targeting and efficiency of social programs. The report is part of a larger initiative to assess poverty and social assistance programs, and it outlines current challenges and proposes a framework for reform.

Main Points

Poverty in Ukraine

• Poverty Rates: According to the 1999 Survey of Income and Expenditure (SIE), 26.7% of the population was classified as poor using a relative poverty line (75% of median expenditures), while 13.5% were in extreme poverty (60% of median expenditures).
• Child Poverty: Poverty among children is more prevalent than among pensioners, and it is especially high in households with multiple children. Households with five or more children had an extreme poverty rate of 58.6%.
• Income Inequality: Income inequality in Ukraine was relatively modest, with a Gini coefficient of 0.27–0.29, compared to other CIS countries. However, consumption inequality was higher, at 0.35–0.36, due to the inclusion of non-cash benefits and home-produced goods.

Household Structure and Poverty

• Household Types:
  • Pensioner households: Represent one-third of the population and have lower poverty rates.
  • Adult-only households: Have the lowest poverty rates (15.6% for 1 adult, 15.3% for 2 adults).
  • Households with children: Have higher poverty rates, with those having 5 or more children experiencing the highest (86.9% poor, 58.6% extremely poor).
• Poverty Headcount:
  • All households with children: 28.9% poor, 13.5% extremely poor.
  • Households with 1 child: 36.99% poor, 21.12% extremely poor.
  • Households with 2 children: 73.80% poor, 56.11% extremely poor.
  • Households with 3 or more children: 45.0–86.9% poor, 21.1–58.6% extremely poor.

Characteristics of Household Heads

• Age: Households headed by adults aged 55–65 had the lowest poverty rate. Those over 65 had higher poverty rates due to reliance on social pensions.
• Education: Households with heads having only primary education were more likely to be in poverty. Higher education significantly reduced the likelihood of extreme poverty.
• Employment Status: Unemployed household heads had higher poverty rates. Only about half of registered unemployed received benefits, and benefit reciprocity covered less than one-sixth of the unemployed.

Regional Differences

• There are significant regional variations in poverty levels. The report emphasizes the need to examine these differences more closely to ensure effective targeting of social assistance at the local level.

Key Safety Net Programs

• Social Privileges: These are broad-based and include benefits such as housing discounts, which tend to leak to non-poor households.
• Chernobyl Benefits: Targeted at affected populations, these benefits have helped reduce poverty.
• Housing Allowances: Aimed at low-income families, these also suffer from leakage.
• Family Allowances: More effective in targeting the poor compared to housing and privileges.
• Targeted Social Assistance: These programs are more pro-poor but require better implementation and management.

Targeting Effectiveness and Financing

• Targeting Issues: Current programs are poorly targeted, with significant leakage to non-poor households. This suggests a need for better targeting mechanisms such as income testing, asset tests, or proxy means testing.
• Financing: Social programs consume 3% of GDP. While current expenditures are not well-targeted, they could be reorganized to effectively address the poverty gap.

Recommendations and World Bank Assistance

• Program Redesign: The report suggests a phased approach over four years to reform the social safety net.
• Policy Framework: A framework for improving targeting and reducing leakage is proposed, with a focus on pro-poor programs.
• World Bank Role: The World Bank is encouraged to support the reform process through simulation analysis and improved policy design.

Conclusion

Ukraine's social safety net system, though well-funded, is not effectively targeting the poor. There is a need for better program design and management to ensure that resources are directed to those most in need. The report highlights the importance of categorical targeting, especially for families with many children, and recommends further analysis to refine social assistance policies.