National Social Protection Policy 2015 - 2020

D e pa rt m e n t f o r c o m m u n i t y d e v e l o p m e n t & r e l i g i o n D e pa rt m e n t f o r c o m m u n i t y d e v e l o p m e n t & r e l i g i o n Independent State of Papua New Guinea “CREATING A SUSTAINABLE FUTURE FOR THE VULNERABLE AND DISADVANTAGED PEOPLE THROUGH PARTNERSHIPS THAT TRANSFORM COMMUNITIES” © All rights reserved. No unauthorised publica on in full or in part without formal authorisa on. All texts, figures and tables must be acknowledged and used with inten on for public use in good faith for the purpose of safeguarding the vulnerable and disadvantaged groups (VDGs) of people in Papua New Guinea Direct all queries to Policy Branch Department for Community Development & Religion P O Box 7354, BOROKO, Na onal Capital District Enabling a better future ISBN 978 9980 89 030 6 Printed by Blake’s Prining Department for Community Development and Religion “CREATING A SUSTAINABLE FUTURE FOR THE VULNERABLE AND DISADVANTAGED GROUPS OF PEOPLE THROUGH PARTNERSHIPS THAT TRANSFORM COMMUNITIES” The color of the perwinkle flower below represents the Vulnerable and Disadvantaged Groups of People. Its five petals represents the Five Models, the Five Principles and the Five Approaches of the Papua New Table of Contents Abbrevia ons ........................................................................................................................... I List of Figures............................................................................................................................ II Minister‘s Foreword ..................................................................................................................... III Introduc on by Secretary.............................................................................................................. IV Execu e Summary ...................................................................................................................... V Chapter One: Introduc on .......................................................................................................... 1 1.1 Objec e of the Na onal Social Protec on Policy 2015-2020 ............................................... 1 1.2 Overview of Social Protec on............................................................................................. 1 a) What is Social Protec on?................................................................................................ 2 b) Mechanisms of Social Protec on ...................................................................................... 2 c) Social Protec on Func ons .............................................................................................. 3 d) The Social Protec on Floor .............................................................................................. 3 Chapter Two: Social Protec on within the Social Sector Policy Framework in PNG.......................... 5 2.1. The Global Perspec e...................................................................................................... 5 2.2. The Pacific Perspec e...................................................................................................... 6 2.3. The Papua New Guinea Perspec ve ................................................................................... 6 a) Tradi onal Forms of Social Protec on............................................................................... 6 b) Recent Government Ini a ves in PNG .............................................................................. 7 2.4. The Context for Social Protec on in Papua New Guinea ...................................................... 7 a) The Social Environment ................................................................................................... 7 b) Natural Environment and Climate Change......................................................................... 10 c) Vulnerability and disadvantage in PNG .............................................................................. 10 2.5. The Social Sector Policy Framework Rela ng to Specific Popula on Groups ......................... 11 a) Children: Lukau m Pikinini ............................................................................................... 11 b) Youth.............................................................................................................................. 13 c) Women ........................................................................................................................... 13 f) The Persons with Disabili es (PWDs) ................................................................................. 14 g) The Elderly Persons (EPs) ................................................................................................. 14 h) People Living With HIV/AIDS (PLWHA) .............................................................................. 14 2.6. Health, Educa on and Nutri on ........................................................................................ 14 a) Health............................................................................................................................. 15 b) Public Health................................................................................................................... 15 c) Educa on ........................................................................................................................ 15 d) Nutri on & Food Security ................................................................................................ 16 2.7. Administra e Aspects of the Policy Framework ................................................................ 16 a) Na onal Iden fica on and e-ID Card System .................................................................... 16 b) Disaster Management Response ...................................................................................... 17 2.8. Policy Linkages and Ra onale ............................................................................................ 17 a) Policy Catalyst ................................................................................................................. 17 b) Policy Ra onale............................................................................................................... 18 Chapter Three: Na onal Social Protec on Policy 2015-2020.......................................................... 19 3.1. Policy Mandate................................................................................................................. 19 3.2. Policy Statement .............................................................................................................. 19 a) Vision ............................................................................................................................. 19 b) Goal ........................................................................................................................... 19 c) Objecives .................. ................................................................................................... 19 3.3. Policy Scope ..................................................................................................................... 20 3.4. Policy Approach................................................................................................................ 20 3.4. Guiding Principles ............................................................................................................. 21 a) Core Principles ................................................................................................................ 21 b) Suppor ng principles and good prac ce ........................................................................... 22 Chapter Four: Na onal Social Protec on Policy Strategies............................................................. 24 4.1. Systems Framework.......................................................................................................... 24 4.2. Process Sequencing .......................................................................................................... 25 4.3. Policy Strategies ............................................................................................................... 25 Strategy One ....................................................................................................................... 26 Strategy Two....................................................................................................................... 26 Strategy Three .................................................................................................................... 26 Strategy Four ...................................................................................................................... 26 Strategy Five ....................................................................................................................... 27 Chapter Five: Na onal Social Protec on Policy Implementa on Infrastructure............................... 28 5.1. Establish Na onal Social Protec on Systems and Strategic Alignment ................................. 28 a) The policy framework, ..................................................................................................... 28 b) Resource mobiliza on ..................................................................................................... 28 c) Ini al programming of Strategies rela ng to elderly persons and persons with disabili es ... 29 d) Awareness and Advocacy ................................................................................................. 29 5.2. Capacity Development ...................................................................................................... 29 5.3. Partnership & Networking ................................................................................................. 29 5.7. Informa on Management Systems .................................................................................... 30 Chapter Six: Monitoring and Evalua on Model ............................................................................. 31 6.1 Program Logic Model ......................................................................................................... 31 a) Outcome Flow-Chart........................................................................................................ 31 b) Program Logic Model Flow-Chart ..................................................................................... 31 c) Results Chain ................................................................................................................... 32 d) Logical Framework .......................................................................................................... 32 e) Performance Management Framework ............................................................................ 35 6.3. Evalua on ........................................................................................................................ 37 Annex 1. Five Social Protec on Models .................................................................................... 38 I Abbreviations Abbrevia on Meaning NPSP…………………….……. Na onal Policy on Social Protec on VDG…………………………… Vulnerable and Disadvantaged Group DSP…………………………... Development Strategic Plan MTDP………………….…….. Medium Term Development Plan ICDP………………………….. Integrated Community Development Policy ECCD…………………………. Early Childhood Care and Development Policy LPA……………………………. Lukau m Pikinini Act DfCDR……………………….. Department for Community Development & Religion NIEP………………………….. Na onal Informal Economy Policy DSI…………………………….. DS Interna onal Inc. DP…………………………..…. Development Partners ART…………………………….. An -retroviral Treatment VCT…………………………….. Voluntary Counselling & Tes ng SP……………………………….. Social Protec on SPSN…………………………... Strongim Pipol Strongim Nesen SIP……………………………… Social Inclusion Policies NID…………………………….. Na onal Iden fica on of Ci zens CR………………………………. Civil Registry DP………………………………. Development Partners CBP…………………………….. Capacity Building Plan II List of Figures Figure 1: Social Protec on Floor .................................................................................................. 4 Figure 2: The framework of vulnerability on social protec on ....................................................... 11 Figure 3: Disaster Management framework for social protec on ................................................... 17 Figure 4: Development Framework .............................................................................................. 18 Figure 5: Ins tu onal dynamics of social protec on..................................................................... 21 Figure 6: Five core principals of Na onal Policy on Social Protec on .............................................. 21 Figure 7: Systems framework for social policy .............................................................................. 24 Figure 8: Flow chart of social protec on interven on process ....................................................... 25 Figure 9: Levels of implementa on and where social protec on is situated.................................... 30 Figure 10: Flow chart of outcome data ......................................................................................... 31 Figure 11: Program Logic Model .................................................................................................. 31 Figure 12: Results Chain Flow Chart ............................................................................................. 32 Figure 13: Logical Framework ...................................................................................................... 32 Figure 14: Performance Management Framework ........................................................................ 35 Figure 15: Evalua on flow chart of Na onal Policy on Social Protec on ......................................... 37 Front Cover Design © Policy Branch, Department for Community Development & Religion, 2015. © Photograph of Hon. Delilah Gore, Minister for Religion, Youth & Community Development, page III © Photograph of Mrs. Anna Solomon, Secretary, Department for Community Development & Religion, © DS Internaional Inc. photographs on pages 10, 11, 13 & 14. III Minister‘s Foreword I announce with great pleasure and honour on behalf of the Na onal Government and people of Papua New Guinea the endorsement of the Na onal Policy on Social Protec on (2015-2020). The need for Policy ini ally stems from the concern for the impact of economic downturns including the suscep bility to natural calami es which make families and ci zens in Papua New Guinea vulnerable and disadvantage. The interest of the Vulnerable and Disadvantaged groups of people have always been the mandate of Ministry of Religion, Youth and Community Development therefore it is fi ng the responsibility was given to my Department to develop the Na onal Policy on Social Protec on (2015 – 2020) and I am happy to say the Policy has been six (6) years in the making - a comprehensive research and consulta ons both locally and interna onally have been undertaken to develop this policy and I would like to take this opportunity to thank the Department team, the Social Protec on Taskforce and Development Partners to finally have in place a Policy Framework on Social Protec on for the vulnerable and disadvantaged groups of people in Papua New Guinea. The prac ce of Social Protec on is not new to Papua New Guinea society except that the terminology is recent. “Protec on‟ and “assistance‟ has been a universal norm in our culture. The principles of protec on and assistance to the vulnerable and disadvantaged members of the society are s alive and widely prac ced. However as a func on of me, the dynamics of the social protec on prac ces also changed due to the mone sa on cultural shi we experience today. While the shi has been the worldwide trend, it has been so far beneficial to some while many are s struggling to cope with the changes taking place around them on daily basis. It is the utmost priority of the Government within this context to ensure the vulnerable and disadvantaged groups of people in our society are receiving services to a minimum standard of living. This means all barriers hindering effec e services to the vulnerable and disadvantaged groups are addressed to deliver sustainable service program to achieve desirable development outcomes for the vulnerable and disadvantaged groups. The vulnerable and disadvantaged groups of people are an important development sector accounted through a life-cycle from concep on to birth and from birth to death. Issues, circumstances and condi ons one is subjected to throughout life either enhances or disempowers the quality of his or her life. Gender, old age and disability are pre-determined parameters within popula on structure coupled with socio-economic circumstances, condi ons and natural calami es add to the vulnerability a person, families and communi es face. This is the underlying context of the Na onal Policy on Social Protec on. Therefore this Policy is an overarching Policy for the Social Protec on Sector that requires strategies for specific issues for the vulnerable and disadvantaged groups of people within all sectors and levels of Government, administra on and society. I conclude with an invite to all partners and stakeholders to work with Government to implement this Policy to improve the lives of vulnerable and disadvantaged groups in Papua New Guinea. HONOURABLE DELILAH GORE, MP MINISTER FOR COMMUNITY DEVELOPMENT, YOUTH AND RELIGION AND MEMBER FOR SOHE Introduction by Secretary With great sense of privilege and honor, I hereby introduce an exemplary Policy for the Na onal Government on Social Protec on for the vulnerable and disadvantaged group of people‟ (VDGs) in Papua New Guinea. My Department was at the helm of the process in driving this Government priority since 2009. The process was although slow and long, it was also very exhaus ve, comprehensive and rewarding indeed. The Policy is a stand along document taking into account the holis c, mul -sectoral and mul - func onal nature of social protec on. Therefore to effec vely implement this Policy each sector requires specific strategies to tailor social protec on interven ons. In addi on each sector is required to properly characterise social protec on targets. For instance “Lukau m Pikinini‟ the Child Welfare sector requires the iden fica on of the forms, types and kinds of social protec on groups in-order to effec vely iden y the right target groups and implement a program to safeguard those vulnerable and disadvantaged children. Building on from our socio-cultural prac ces the Policy embraces different statutory func ons and ins tu onal dimensions of a formal social protec on system as required under the Policy. The func onal orienta on within the Department has been the catalyst to drive development for the vulnerable, disadvantaged and the marginalised persons which this Policy is founded on. Furthermore this Policy is not about reinven ng the wheels but will provide an overarching Policy guide for every sectors and actors to effec vely address obstacles hindering the VDGs to receive services to a minimum standard of living. Finally I encourage everyone from Government, Churches, NGOs and Development Partners to work together in partnership to improve access to and quality of services to the vulnerable and disadvantaged group of people in Papua New Guinea. I conclude by sincerely thanking and congratulate the dra ing team of my Department under the leadership of Ac ng Deputy Secretary Corporate Services and Deputy Secretary Community Development who formulated this Policy document in a very short period of me. I also extend my apprecia on to the Technical Working Group from Department of Health, Department of Agriculture & Livestock, Department of Labour & Industrial Rela ons, Department of Na onal Planning & Monitoring and Department of Community Development & Religion. I further appreciate and acknowledge par cipa on, project inputs and experiences and assistance from our development partner from World Bank, UNICEF, UNCDF, DS Interna onal Inc., New Ireland Provincial Government and members of the Na onal Task Force on Social Protec on. To our partners please do not hesitate to consult my Department for advice and assistance in implemen ng this Policy. ANNA SOLOMON SECRETARY, DEPARTMENT FOR COMMUNITY DEVELOPMENT & RELIGION IV V Executive Summary This document presents the Na onal Policy on Social Protec on, the objec e of which is to guide the development of Social Protec on in Papua New Guinea. The right to social protec on in Papua New Guinea is expressed explicitly and implicitly through a range of instruments, including the Universal Declara on of Human Rights and the Papua New Guinea Cons tu on. The long term objec e of the Policy is that the provision of social protec on will benefit all groups within the country and will be comprehensive. The policy is based on an approach of progressive universality. The ini al policy objec e is to implement social protec on programmes to address the par cular needs of those who are vulnerable or disadvantaged. As the implementa on of social protec on in Papua New Guinea progresses and the pa ern of needs changes over me, the policy will be further expanded and developed. This policy statement is therefore a ‘living document’. Chapter One: Introduc on. The Chapter provides the over-view of social protec on. The special role of social protec on as part of social policy is to address the needs of individuals, families and communi es – men, women and children - who are disadvantaged, or who are vulnerable to or have been impacted by events of a kind to undermine their livelihood, wellbeing or health. Vulnerability describes the situa on of people who have a higher risk of suffering an event which would result in their livelihood, wellbeing or health being undermined. Disadvantage describes the situa on of people who have suffered an event which has led to their livelihood, wellbeing or health being undermined. These concepts are reflected in the long-term vision of comprehensive coverage, suppor ng all individuals and families at a level of, at least, a defined minimum standard of living, and encompassing aspects of social development and empowerment, allowing the realiza on of their rights in this regard. An important aspect is the recogni on of the family as the fundamental socio-cultural/socio-economic unit in our society, and the cri cality of ensuring the needs of women, men and children are fully addressed. The Policy sets out the scope and the mechanisms of social protec on which will underpin the development of social protec on, and sets out the range of func ons which must be carried out in order to opera onalize and develop social protec on in Papua New Guinea. Chapter One also discusses the way in which the Na onal Policy fits into the most widely agreed global framework for the provision of social protec on: the Na onal Social Protec on Floor. Chapter Two: Social Protec on within the Social Sector Policy Framework in PNG. This chapter sets out a broad picture of the framework in which the Policy will to implement. Global, Pacific and tradi onal Papua New Guinean wantok-based social protec on perspec es and recent government ini a es are discussed. Chapter Two also provides an overview of the social environment, including popula on trends, trends to urbaniza on and labour and employment trends (with reference to both the formal and informal sectors). Integrated community development is discussed as one of the key mechanisms for development in Papua New Guinea, providing a holis c and integrated approach to community centered development. Chapter Two then describes the ways in which vulnerability and disadvantage are experienced by specific groups within the popula on; these include children (no ng the Lukau m Pikinini Act 2009), youth, women, and persons with disabili es, the elderly, and people living with HIV/AIDS. The Chapter then discusses aspects of the broad social sector policy framework, in par cular recent ini a es to strengthen the provision of healthcare, public health and educa on. There is also a brief discussion of several administra e aspects of the policy framework, including the roll-out of the electronic na onal iden fica on system. Chapter Three: Na onal Social Protec on Policy 2015-2020. Chapter Three sets out the Na onal Social Protec on Policy. The policy Vision, Mission, Goals and Objec es are stated: • Vision: all Papua New Guineans, and within the context of the focus of the Na onal Social Protec on Policy 2015-2020 , vulnerable and disadvantaged individuals and groups, will be provided with the support they require from Government, service providers and the wider civil society to enjoy their rights and to meet their development needs. • Mission: to ensure that appropriate policy and service responses are available to those who are vulnerable and disadvantaged in mee ng their rights and development needs underpinned by a minimum standard of living • Goal: to develop a na onal social protec on system which will provide appropriate material support to vulnerable and disadvantaged individuals and groups in Papua New Guinea. • Objec ves: The principal objec es are to guide the development, implementa on and synchroniza on of policies at both the broad na onal and sectoral levels and at all levels of government and society The policy approach is mul -dimensional, being one of: rights-based development, provision of support based on needs over the life-cycle, a systems approach incorpora ng integrated community development. The Policy is founded on five core principles: • Protec on: Vulnerable and disadvantaged individuals and groups must be protected from unpredictable risks in their life. • Assistance: Vulnerable and disadvantaged individuals and groups will require assistance which may encompass assistance in cash and in kind. • Empowerment: Individuals, families and communi es need to be empowered to act so as to address their own needs to the extent of their capaci es. . • Transforma on: The outcome of social protec on programs in PNG will provide a conducive environment for individuals, families and households to transform their lives to achieve be er levels of wellbeing. • Resilience: The Policy seeks to increase resilience, in par cular the resilience of vulnerable and disadvantaged individuals and groups to respond to socio-economic and environmental shocks. The implementa on will be based on a set of suppor ng principals and approaches to good prac ce. Chapter Four: Na onal Social Protec on Policy Strategies. Chapter Four introduces the range of strategies which must be developed in order to implement the Policy. The Policy is founded on the understanding that, in order to provide effec e social protec on programmes and services, in par cular to vulnerable and disadvantaged individuals and families, it is a precondi on to establish an appropriate and systema c ins tu onal environment. The chapter goes on to set out the principal stages of a sequen al approach: governance, policy implementa on, finance and infrastructure and social protec on programs and services. VI VII There are five policy strategies: • One: To guide the con nuing development of an ul mately-comprehensive na onal social protec on system for Papua New Guinea, ini ally targe ng the vulnerable and disadvantaged groups • Two: To guide the development, and integra on within the wider set of social sectoral policies, of strategies and plans on social protec on, targe ng firstly the vulnerable and disadvantaged groups of people in Papua New Guinea • Three: To guide the synchroniza on of sectoral policies and strategies on social protec on • Four: To provide a guide for development and implementa on of specific programme interven ons, of social protec on in line with the models, principles and approaches advocated in this Policy, targe ng ini ally the vulnerable and disadvantaged groups but also with a longer-term perspec ve. • Five: To coordinate Policy implementa on process across all sectors and on all levels of Government and society Chapter Five: Na onal Social Protec on Policy Implementa on Infrastructure. This chapter outlines the policy priori es in rela on to implementa on and infrastructure. The priori es are: • Resource mobiliza on: Budget policies at all levels of Government and Administra on will need to recognize the issues and needs of the “vulnerable and disadvantaged groups‟ in the wider community. Successful implementa on is reliant on predictable and consistent financial strategies • Ini al implementa on focusing on the elderly and persons with disabili es. The development of these provisions will pave the way, and provide lessons for further social protec on provisions under this Policy in the future. • Awareness and advocacy: The effec eness of the Policy will rely on strong and in-depth awareness programmes covering Government, private sector, civil society and the community at large in rela on to their roles and responsibili es. It is crucial for implementa on that key personnel are equipped with appropriate knowledge and skills, and informa on technology pla orms. Policy implementa on must therefore be accompanied by a plan for appropriate capacity building of the human resources of the different organisa ons involved in social protec on programmes/projects. Partnerships with specialist organisa ons are envisaged for the development of the skills of project officers and as an important tool for building ins tu onal capability. Chapter Six: Monitoring and Evalua on Model: Implementa on of social protec on programs requires an effec e monitoring and evalua on framework. The policy adapts the “theory of change‟ principle to measure expected the change resul ng from improved social protec on systems which support vulnerable and disadvantaged groups in Papua New Guinea. In order to assess performance of the na onal social protec on program effec ely, the “program logic model” under the theory of change will clarify the monitoring and evalua on process. The framework include the outcome flow-chart, the results chain, the logical framework, performance measurement framework and the evalua on. There should be a mid-term evalua on of the policy a er two-years and a full evalua on. 1 Chapter One: Introduction 1.1 Objective of the National Social Protection Policy 2015-2020 The objecive of the Naional Policy on Social Protecion is to provide the overarching guide for the development of Social Protecion in Papua New Guinea. The policy will provide the key for Government across Papua New Guinea to advance the right of all people to benefit from social protecion. The right to social protecion is expressed explicitly and implicitly through a range of instruments, including the Universal Declaraion of Human Rights and the Papua New Guinea Consituion. The long term objecive is that the provision of social protecion will benefit all groups within the country and will be comprehensive. The iniial policy objecive is to implement social protecion programmes to address the paricular needs of those who are vulnerable or disadvantaged. The policy establishes the plaform for the implementaion of social protecion programmes using muli-dimensional approaches to promote sustainable social outcomes, the development of naional social protecion systems and infrastructures, advocacy for inclusive intervenion strategies and programmes for both vulnerable and disadvantaged groups of people in Papua New Guinea. The Policy recognizes the complexiies of vulnerability and disadvantage in Papua New Guinea and the scale of the needs of those who are most affected. This approach encompasses both livelihood support and improving access to relevant services. This policy provides a guide for the iniial development of social protecion in Papua New Guinea. As the implementaion of social protecion in Papua New Guinea progresses and the patern of needs changes over ime, the policy will be further expanded and developed. This policy statement is therefore a ‘living document’. 1.2 Overview of Social Protection The Naional Policy on Social Protecion is one of a range of policies addressing the social needs of the people of Papua New Guinea. The special role of social protecion is to address the needs of individuals, families and communiies – men, women and children - who are disadvantaged, or who are vulnerable to or have been impacted by events of a kind to undermine their livelihood, wellbeing or health. This policy uses the term vulnerability to describe the situaion of people who have a higher risk of suffering an event which would result in their livelihood, wellbeing or health being undermined. Disadvantage is used to describe the situaion of people who have suffered an event which has led to their livelihood, wellbeing or health being undermined. Available evidence indicates that In Papua New Guinea the numbers of people who are vulnerable or disadvantaged is high by current world standards, in paricular levels of vulnerability and disadvantage experienced by women and children. Children in paricular are hardest hit when their basic needs are not met; they are dependent on others for the fulfillment of their needs and the denial of which can have far-reaching and long-term adverse consequences. 2 Accordingly, the paramount concern of the social protecion policy is to meet the needs of those idenified as being, respecively, vulnerable and/or disadvantaged, in terms of sufficiency of income and access to relevant services. This will reflect a long-term vision of comprehensive coverage, supporing all individuals and families at a level of, at least, a defined minimum standard of living, and encompassing aspects of social development and empowerment, allowing the realizaion of their rights in this regard. In addiion, observaions around the world indicate that the implementaion of effecive naional systems of social protecion is strongly associated with growing producivity and hence with sustainable economic growth and development. The national framework of policies in the social sector recognizes the paricular need to limit the risks to livelihoods associated with vulnerability, and in the first place to provide support to disadvantaged individuals, families and communiies. This framework represents a holisic approach, to be implemented through the promoion of programmes focused on integrated community development, family protecion and support services, spiritual growth and development, civil registraion for all ciizens, youth developing programs, informal economy paricipaion, programmes for women and gender equity development, water and sanitaion programmes, land and housing programmes, urbanisaion, social pensions for persons with disability and elderly persons. An important aspect is the recogniion of the family as the fundamental socio cultural/socio-economic unit in our society. The broad outreach to those who are vulnerable and disadvantaged will be realized through the goals, strategies and deliverables of the development plaform of the Naional Government as set out in the documents for Vision 2050, the Development Strategic Plan 2010-2030 and the Medium Term Development Plan 2011-2015. Accordingly, the strategies for implementaion of the Naional Policy for Social Protecion must be sustainable and comprehensive in the long term. They must be integrated with and linked to the range of government programmes already in existence. Finally, they must address both the needs of those who are vulnerable and disadvantaged, and also the invaluable complementary efforts of private sector organizaions, churches, NGOs and society at large. a) What is Social Protection? Social protecion, in broad terms, encompasses a set of iniiaives designed to provide support to those individuals, families and communiies who may potenially suffer disadvantage (and are therefore vulnerable), or are actually disadvantaged in terms of livelihood income and access to services such as health care; the objecive is to minimize the social and economic impacts in the forms of sigma, discriminaion and inequality, and which would deny their access to a minimum standard of living, general well-being and, crucially, their associated human rights. b) Mechanisms of Social Protection Schemes and systems of social protecion can be formulated in a wide variety of formats. These possibiliies form a wide spectrum ranging from highly formal (providing benefits based on a strong system of rules) to relaively informal. The provisions made to the beneficiaries may take the form of cash or in-kind benefits, or services (such as health care). Other dimensions of scheme design relate to the provision of resources and schemes may be contributory, in which case they rely partly on advance contribuions by members, or non-contributory. Such choices are made in accordance with the condiions prevailing in any given country, and are likely to reflect, for example, the extent to 3 which formal or informal employment prevails in the economy, which would strongly determine the capacity of working individuals to contribute to the scheme. c) Social Protection Functions In order that the needs of those who are vulnerable and disadvantaged can be addressed effecively within the framework of the Naional Policy on Social Protecion it is necessary that a number of basic administraive funcions are carried out, namely: • The registraion of members to whom benefits may actually or potenially be paid; • The mobilizaion of financial (and other) resources needed to provide these benefits; • The maintenance of the administraive structure itself. In addiion, however, it is necessary to deal with a number of “higher-level” funcions, including: • The mobilizaion of financial resources and capacity development needed for social protecion programme implementaion; • The provision of ongoing advice and guidance for the development of policies, systems and processes for social protecion programmes and services, advocacy, the creaion of awareness and building of partnerships in support of social protecion naionwide • The idenificaion and development of specific responses in relaion to issues and needs of the vulnerable and disadvantaged groups in all sectors and at all levels of Government and administraion; • The analysis of social-sector policy linkages, both horizontally and verically; • The coordinaion of Policy implementaion across all sectors and levels of Government and administraion. d) The Social Protection Floor The Social Protecion Floor provides, at a global level, the most widely-agreed framework for the implementaion of naional systems of social protecion. It is applicable in all countries, on the basis that system design and implementaion will be carried out in a way which is specific to the condiions in each country. The SPF framework: • is explicitly rights-based; • represents a life-cycle approach to social protecion, and • accordingly recognizes the needs of men, women and children. In treaing social security as a basic right for all, it provides for coherent and coordinated approaches, exploring global synergies across sectors and the seing of prioriies. Social Protecion therefore performs the social security funcion specifically to safeguard vulnerable and disadvantaged groups, and represents the most comprehensive instrument to achieve sustainably the desired social development outcomes for those in Papua New Guinea who are vulnerable and disadvantaged groups. The framework recognizes that each country has different economic, social and cultural condiions and hence the models of social protecion which they choose will employ different approaches and strategies. This is true for each component of a naional social protecion floor, which will therefore have its own strategies and implementaion systems. In the case of PNG, a range of iniiaives have been developed in different parts of the country which address the relevant needs of vulnerable and 4 disadvantaged people, and these should be promoted without limi ng the boundary of policy applica on to a single na onal framework such as the “social safety net” approach. Figure 1 below presents one possible visualiza on of a na onal social protec on floor, within which basic provision may be made under a “social safety net” model. It is envisaged that this is the approach under which a pioneer strategy on pension for disability and elderly will be implemented consistent with this overarching policy guide, but which will provide a con nuing framework under which in the longer term further ini a es can be taken to address the needs of men, women and children. Figure 1: Social Protec on Floor low low Individual/ household income High Level of protection high Voluntary insurance Mandatory social insurance/ social security benefits of guaranteed levels for contributors THE FLOOR: Four essential guarantees 1. Access to essential health care for all 2. Income security Children 3. Assistance Unemployed, Underemployed and poor 4. Income security Elderly & poor PRIVATE INSURANCE RETIREMENT BENEFITS 5 Chapter Two: Social Protection within the Social Sector Policy Framework in PNG 2.1. The Global Perspective Social protecion addresses the needs of individuals and families for support at imes when unpredictable risks, such as illness, disablement or death of the breadwinner, strike in such a way as to undermine the self-supporing capacity of the individual or family, usually through their own paid or unpaid work. Historically, it has been the case that in all countries of the world, these needs have been met largely on a mutual basis by the family or community to which the individual belongs, and that framework of mutual support although weakening sill exists everywhere, to some extent. In Papua New Guinea, the system of mutual support is sill strong, in the form of the “wantok system”. Nevertheless, the historical perspecive shows that, globally, as individuals and families begin to shit from subsistence living to paricipaion in the cash economy, the capacity of any system of mutual support becomes increasingly inadequate. An extremely important aspect of this transiion is the movement of individuals from rural areas, where the family and community networks are strong, to the urban areas, in order to take up paid work, but where the tradiional mutual support networks cannot be effecive. For these reasons, all countries find that it is necessary, at some point in their economic development, to begin the implementaion of a system of social protecion which can meet the needs of those who are struck by these kinds of unpredictable misfortune, at least in part, through income support (most oten in cash, but possibly in kind), and also through ensuring access to at least some level of health care. In most of the countries which are now highly industrialized, this transiion began early in their periods of “industrial revoluion”, and mutual associaions of workers, such as “sickness clubs”, grew up quickly. These became formalized in naional systems and policy frameworks, and have been in existence in most such countries for around one hundred years, or a litle longer. It can be observed that the economic success of these countries has grown in parallel with, and does not pre-date, the development of their social protecion systems, and it is strongly argued that, by relieving the fear of workers of losing their livelihoods in an unpredictable way (through for example disablement or ageing), naional systems of social protecion contribute criically to the general growth of workers’ producivity. In PNG a number of valuable iniiaives have been taken within this perspecive, on either a formal or a relaively informal basis, to reduce the levels of vulnerability and disadvantage. Such evidence as is available suggests that levels of both have been and remain high relaive to other countries in both the region and the world. Naional iniiaives have been developed in the areas, for example, of health and educaion, while limited iniiaives of a risk-reducing nature have been devised on an ad hoc basis, and with specific local scope. This chapter presents a survey of the range of subjects in relaion to which social policies are under acive development or implementaion. No naional framework for social protecion has yet, however, been drawn up. This policy is accordingly designed to fill that gap in a imely manner. 6 2.2. The Paci�ic Perspective Social protection in most Pacific Island countries is typically informal and reliant on ‘tradiional safety nets’ embedded in extended land-based, cooperaive kinship or clan-based communiies. The widely held view that tradiional Pacific Island community tradiional safety nets work well and should not be disturbed, does not appear to be sustainable in the face of rising poverty levels and social change. Tradiional safety nets require the majority of clan members to contribute in order for redistribuion to be effecive. Migraion, urbanisaion and remitances affect tradiional safety nets. In addiion, the effeciveness of tradiional safety nets can be uneven. Tradiional systems seem to be more effecive at addressing shocks that affect individual households (fo r example funeral expenses) and less effecive at responding to extensive poverty or widespread shocks. Within the context of informal social protecions context, across the Pacific Region, remitances from migrants to urban areas and remitances sent by family members’ resident in other countries can play an important role in supporing families. Tradiional networks are being subjected to increasing strain and are poorly suited to the widespread hardship faced by communiies across the Pacific region. Churches, NGO’s and community groups in most Pacific Island countries provide some welfare services, but their coverage is limited and uneven. The need to augment tradiional safety nets with formal social protecion systems is being increasingly accepted by Pacific Island countries. Currently, the main formal social protecion instrument in Pacific Island countries is the contributory naional provident fund which usually only benefits workers in the formal sector. Within this context, New Ireland is at the forefront of the development of social protecion in the Pacific. The New Ireland Old Age Pension is one of a several non-contributory old age and disability pension schemes in Pacific. Other countries which have implemented old age pension schemes are the Cook Islands, Nauru, Niue, Samoa, Kiribai and Fiji. Disability schemes have also been implemented in two Pacific countries: the Cook Islands and Nauru. Fiji previously included disability categories as part of the Family Assistance Programme. However the categories were general and tended to be used as a basis for providing a benefit to poor households, rather than as a means of providing disability or chronic illness support. When the Family Assistance Programme was restructured as a poverty benefit, categorizaion was abolished. The government of Fiji is currently considering opions for potenial disability pension. In addiion Fiji provides a social assistance program for low income parents and caregivers to provide for the care and protecion of children. 2.3. The Papua New Guinea Perspective a) Traditional Forms of Social Protection The “wantok system‟ has historically been the principal social protecion modality used throughout PNG. However, levels of assistance and protecion under the “wantok system‟ are becoming increasingly reacionary, unpredictable, and cannot improve wellbeing in the long term. Within this context, indirect assistance and investment in the needs of extended family members or relaions is becoming more common than direct transfers. Similar to other Pacific Island countries, informal kinship based social protecion systems, whilst coninuing to be an important form of social support, are no longer adequate as the primary form of social protecion. Formal social protecion systems are now required. 7 b) Recent Government Initiatives in PNG i. Social protection initiatives As discussed above, the Old Age Pension implemented by the New Ireland Provincial Government is one of several non-contributory old age pension schemes in Pacific. The New Ireland Provincial Government has also implemented one of the few non-contributory disability schemes in the Pacific. The transfer payment for both schemes comprises a direct cash transfer of $360 paid annually to assist the beneficiary to meet their needs and the needs of their household. The New Ireland Provincial Administraion has also implemented a ‘Roof over the Head’ Scheme to subsidise households waning to re-clad their roof to a permanent iron roof (and water catchment) and a ‘sweat equity’ scheme for New Ireland residents who want to establish a business. ii. Other related initiatives The Government of PNG has invested in a range of iniiaives related to social protecion which have targeted a range of sectors, seings and situaions. Examples include: • Food security programs in the agriculture and fisheries sectors • Post disaster management such as the Gazelle Restoraion Program in East New Britain and Manam Restoraion due to Volcanic Erupions • the Aitape Tsunami and El Nino (drought) due to climaic condiions • Post War Reconstrucion Environment like for Bougainville ater the ten years civil war • The Free educaion policy of Enga Provincial Government operaing since 1997 • The agriculture tax credit scheme for cash crops • The air freight subsidy for Telefomin District in Sandaun Province • The sustainable development program for Western Province, and • The sea transport subsidy for Morobe Province • School Scholarships for Teriary students provided by the Office of Higher Educaions • Other iniiaives include parole service for the prisoners; maintenance for deserted wives and children under the welfare services; paralegal and legal aid services by the clerk of courts; public solicitors, and legal training insitute; the family support center for vicims of family and sexual violence; free provision of ART to people living with HIV/AIDS; free condoms and VCT services; naional voluntary services; setlement upgrading. 2.4. The Context for Social Protection in Papua New Guinea a) The Social Environment In developing a Naional Policy for Social Protecion in Papua New Guinea, it is important to observe, firstly, the present status and the trends in a variety of indicators, and secondly the range of iniiaives to address the needs of vulnerable and disadvantaged people, that are complementary to social protecion as such, and which have already commenced. This secion provides a summary of the former. i. Population The measured annual growth rate of the populaion of PNG between the years 2000 and 2011, calculated from the census returns of those years, is 3.1 percent, the naional populaion having reached 7,275,324 million people in 2011. Of these, 52 per cent are males and 48 per cent females. The proporion of children up to 18 years of age, at 40 per cent, is high by world standards, and that 8 of older persons from 60 years of age and above, at 4.6 per cent is relaively low, although increasing fairly rapidly. The present policy framework guiding the relevant strategies is set out in the Naional Populaion Policy 2000-2010. The available staisical assessment of those who are classed as vulnerable and disadvantaged is not very detailed, but they are thought to represent up to 50 per cent of the total naional population, a figure which highlights the importance of present iniiaives in social protecion. ii Urbanization The returns from the 2011 census of the naional populaion shows that the rate of urbanizaion in Papua New Guinea, that is the proporion of those living in urban centers, is rising rapidly, even if rate of growth varies widely as between paricular centers. The reported proporion of those living in urban areas has increased from 15 per cent in 2000 to 18 per cent in 2011. The many, criical challenges of urban growth to be reflected in the policy framework include: • Employment –– the search for paid (waged or salaried) employment, preferably in the formal economy, to sustain the livelihoods of individuals and families; • Land Tenure – the challenge of making available sufficient land in urban areas to support development, given the known complexiies of land ownership and itles in PNG; • Housing and housing finance – the challenges in this regard reflect the chronic and severe shortage of housing generally, and the serious problem of affordability of rents, especially for the vulnerable and disadvantaged groups; • Infrastructure and social services -the provision of adequate infrastructure by way of transportaion, uiliies and ameniies, and also educaion and health faciliies, on a basis which allows affordable access to, in paricular, those who are vulnerable and disadvantaged; • Rapid proliferaion of unplanned squater setlements on vacant State, private and customary lands are amongst those most vulnerable and disadvantage urban ciizens iii. Labour and Employment Formal Economy Naional policy in regard to labour and employment is presently grounded in the labour laws1, which are strongly focused on formal employment public and private sectors. It may be noted that PNG raified the Employment Policy Convenion 1964 (no.122) of the Internaional Labour Organizaion (ILO) in 1976, at a ime when concern was growing that economic growth was not addressing the problems of unemployment and underemployment in developing countries. While, since 1976, various employment related iniiaives and intervenions have sought to strengthen linkages between the demand and supply sides of the labour market, no new integrated Naional Employment Policy has yet been formulated. The present challenges include the very high proporions of vulnerable and disadvantaged groups amongst the unemployed and underemployed, who therefore need improved access to the labour markets, in paricular at the formal end of the spectrum of formality and informality. Evidence from 1 The PNG labour law is primarily governed by the Industrial Relaions Act 1962 and the Employment Act 1972, accompanied by a range of related legislaion that deals with registraion and oversight of industrial organisaions (i.e. the Industrial Organisaions Act), together with specific legislaion that deals with dispute setlement in the Public Sector and teaching service 9 recent research suggests that 40 per cent of those who are either unemployed or underemployed fall within the categories of those who are vulnerable or disadvantaged, including youth, women (single mothers, widows and elderly women persons) and persons with disabiliies. This is significant, not only because the “natural” means of sustenance and livelihood is through paid work, but also because evidence shows strongly that employment represents an important social and economic determinant of health. A major aim of policy development will be to set a clear pathway to access training at the universiies, colleges and training insituions, tailored to industry needs. Informal Economy Papua New Guinea has a very large informal sector. It is esimated up to seventy five per cent of the populaion is engaged in informal economic acivity. It is also esimated sixty percent of paricipants are women. Informal sector aciviies span a broad range of acivity and include, for example: market vending and retailing, hand crats and artefacts, farming, poultry, fishing and huning. The development of the Informal Sector Control Act 2004 (currently under review) is the legislaive framework to guide the informal business and transacions in PNG. In addiion an informal economy policy has been developed: the Naional Informal Economy Policy 2010-2015. The goal of the policy is for all Papua New Guineans, irrespecive of gender, age, disability and ethnicity to be financially included. This will require government and stakeholders to create opportuniies to conduct skills training, idenify and build capacity for individuals who are already involved in the sector, in order to promote small to medium enterprise iniiaives throughout the country. The Naional Informal Economy Policy also calls for Government support in the form of grants and loans for capital accumulaion and micro financing designed for marginalised and disadvantaged families. Government has also supported the informal sector by rebuilding town markets to accommodate increasing demand; these include Wewak, Madang, Goroka Mount Hagen, and Kokopo. The development of the Informal Sector Control Act 2004 (currently under review) is the legislaive framework to guide the informal business and transacions in PNG. Specific support infrastructure for vulnerable and disadvantaged groups is required under the Naional Informal Economy Policy in order to increase paricipaion in the informal economy sector. Social protecion strategies may be required to boost vulnerable and disadvantaged group paricipaion in the informal economy. iv. Integrated Community Development The “self-help‟ responses by communiies towards their development needs are captured by Integrated Community Development Policy 2007-2011. It addresses community vulnerabiliies in relaion to community learning, community livelihood, community governance and community environment. These core pillars have the capacity to transform communiies from ‗inside-out‟ with support from “outside in‟ to create knowledgeable, producive, vibrant and resilient com- muniies for a sustainable future. Ideally it addresses criical deficiencies in informaion, knowledge and skills to empower communiies to drive their own development with support from Government and other development partners. It calls for a holisic and integrated approaches to community centered development with maximum partnerships support from outside the communiies. The Policy context is operaionalize through the primary strategy of ―District Focal Points for Community Learning and Development Centers”. It is the structural mechanism for facilitaing 10 linkages between Government and communi es, resource organisa ons and communi es, coordina ng partnerships and coordinate delivery of services to the communi es. Hence this Policy recognizes the appropriateness of the integrated community development policy to address different aspects of community vulnerabili es as well as its structural/delivery mechanism in rela on to the current governance environment. It furthermore advocates for consistency to the integrated community development policy strategies. b) Natural Environment and Climate Change Geography influences spa al distribu on of human se lement, infrastructure and material resources. The current status of social development largely reflects the challenges associated with terrain and service delivery. The onset of climate change and the implica on for the livelihood of the people and community is also important to social protec on. These factors are cri cal for the administra on of the na onal social protec on program. c) Vulnerability and disadvantage in PNG Support to vulnerable and disadvantaged groups is provided by a range of actors including families, community, Government, Churches and NGO with support from Development Partners .The degree of vulnerability varies according to the level of support available and received by these groups. Many families and communi es face significant challenges of sustenance, access to and affording basic necessi es. The capacity and capability of public responses in respect of vulnerability and disadvantage needs significant improvement. A key challenge is the uneven reach and uneven distribu on of na onal resources and services. Historically, the existence of a communal society has meant that many households were able to provide for their basic needs through income sharing. Such sharing is deeply rooted in Melanesian culture and is reflected in the na onal cons tu on that calls for “Papua New Guinean Ways”. 11 Figure 2: The framework of vulnerability on social protec on Figure 2 above illustrates the range of sectorial issues rela ng to vulnerability in a life cycle perspec e, and highlights the importance of public policy social protec on responses. In the broadest context, the environment in which people live has mul ple effects on the severity of vulnerabili es they face. For example, children and persons with disabili es (PWDS) are likely to suffer dispropor onately from the impact of a natural disaster. 2.5. The Social Sector Policy Framework Relating to Speci ic Population Groups A socially inclusive society is a society in which people feel valued, in which differences are respected and in which basic needs are met so that all people experience an acceptable level of wellbeing and can live with dignity. Cri cally, a socially inclusive society requires equity of access to quality social services. This in turn requires society to be sensi e and responsive to the issues and needs of vulnerable and disadvantages individuals and groups. The following are the key vulnerable and disadvantaged groups the Na onal Policy on Social Protec on 2015-2020 will seek to support: a) Children: Lukautim Pikinini Children have Rights Children have rights. Papua New Guinea has one of the youngest popula ons in the Pacific region. Children comprise approximately forty percent of the PNG popula on. Public policy to protect children is important in any society; it is par cularly important in Papua New Guinea at this me. Every child in Papua New Guinea requires protec on from all forms of harm and danger. FAMILIES SETTINGS 0 - 18 19 - 25 26 - 60 60+ YEARS OLD COMMUNITIES LUKAUTIM PIKININI YOUTH PRODUCTIVE AGE ELDERLY EDUCATION/ LITERACY (ECCD, Adult Literacy, TVET, Elementary, Primary, Secondary & Tertiary, Open Learning INTERGRATED COMMUNITY DEVELOPMENT (Learning, Economics, Governance & Environment) HEALTH (Antenatal, Environmental Health, Malaria, TB, Nutrition, Health Promotion SOCIAL INCLSION (Women Empowerment, Child Protection, Gender Equality, Disability, etc) LABOUR & EMPLOYMENT ENVIRONMENT CLIMATE CHANGE EFFECT DISASTER URBANISATION & SETTLEMENT FOOD SECURITY URBAN RURAL FORMAL INFORMAL POVERTY HUMAN STATUS SITUATIONS f The UN Convenion on the Rights of the Child (UNCRC) is the primary instrument which provides Internaional Standards and Guidelines for addressing the rights of children. PNG raified the UNCRC in March 1993. PNG acknowledge a commitment to uphold the requirements of the Internaional Convenion. This requirement led to the development of the Lukauim Pikinini Act in 2009. Lukauim Pikinini: The Protecion of Children As stated in the Act, Lukauim Pikinini is a Tok Pisin term meaning “the care, protecion and promoion of the rights and well-being of all children regardless of their race, religion, sex, ability or disability and naionality”. The Lukauim Pikinini Policy 2015 - 2020, embraces the direcions of the Lukauim Pikinini Act 2015. The policy calls for the promoion of rights and the protecion of the well-being of all children in PNG. The policy also calls for a coordinated effort by all stakeholders whether government, religious organisaions, non-government organisaions or private sector to strengthen partnerships and to reinforce the direcions of the Lukauim Pikinini Act. Consistent with the Lukauim Pikinini Act, the Lukauim Pikinini Policy will provide and implementaion framework to reinforce the commitment of Government to all aspects of the quality of life of children in PNG. Within this context, the Act defines a Child in need of Protecion: • Whose parents are dead or incapacitated by and adequate provision has not been made for the child‘s care • Who has been abandoned by their parents and adequate provision has not been made for the child‘s care • Who has suffered or is likely to suffer significant harm as a result of physical abuse or mal treatment • Who has been, or, is likely to be physically harmed, sexually abused or sexually exploited • Who has been, or is likely to be physically harmed, sexually abused or sexually exploited by some person other than the child‘s parent, and the parent is unwilling or unable to protect the child • Who has been, or likely to be physically harmed because of neglect by the child‘s parents, or who is sexually or emoionally abused by the child‘s parents or guardian • Whose development is likely to be seriously impaired by treatable condiion and the child‘s parents refuse to provide or consent to treatment • Who is living in a household where there have been incidents of domesic violence and, as a consequence, the child is at risk of serious physical or physiological harm • Who is or has been absent from home in circumstances that endanger the child‘s safety or well-being • Who has serious differences with their parents to such an extent that the physical, mental, or emoional well-being of the child is being seriously impaired (or threatened) or the care and control of the child is likely to be seriously affected The Policy will also recognise that a child may also be a child for whom Emergency Protecion Powers can be invoked. These can happen, where a child: • Has been abandoned shortly ater delivery • Appears lost or to have run away • Shows signs that their health or safety are in immediate danger 12 13 b) Youth The Papua New Guinea Youth Policy 2007 – 2017, defines the youth age as being the ages from 12 to 25 years. Youth represents approximately 20 per cent of the popula on. Young people face many challenges which can lead to vulnerability. Young people can experience lack of opportunity to access a wide range of services to support their development, including health care, educa on, and employment. Youth unemployment and underemployment has been one of the major policy challenges. There is a major need to create employment opportuni es to produc ely engage youth. The ILO report “Inclusive Growth for Youth,” indicates PNG’s youth employment rate was 4%. The2010 Na onal Census indicates youth labor force par cipa on is 57.6%. The key Youth policy interven on is to resource and implement the nine strategic policy goals that are captured in the Na onal Youth Policy. These are: • Improving the quality of youths’ lives • Accessing integrated educa on • Nurturing sustainable livelihoods • Promo ng healthy lifestyles • • Strengthening Ins tu onal Capacity • Youth and Iden es • Research Informa on and Data Collec on on Youth; and • Law, Order and Jus ce. c) Women Many women in Papua New Guinea are vulnerable or disadvantaged and experience a range of issues including gender based violence, discrimina on of gender roles in economic choices, limita ons in decision making ability, power and freedom. As a consequence many women cannot live rewarding independent lives. PNG has ra fied the Conven on on the Elimina on of Discrimina on Against Women (CEDAW), and is accordingly commi ed to a range of appropriate interven ons. A recent World Bank/ Ins tute for Na onal Affairs report “Gender and Economic Choice of Women in Papua New Guinea” (INA, 2012) found that gender roles in economic choices and decision making, power and freedom, marriage and children, educa on and economic opportuni es are now slowly shi ing from tradi onal male dominance to a more balanced perspec e. This indicates there has been some progress in promo ng women’s development and empowerment in Papua New Guinea. The Government is commi ed to ensuring progress for Women. The Government, in conjunc on with a range of non-government organiza ons and development partners has developed the Policy Framework on Women: The Women and Gender Equality Policy, the Gender Equity Policy and the Social Inclusion Policy. The policies and the related Gender Based Strategy (currently in progress) are the major instruments being developed by Government for the protec on of women, and women’s development and empowerment in Papua New Guinea. The key interven on to ensure protec on, empowerment and development for women the mainstreaming of the gender policies and the gender-based strategy into all the Government Departments and Agencies, Statutory Bodies, State Owned Enterprise and Provincial Governments. 14 f) The Persons with Disabilities (PWDs) Levels of disability in Papua New Guinea are not known. The World Health Organiza on es mates that around 15% of the global popula on is likely to have some form of disability (Na onal Disability Policy 2007). Despite some improvements in inclusive educa on for the disabled, the expansion of community based rehabilita on, support for the emergence of Disabled Persons’ Organisa ons as key focal points organisa ons and increasing levels of public awareness, disabled people in Papua New Guinea con nue to struggle to have their rights recognized, to limit discrimina on and to improve access to social and economic services. Disability-inclusive development is essen al to achieving the Millennium Development Goals. Papua New Guinea ra fied the United Na ons Conven on of the Rights of Persons with Disabili es (CRPD) in September, 2013. The Na onal Disability Policy advocates for a rights based approach for the disabled, with focus on responsibili es, processes and standards against which rights are secured. The key interven ons to create an inclusive rights based society for persons living with disability are: an ins tu onal budget and legal framework, advocacy on rights and responsibili es and programs and services. Government has recognized the need to provide pension support the disabled. A social pension is currently being designed. It is intended that the social pension will be progressively rolled out across PNG with the objec e of achieving national coverage. g) The Elderly Persons (EPs) There is currently no standard defini on for old age or elderly persons (EPs) in Papua New Guinea. Approximately 4.6% of the PNG popula on is 60 years or older. Economic and social change is increasing the vulnerability of elderly people, and reducing overall levels of family support for them. It is likely that a significant number of elderly people are now disadvantaged. Government has recognized the need to provide pension support the elderly. A social pension is currently being designed. It is intended the social pension will be progressively rolled out across PNG with the objec e of achieving na onal coverage. h) People Living With HIV/AIDS (PLWHA) In December 2009, the total number of people living with HIV in PNG was 34,100 of which 31,000 were adults aged 15 or over. This is a 0.9 % na onal prevalence rate in the 15 to 49 age groups (Na onal HIV/AIDS Strategy 2011- 2015). Regionally 60 % of cases were in the Highlands, 26 % in Southern Region (including 21 % for Port Moresby), 11 % of cases were in Momase and 2 % in the New Guinea Islands. 2.6. Health, Education and Nutrition Na onal social-sector policy is mul -dimensional, addressing the needs of groups subject to specific vulnerabili es or forms of disadvantage, as reviewed above, but also the needs for access to specific services and provisions. In this regard, important policy development ini a es are ongoing with 15 regard to access and quality improvement in social services generally, and in health, educaion and food security specifically. a) Health In broad terms, everyone is vulnerable to loss of good health, but those who are already economically disadvantaged are most suscepible to a range diseases and illnesses. Moreover, the impact is greatest for those who are affected by, for example, gender based violence and disasters (man-made or natural). The cost of accessing health services presents a major challenge, and as an important staring point naional policy has adopted the fee free primary health care approach, together with subsidizing a range of important services. This policy is being implemented throughout the country‘s outpaient health care network, including aid posts, community Health Posts, Health Centers, District Hospitals and referral public hospitals. A number of key challenges are operaional, including the need for increased staffing (and their remuneraion) in both rural and urban areas, building new infrastructure and providing new health equipment. b) Public Health In addiion to the strengthening of access for individuals and families to health care, naional policies also address issues of public health, including immunizaion and the improvement of standards in sanitaion and food hygiene, its handling, preparaion and storage, in the light of trends to subsitute processed for tradiional and tradiionally-prepared foods. It is a paricular concern that food – borne infecions like diarrhea, which should be easily treatable, now represent the seventh leading cause of death in PNG. c) Education Educaion is a key subject of social policy. At the naional level, educaion of appropriate quality represents the country’s investment in its future human capital, while at the personal level it is the key to integrated human development, equipping a person with relevant skills and knowledge to be socially and economically producive. Over a long period, Papua New Guinea has tailored its policy towards the MDG target of the Universal Primary Educaion, in terms both of full enrolment and retenion rates, and has aligned this to the MTDP, DSP & Vision 2050 with the aim of meeing the global targets While, according to the HIES report, PNG has not been able to meet the global deadline for this target, work coninues to address the constraints, the most significant of which are the lack of capacity of families to pay school fees, the lack of sufficient school faciliies and the problems of supplying remote schools. The first of these issues is strongly connected with the lack of income amongst disadvantaged groups, and has been addressed firstly by the development of the “Fee Free Educaion Policy‟, which is aimed at increasing rates of student enrollment and retenion. The key strategies include improving governance, through awareness-raising, and the operaing environment of schools, and School feeding programmes and the provision of boarding faciliies are important in encouraging the atendance of students, paricularly those from the disadvantaged 16 groups. In each of these regards, the aim of the social protecion policy to relieve income poverty will greatly improve the prospects for success of the policies for educaion. d) Nutrition & Food Security PNG is a country which is heavily reliant on agriculture. Eighty five percent of the total populaion are involved in the private and subsistence agricultural acivities, mainly growing food for their own consumpion but also for sale and exchange. Food security 2 , for the majority of small-scale farmers, rural communiies and urban dwellers, is chronically at risk as a result of factors such as emerging changes in the weather paterns, climate change, natural disasters, infiltraion and proliferaion of dangerous pest on food crops, soil inferility, environmental degradaion, and land scarcity resuling from over-populaion. Food insecurity is recognized as a key contributing factor to the country’s low human development index raing (UNDP 2011), in which it ranks 156 out of 187. 2.7. Administrative Aspects of the Policy Framework a) National Identi�ication and e-ID Card System Papua New Guinea is developing a naional idenificaion system. The inability to prove idenity is a growing concern across Papua New Guinea. It is expected that in the medium term, the ability to enroll in schools, to enroll in the electoral roll and vote, to uilize public health services and to paricipate in formal employment will progressively require producion of forms of formal idenificaion. Many Papua New Guineans do not currently possess formal means of idenificaion (for example birth cerificates and passports). Only about 25% of the total populaion are registered with the Civil Registry. A naional electronic-ID card system is being introduced to address this gap. The naional idenificaion and e-ID card system may also serve as a tool for development planning and service delivery for the country, including the vulnerable and disadvantaged groups within the country, by providing beter base informaion. The recently endorsed Naional Persons and Idenificaion Policy 2013 and the Naional Civil Registry Act (amended) and renamed the Civil Registraion Bill 2013 (to be enacted) will provide the framework for naional registraion throughout the country. The purpose is to gather, screen, document, file, safe keep, correct, update and cerify the occurrence of vital events including the characterisics relaing to individual proof of idenity and changes in their civil status affecing as individuals or families. The Policy advocates for integraion of civil registraion into subsidiary social protecion strategies. 2 Food security is defined as a state of affairs where all people at all imes have access to safe and nutriious food with sufficient quality and quanity to maintain a healthy and acive life. 17 b) Disaster Management Response Papua New Guinea is vulnerable to a range of natural disasters: volcanic ac ty, landslides, tsunamis, earthquakes, floods and tropical cyclones. Disasters pose significant risks to people and communi es across Papua New Guinea. Government responses to environmental disaster can be slow, in par cular due to the me required to release of funds to government and non-government agencies which work to support communi es which have experienced environmental disaster. A key interven on is the crea on of a disaster response and relief fund, to be jointly access by the Disaster Office and PNG Defense to support effec e disaster response. Figure 3 illustrates the levels of ac ons required during disasters. The level of vulnerability of people during disasters increases significantly with the magnitude of disasters. Social protec on systems can be an effec e means of ge ng funds to communi es coping with the effects of a disaster. In addi on social protec on programs can reduce the effect of a disaster on households. Figure 3: Disaster Management framework for social protec on 2.8. Policy Linkages and Rationale a) Policy Catalyst The development of a Na onal Policy for Social Protec on takes place in the context of a major paradigm shi for social development for PNG, from a “welfare” approach to one based on an integrated development model. This represents accordingly the catalyst for the policy and ins tu onal approach envisaged in the Na onal Policy for Social Protec on. In accordance with the vision of an integrated approach, the social protec on func on will occupy a central posi on in the na onal development framework. This is illustrated in the diagram below, which indicates (in the lower box) the alignment of social protec on in the broad social sector policy framework. Risk Mitigation Risk Coping Risk Reduction E x a n te p re v e n tiv e m e a s u re s D is a s te r P ro te c tiv e m e a s u re s fo r re c o v e ry P ro te c tiv e m e a s u re s fo r lo n g te rm a d a p ta tio n SOCIAL PROTECTION Humanitarian Action 18 Figure 4: Development Framework More importantly it shows (in the upper box) where social protec on is situated within the na onal development framework. It should be noted that the shi from a conven onal “welfare model” into an “integrated community development model” accommodates the range of social inclusion aspects regarding gender, child protec on, disability, elderly and civil registra on. Recognizing the current government priori es on social protec on, na onal iden fica on system and religion, the func onal specifica ons are gradually evolving to fit the guiding model and framework. The figure shows the rela onship of social protec on to mainstream social sector and other relevant sectors and the synergies envisaged in the ins tu onal and policy se ngs arising from the higher development plans of Medium Term Development Plan 2011-2015, the Development Strategic Plan 2010- 2030 and Vision 2050. b) Policy Rationale The development of an effec e social protec on system, which will first of all address the needs of those who are vulnerable and disadvantaged, in line with the DSP 2010-2030 and MTDP 2011-2015, can be successful only within the framework of an appropriate policy direc on to guide public and ins tu onal responses. The Na onal Policy on Social Protec on provides such an overarching guide to the systema cal and comprehensive implementa on of such a system of social protec on with the ul mate goal of improving number and quality of services available to the vulnerable and disadvantaged, so as to effec ely meet their human and development goals underpinned by a minimum standard of living. OTHER SECTOR POLICIES ICDP SPP SIP INTERMED IATE PLANS NATIONAL SOCIAL PROTECTION SYSTEM THE CATALYST DSP 2010 2013 VISION 20150 PNG TO BE HAPPY, HEALTHY, WEALTHY, WISE & PROPEROUS BY 2050 MTDP 2011 2015 SOCIAL SECTOR POLICY GOALS DfCDR POLICY GOALS ICD POLICY OTHER SECTOR POLICY GOALS VISION 2050 ICDP CR/NID Welfare SIP SP Religion Chapter Three: National Social Protection Policy 2015-2020 3.1. Policy Mandate The mandate on for the Na onal Social Protec on Policy 2015-2020 is derived primarily from the Five Goals and Direc ve Principles. These are: Integral Human Development, Equality and Par cipa on, Na onal Sovereignty and Self-Reliance, Natural Resources and Environment and the Papua New Guinea Way. All ci zens have equal rights. The fundamental rights and the qualified rights under the Na onal Cons tu on provide the basis for the Na onal Social Protec on Policy. Other enabling policies and legisla ons within the sector including Lukau m (Child Protec on) Pikinini, Disability, and Gender are specific and relate directly to the Interna onal Conven ons on Rights of Children, Conven on on Elimina on of all Forms of Discrimina on Against Women and Conven on on the Rights Persons With Disabili . 3.2. Policy Statement a) Vision All Papua New Guineans, and within the context of the focus of the Na onal Social Protec on Policy 2015-2020 , vulnerable and disadvantaged individuals and groups, will be provided with the support they require from Government, service providers and the wider civil society to enjoy their rights and to meet their development needs. b) Goal The ini al Policy Goal is to develop a na onal social protec on system which will provide appropriate material support to vulnerable and disadvantaged individuals and groups in Papua New Guinea. c) Objectives • To guide the development of a comprehensive na onal social protec on system for Papua New Guinea • To guide development of sectoral policies, strategies and plans on social protec on, targe g ini ally vulnerable and disadvantaged groups • To guide synchroniza on of sectoral policies and strategies on social protec on • To provide a guide for the development and implementa on of specific programme interven ons on social protec on in line with models, principals and approaches advocated in this policy targe ng the vulnerable and disadvantaged groups • To coordinate the policy implementa on process across all sectors and on all levels of Government and society 19 20 3.3. Policy Scope The Policy adopts a broad approach to addressing vulnerability and disadvantage. The policy scope does not limit the application of models, approaches and strategies of social protecion to a paricular sector. The iniial policy scope focuses on vulnerable and disadvantaged groups, with the intenion of enhancing wellbeing for vulnerable and disadvantaged people and progressively developing a social protecion plaform which can support all Papua New Guineans. 3.4. Policy Approach The Policy is designed to allow for a range of approaches to the implementaion of schemes without specific limitaions. It does envisage the use of approaches which are suitable and relevant to the actual environment in which social protecion is to be developed in PNG. The policy approach incorporates the following dimensions: • It is founded on a rights-based development approach: the rights of all persons must be fully recognised and developed to achieve equitable development outcomes. • It is a life-cycle approach: along the stages in life people – women, men and children - have different needs and challenges. Understanding the capacity of people to respond to their issues and needs is paramount to provide appropriate responses for care and support. • It is a systems approach: the integraion of systems in relaion to governance, policy, finance and infrastructure environments are precondiions for successful social protecion programmes, products and services. • It incorporates an integrated community development approach: accommodaing informal aspects in formal systems and generaing appropriate responses to the needs of individuals, families and communiies to build resiliency, enhance capaciies and transform people “from inside out with support from outside in” is crucial and fundamental for self-reliance and enhancing livelihood. • It incorporates progressive universality approach: scope/scale of intervenion program to increase on phase by phase basis unil reaching universal scope/scale 21 Figure 5: Ins tu onal dynamics of social protec on Figure 5 illustrates the importance of the rela onships between the various sectors as elements in addressing social protec on. The ins tu onal context is a significant part of the na onal response system and must be carefully and properly framed in the various strategies. 3.4. Guiding Principles a) Core Principles Figure 6: Five core principals of Na onal Policy on Social Protec on The implementa on of the Na onal Social Protec on Policy 2015-2020 will be guided by the following principles: 1. Protec on: Vulnerable and disadvantaged individuals and groups must be protected from unpredictable risks in their life. 2. Assistance: Vulnerable and disadvantaged individuals and groups will require assistance which may encompass assistance in cash and in kind. 3. Empowerment: Individuals, families and communi es need to be empowered to act so as to address their own needs to the extent of their capaci es. . INSTITUTIONAL DIMENSION FOR SOCIAL PROTECTION INSTITUTIONAL DIMENSION FOR SOCIAL PROTECTION INSTITUTIONAL DIMENSION FOR SOCIAL PROTECTION INTERGRATED COMMUNITY DEVELOPMENT SOCIAL INCLUSION OTHER RELEVANT SECTORS 22 4. Transformaion: The outcome of social protecion programs in PNG will provide a conducive environment for individuals, families and households to transform their lives to achieve beter levels of wellbeing. 5. Resilience: The Policy seeks to increase resilience, in paricular the resilience of vulnerable and disadvantaged individuals and groups to respond to socio-economic and environmental shocks. b) Supporting principles and good practice The key elements are the following; Adequacy, affordability, and sustainability Social protecion schemes and programmes must be adequate, affordable and sustainable. Benefit levels must be sufficient to provide an appropriate level of wellbeing whilst also being affordable and sustainable. Leadership and integrity The Government will provide leadership within an appropriate and responsive legal and policy framework to facilitate the coordinaion and alignment of intervenions and oversee the provision of long-term coordinated support to social protecion. It will accordingly take the necessary steps to ensuring all Papua New Guineans are covered by a basic level of social security. In addiion, the Government will ensure that ethical standards are upheld in all programmes and intervenions in various sectors. Evidence-based Programming Social protecion programmes will be informed by research conducted regularly by credible naional and internaional insituions Gender mainstreaming Coninuous assessment of the different needs of women, men, girls and boys, will be mainstreamed in all aspects of the development and implementaion of the NPSP. Equity and social jusice In accordance with the Consituion and internaional agreements, the naional social protecion policy will ensure the promoion of equity and social jusice. In those aspects of social security and social protecion which are specific to the workplace, the approach to social security and social protecion for workers will conform to internaional labour standards. Accountability Government, Development Partners and Service Providers and households who are involved in implemening and supporing social protecion will commit to a common set of performance and financial management standards and reporing procedures. They will compile and share with relevant stakeholders’ appropriate staisical informaion, periodic progress reports, and the results of independent audits, actuarial valuaions, and budgets. To the extent that responsibiliies for the delivery of social protecion are decentralized to the provinces, systems will also be required for 23 measuring results against agreed benchmarks, seing performance and quality standards, and creaing tools to monitor the delivery of benefits and services. Public paricipaion Beneficiaries and stakeholders will be consulted and involved in the design, planning, implementaion, monitoring, and evaluaion of social protecion intervenions. Flexibility and responsiveness to changing contexts Social protecion programs will be sensiive and capable of adaping to emergencies and shocks. This will enable the Government and stakeholders to respond to emergencies in a imely and effecive manner through well established, well designed, and efficient insituional channels. 24 Chapter Four: National Social Protection Policy Strategies 4.1. Systems Framework This Policy is founded on the understanding that, in order to provide effec e social protec on programmes and services, in par cular to vulnerable and disadvantaged individuals and families, it is a precondi on to establish an appropriate and systema c ins tu onal environment. The figure below illustrates the need to integrate the governance environment, policy environment, finance and infrastructure environment with the opera onal programme and services environment. Understanding these rela onships and their integra on within the systems environment is therefore crucial to the strategic development of the policy and implementa on of programmes on an effec e and sustainable basis. Figure 7: Systems framework for social policy A key aspect of the opera onalizing of systems is therefore a sequen al approach, as follows: • Governance - the key aspects include poli cal will, leadership, mandate, systems and structures which are crucial and fundamental to the success of policy implementa on • Policy implementa on with reference to the regulatory aspects together with those of strategy and planning in accordance with the policy direc es. • Finance & Infrastructure- rela ng to (as appropriate) funding pools, financing arrangements, ins tu onal arrangements, relevant administra on modali es, enabling u es, each of which should be developed with reference to social awareness and community acceptance. • Program & Services rela ng to further aspects of administra on, and the administra on of the benefits and services required for social protec on, ini ally targeted to those who are vulnerable and disadvantaged. + + = GOVERNANCE POLICY FINANCE & INFRASTRUCTURE PROGRAM & SERVICES 25 4.2. Process Sequencing Following this systema c approach to strategic implementa on, the following diagram illustrates the underlying analy cal linkages. Figure 8: Flow chart of social protec on interven on process Within each stage of the essen al sequence set out above, proceeding from “Governance” to “Policy”, “Finance& Infrastructure” and then “Programmes & Services”, the following are needed • Choose the appropriate principles which can effec ely opera onalize a specific social protec on programme in the given context • Proceed to the design and implementa on of one or more Social Protec on programmes specific to the local and social context • Assess the degree to which the design is sensi e to the relevant social structure and environment , including the needs of specific groups, families and communi es • Assess the degree to which the design is appropriate to social parameters including gender, age, disability or ethnicity including environment and demographic factors. 4.3. Policy Strategies The implementa on of the policy will be guided by strategies which are, respec ely, broad and specific. The broad strategies will address the general approach while the specific strategies will address the key interven ons and aspects of programme design for the targeted vulnerable and disadvantaged groups. The broad strategies include: The design and development of social protec on strategies through structures and programme which take into account the observed social parameters, within the specific to the contextual environments for their implementa on. FORMULATING TARGET SP INTERVENTIONS SOCIAL PROTECTION PRECONDITION SOCIAL PARAMETERS SOCIAL STRUCTURE SOCIAL PROTECTION PROGRAM SOCIAL PROTECTION PRINCIPLES Target SP Parameters SOCIAL PROTECTION PROCESS FLOW-CHART Target Social Unit Design/ Implementation SP Program/ Project SP Systems Preconditiong Identify SP Target Issues SP Situational Analysis Select Operational Principle 26 Strategy One To guide the coninuing development of an ulimately-comprehensive naional social protecion system for Papua New Guinea, iniially targeing the vulnerable and disadvantaged groups. Priorities A comprehensive naional system for social protecion is formulated and implemented to the benefits of the vulnerable and disadvantaged groups in Papua New Guinea A sustainable financing strategy is put in place to resource the naional social protecion systems to the benefits of the vulnerable and disadvantaged groups of people A strategy for building capacity and infrastructure in, firstly, administraion, accountability, monitoring and evaluaion, together with policy and programme development, has to be formulated to enable the effecive implementaion of social protecion. This includes the development of a robust, scaleable, informaion technology plaform and network. Strategy Two To guide the development and integraion within the wider set of social sectoral policies, of strategies and plans on social protecion, targeing firstly the vulnerable and disadvantaged groups of people in Papua New Guinea Priorities Define a clear set of processes to guide social protecion programme formulaion in Papua New Guinea, within the framework of key aspects set out in Figure 5 above. Strategy Three To guide the synchronizaion of sectoral policies and strategies on social protecion Priorities Undertake a naional assessment on the exising naional policies, programmes and wider iniiaives relevant to the needs of vulnerable and disadvantaged groups, in order to develop a “bridging” strategy to ensure the synchronizaion of social protecion intervenions within the overall policy framework. Strategy Four To provide a guide for development and implementaion of specific programme intervenions, of social protecion in line with the models, principles and approaches advocated in this Policy, targeing iniially the vulnerable and disadvantaged groups but also with a longer-term perspecive. Priorities Develop strategic plans for each of the target groups, in detail for those idenified at the outset, and in outline for the longer term; Assess the scope for synergies and alignment of models, principles and approaches to maximize the effeciveness with which to address the needs of the target groups 27 Strategy Five To coordinate Policy implementaion process across all sectors and on all levels of Government and society Priorities Establish policy and structural linkages, with specific reference to those aspects of naional policy which encourage decentralized and autonomous funcioning of social protecion systems. 28 Chapter Five: National Social Protection Policy Implementation Infrastructure Under the authority and supervision of the Government of Papua New Guinea, the policy will be implemented as appropriate by the full range of social sector stakeholders, with key focus on the establishment of strategies, specifically through: • the development of social protec on systems and schemes, to meet the needs of the vulnerable and disadvantaged groups, • resource mobiliza on, • capacity development, • partnership and networking; in this regard it is envisaged that the Churches will play a role of par cular importance The following sec ons iden fy key aspects. 5.1. Establish National Social Protection Systems and Strategic Alignment a) The policy framework, The policy framework, which is mul -sectoral and cross-sectoral in nature, relies on a systems management framework for social protec on implementa on and coordina on, and will provide guidance on both the effec e implementa on of “downstream”, administra on elements, together with “upstream”, feedback of elements to be mainstreamed at the level of the na onal policy framework. b) Resource mobilization i. Budget Policy Strategies Budget policies at all levels of Government and Administra on should recognize the issues and needs of the “vulnerable and disadvantaged groups‟ in the wider community. The weight that should be given to their needs in the light of the principles of popula on budge ng, may reflect the fact that they are es mated to represent about thirty per cent of the total popula on. ii. Financial Strategies It is important to the successful implementa on of the Policy that it can rely on predictable and consistent financial strategies. Although it is recognized that resources are scarce, strategies for the successful mobiliza on of the necessary sustainable pool of financial resources exist. These include: • Project Approach with fixed-budget regimes within project framework which can guarantee financial predictability, increased certainty and efficient implementa on. The help of Development Partners may be sought, in par cular for start-up needs. • Joint-Funding arrangements between the Government, Development Partners, Churches and NGOs can structured within such a project framework regimes, alloca ng specific func ons to each partner. • Donor Trust Fund where different donors can be responsible for different aspects of resourcing the na onal social protec on systems management framework. c) Initial programming of Strategies relating to elderly persons and persons with disabilities The provision of Social Pension for the elderly persons and those with disabilities is envisaged as the pioneer social protecion strategy under this Naional Policy on Social Protecion. The development of these provisions will pave the way, and provide lessons for further social protecion provisions under this Policy in the future. d) Awareness and Advocacy The effeciveness of the Policy will rely on strong and in-depth awareness programmes covering Government, private sector, civil society and the community at large in relaion to their roles and responsibiliies. The Policy recognizes and will take advantage of exising awareness iniiaives under various social sector programmes and aims to complement those efforts. 5.2. Capacity Development It is crucial for the program implementaion that key personnel are equipped with appropriate knowledge and skills. Policy implementaion must therefore be accompanied by a plan for appropriate capacity building of the human resources of the different organisaions involved in social protecion programmes/projects. Partnerships with specialist organisaions are envisaged for the development of the skills of project officers and as an important tool for building insituional capability. Such comprehensive capacity building plans should include programme leadership and administraion management at all levels. 5.3. Partnership & Networking The implementaion of the policy requires collaboraion and partnership by all sectors and at all levels. This include involvement and paricipaion on planning, budgeing, strategies development and program design by the three (3) iers of Government including City Commissions, District Development Authoriies and NGOs and Churches. The figure below depicts the relaionships between those different actors. 29 Inter-relaionships between and among various levels therefore are paramount for the implementaion as illustrated below. Figure 1: Levels of implementaion and where social protecion is situated 5.7. Information Management Systems Environmental and demographic informaion would form the baseline to any social protecion intervenions for vulnerable and disadvantaged groups of people. The Policy recommends for a comprehensive integrated central data-base. All informaion for vulnerable and disadvantaged groups would be disaggregated by gender, age, disability and ethnicity and should be included in all social protecion strategies. The Informaion Management System data-base would preferably incorporate baseline informaion and periodic updates from various social protecion intervenions. Evidence-based research on social protecion will feed the Informaion Management Systems periodically. 30 NATIONAL PROVINCIAL MUNICIPAL DISTRICT LLG’S 31 Chapter Six: Monitoring and Evaluation Model 6.1 Program Logic Model Understanding change is required before the changes envisaged under various strategic interven ons to safeguard the vulnerable and disadvantaged groups are measured. The policy adapts the “theory of change‟ principle to measure expected the change resul ng from improved social protec on systems which support vulnerable and disadvantaged groups in Papua New Guinea. Implementa on of social protec on programs requires an effec e monitoring and evalua on framework. It is recommended all mul -sectorial and cross-sectorial social protec on programs should incorporate monitoring and evalua on as part of the program. This serves three purposes: • Keeping track of social protec on indicators and development goals of the vulnerable and disadvantaged groups • Providing a planning tool for short-term and long-term goals • Providing a tracking system to measure the progress of social protec on programs within and across sectors In order to assess performance of the na onal social protec on program effec ely, the “program logic model” under the theory of change will clarify the monitoring and evalua on process. The framework include the outcome flow-chart, the results chain, the logical framework, performance measurement framework and the evalua on. a) Outcome Flow-Chart Figure 10: Flow chart of outcome data b) Program Logic Model Flow Chart Figure 11: Program Logic Model PNG REPORT TO MDGs MTDP GOALS & OUTCOMES SECTOR GOALS & OUTCOMES PROJECT GOALS & OUTCOMES Goals of National Policy in Social Protection Program/Project Vision & Goals for which all actions must align Objectives, Activities and inputs are defined Agencies & Programes assess their own outputs and outcomes Assess the overarching performance against Policy Goal Assess the sustainability of outcomes and the impacts 32 c) Results Chain Monitoring and evalua on of na onal social protec on programs will be conducted using the results chain shown in Figure 12. The detailed will be captured in the specific strategies. Figure 12: Results Chain Flow Chart d) Logical Framework Figure 13 below shows the Logical Framework of the Na onal Policy on Social Protec on Figure 13: Logical Framework Level Result Indictor Target Assump on/Risk Impact There is a significant improvement in the quality of life of vulnerable and disadvantage groups of people in Papua New Guinea Outcome Social and economic barriers to equitable access to social services and economic opportuni es are significantly Output 1 A func onal integrated na onal social protec on system for is established for the vulnerable and disadvantaged group of people in Papua New Guinea Output 2 Social Protec on Strategies and the Social Pension Strategy for persons with disabili es and elderly persons and formulated and implemented Output 3 Effec e Resource Mobilisa on Output 4 Effec e Capacity Development for Policy implementa on Output 5 Effec e Awareness and Advocacy Output 6 Effec e Partnership and Networking Output 7 Establish informa on Management System Ac ty Under Output 1 • Undertake a stakeholder analysis for social protec on programs of vulnerable and disadvantaged groups A completed stakeholder analysis report One comprehensive Report Strong & consistent poli cal will, fiscal space available, co corpora on by stakeholder agencies to share informa on, Assess against Policy Objectives Assess against Policy Goals Assess against Policy Vision Assess against Policy Vision 33 • Undertake policy/regulator y review analysis for vulnerable and disadvantaged groups • A naional strategy is formulated for establishing an integrated naional systems for social protecion A completed policy and regulatory review analysis report A naional strategy is formulated One comprehensive Report One strategy document is in placed Willingness of stakeholder agencies to improve coordinaion Structures and mechanisms exist to undertake integraion on social protecion across sectors Under Output 2 • A naional social pension strategy for elderly persons A naional social pension strategy for elderly person is formulated A document of social pension strategy for elderly persons NEC mandate, support from treasury/central agencies Under Output 3 • Establish social protecion trust fund A operaional dedicated trust fund for social protecion is established A trust fund is established and operaional by 2020 Under Output 4 • Sector wide HR Plan is formulated • Appropriate insituional framework for social protecion • Appropriate organisaional framework for social A HR Plan developed Governance & Coordinaion Structure in placed Governance and A HR plan is established by 2016 Governance and Coordinaion Structure in place by 2016 Governance and coordinaion 34 protec on Coordina on Structure in place structure in place by 2015 Under Output 5 • Awareness and communica on strategy An awareness and communica on strategy document is in placed An awareness and communica on strategy is formulated by 2016 Under Output 6 • Establish a na onal advisory & coordina on commi ee A na onal advisory and coordina on commi ee is established A na onal advisory & coordina on commi ee is established by 2015 NEC Endorse Policy, corpora on from stakeholders Under Output 7 • Establish a central data base and informa on management system/kits Complete set-up of central data base and informa on management systems/kits at the headquarter and a pilot site Complete data base system and informa on infrastructure/kits at headquarter and pilot sites by 2016 Office reloca on completed, so wares, staff recruitment completed 35 e) Performance Management Framework A Performance Measurement Framework should be used in the repor ng process. Each year an annual report for the Policy implementa on should be compiled based on the monthly and quarterly monitoring and repor ng process. Figure 14 below shows the Performance Management Framework Figure 14: Performance Management Framework Indicator Baseline Target Method, Data Source Frequency of Data collec on & repor ng Responsibili es Traffic Lights (Status) 1. A func onal integrated na onal social protec on system for is established for the vulnerable and disadvantaged group of people in Papua New Guinea 1.1. A completed stakeholder analysis report on social protec on Organisa ons and programs exist in different sectors Stakeholder analysis review report completed by April 2015 Review reports and annuals reports from each agencies Once DfCDR and all relevant agencies/stakeh olders 1.2. A completed policy and regulatory review report on social protec on Laws, regula ons and policies exist in different sectors Policy and regulatory review report completed by June 2015 Review Reports and Annual Reports from each agencies Once DfCDR and all relevant agencies/stakeh olders 1.3. A na onal Strategy for Social Protec on is formulated and implemente d Stakeholde r Analysis Report and Policy & Regulatory Review Report A na onal strategy document is in-placed by 2015 Strategy document from Policy Branch Monthly, quarterly and annual repor ng DfCDR and all relevant agencies/stakeh olders 2 Social Protec on Strategies and the Social Pension Strategy for persons with disabili es and elderly persons formulated and implemented 2.1. Stakeholder Analysis Report Laws, policies and programs exist in different A na onal social pension strategy for elderly person is Review reports and annual reports from each agencies Annual data collec on and bi-annual reports DfCDR 36 sectors formulated by 2015 and implemented 2.2. Policy & Regulatory Review Report Laws, policies and programs exist in different sectors 3 Effecive Resource Mobilisaion 3.1.Establish social protecion trust fund Informaio n from central agencies (Treasury, Finance & Planning) trust fund for social protecion is established and operaional by 2020 Review reports and annual reports from each agencies Once and periodic reporing DfCDR and relevant central agencies 4. Effecive Capacity Development for Policy implementaion 4.1. Sector wide HR Plan is formulated Stakeholde r Analysis Report & Policy & Regulatory Review report Sector HR Plan developed by June 2017 Review reports and annuals reports from each agencies Monthly, quarterly and annual reporing DfCDR & relevant stakeholders 4.2. Appropriate insituional framework for social protecion Stakeholde r Analysis Report & Policy & Regulatory Review report By 2016 Review reports and annuals reports from each agencies Periodic basis 4.3. Appropriate organisaion al framework for social protecion Stakeholde r Analysis Report & Policy & Regulatory Review report By 2015 Review reports and annuals reports from each agencies Periodic basis 37 5 Effec e Awareness and Advocacy 5.1.Awarene ss and communica on strategy Informa o n from Policy Branch Completed by 2016 Informa o n from stakeholder s Regular DfCDR & stakeholders 6 Effec e Partnership and Networking 6.1. Establish a na onal advisory & coordina on commi ee Stakeholde r analysis report By 2016 Annual reports Regular intervals DfCDR 7. Establish Informa on Management System 7.1. Establish a central data base and informa on managemen t system/kits Internal ICT Division & Policy Branch data-base By 2016 fully established data-base system and infrastructur e/ kits Quarterly and Annual reports Regular basis DfCDR & ICT Stakeholders 6.3. Evaluation There should be a mid-term evalua on of the Policy a er two years of implementa on. The evalua on shall cover implementa on of the na onal strategy and the specific strategies and sectoral programs and projects on social protec on. The main focus of the evalua on shall be the appropriateness of the process and the strategies used in the social protec on program. In addi on it shall cover aspects of program grounding and delivery The post-evalua on shall happened a er five years. It will be comprehensive and encompasses strategies, systems, structures and processes and focus on outputs and outcomes (refer Figure 15). The key lessons learnt will be used to guide the process of reviewing and improve the policy systems and delivery mechanism including strategies, program design and implementa on in future. Figure 15: Evalua on flow chart of Na onal Policy on Social Protec on Assess Outputs against Policy Objectives & Strategies Assess Outcome & Impact against Policy Vision, Goals, Objectives & Strategies Lessons learnt & recommendations informs Policy Review. 38 Annex 1. Five Social Protection Models Tradiional Residual Model The Tradiional Safety Net Model which experts refer to as the Residual Model is the most dominant form of Social Protecion in PNG today. This model is praciced throughout all PNG socieies. The model is oten referred to as the “Wantok System”, although the term itself is described as having negaive connotaions linked to nepoism and corrupion. Under that model, society is expected to care for itself by providing protecion and other forms of social security to the vulnerable members of the households and communiies. However, using the PNG definiion of social protecion as a yard sick, this model does not provide strategies to empower individual households and to transform the lives of individuals and low income households in the long term. While the model provides some assistance and protecion to vulnerable households and individuals, the level of assistance and protecion is reacionary, unpredictable, negligible, and cannot improve the value of house assets or income in the long term. Some studies and commentators have pointed out that the tradiional model of social protecion is now weakened as a result of changes in lifestyles in both urban and rural areas. The modern market driven economy, nuclear family units, the daily cost of living, and struggles to meet daily basic needs all exert pressure on wage earners paricularly in urban centers. In reality, there is a limit on the ability of the extended family members, especially income earners, to meet cultural family obligaions towards the elderly, those with disabiliies, the widows and widowers, and children who have no other means of support and survival. Therefore the long term ability of the model to rid PNG of poverty and enhance people’s ability to cope with risks appears bleak. Insituional Model Almost opposite to the Residual Model is the Insituional Model of Social Protecion. Under the Insituional Model the vulnerable and disadvantaged people are removed from the family and society and placed under insituional care in faciliies that are established by the state for that purpose. In PNG, examples of such insituions include: the Prisons, the Juvenile Care Centers like the Boys Town, Cheshire Homes, the Laloki Psychiatric Centre, boarding schools, and teriary insituions, hospital wards, and care centers. The Insituional Model is based on the idea that some individuals are either too helpless or are enirely abandoned by their families and therefore must be afforded complete care within an insituional seing. Unfortunately, the current capacity of some of these insituions to care and provide for vulnerable people such as disabled and elderly with special needs is very weak in terms of numbers of people cared for and naional availability. A number of reasons have been offered for this. Firstly, insituional care is a least desirable opion compared to more “mainstream” opions within families and the community. Second, the costs of long term insituional care are high per beneficiary, and therefore a heavy burden on private charity and public budgets. And most importantly, insituional care should be made available only to those with very special needs and no other opions, meaning that this model should be operaing on a limited scale with a highly selecive group of beneficiaries. 39 Social Insurance Model A third model found around the world is called social insurance, which refers to insurance mandated by the state, on a contributory basis, with explicit risk pooling features among high and low risk paricipants, and usually some form of subsidy from the state to ensure that the insurance program reaches the broadest possible group of beneficiaries, including those who cannot afford to contribute. Social insurance typically is established to protect people from catastrophic or high health costs, or to provide for a minimal “social pension” in old age, or to protect workers from periods of unemployment with an unemployment insurance program. Oten these programs involve contribuions from the state, from the individual paricipant, and the employer of working age paricipants. Social insurance is to be disinguished from privately offered insurance that insures households against thet, natural calamiies, health care costs, and accidents and so on. Social insurance is meant to cover at the least those who are employed in the formal sector, where their salaries are adequate to allow for regular deducions (or premiums) paid into the social insurance scheme. As would be expected, such schemes are difficult to extend to those working in the informal and self employed labour markets. Increasingly, governments are determined to close “coverage gaps” of such programs to bring them to the informal and lower income levels of society. Social insurance can also be structured as enirely non-contributory from the individual paricipants, and in this case, the Social Insurance Model comes close to the Social Safety Net Model. Social Savings and Credit Model Many countries, including PNG, have launched savings schemes backed by the government with seed money or other support, and aimed at helping various target groups to save more regularly and to tap into those savings for investment loans. The well-known model of micro credit and savings born in Bangladesh many years ago, the Grameen Bank founded by Muhammad Yunus, has spawned many similar group schemes aimed at helping poor people to save and access credit. Such schemes operate in PNG on a small scale and are also found widely in the Pacific. The South Pacific Business Development Foundaion was one of the first Pacific microcredit schemes in the Pacific, founded in 2000 in Samoa, and is sill thriving today. These schemes typically are aimed at helping poorer entrepreneurs to raise their producivity and income, and are unlikely to be used to insure against shocks and income loss. The Task Force Secretariat visited New Zealand and saw an example of a government backed savings scheme, Kiwisaver, which enrolls voluntarily any New Zealander into the savings scheme with a kick start contribuion to the individual’s savings account from the Government and annual tax credits thereater to match coninuing contribuions from the member. Designed as a way to encourage savings (but not as a source of credit) and to provide addiional income security in old age above that provided by the Government’s superannuaion scheme, Kiwisaver accounts receive contribuions from workers and their employers (if they are employed) and the government. Savings can be withdrawn to help purchase a first home but are otherwise held to reirement. It is administered by various private fund managers. The NAS Fund and other PNG superfund managers are examples of reirement oriented savings schemes operaing for people working in the formal sector in PNG. Similar to Kiwisaver in some respects, the PNG superfund companies manage individual savings accounts for workers unil they 40 reire, when proceeds are disbursed. The main difference between the PNG superfunds and Kiwisaver is the “social” character of Kiwisaver, in that the government subsidizes the accumulaion of savings for each member. The savings and credit model would be difficult to expand to the rural and informal sectors of the economy for a number of reasons, and would present major implementaion issues as a naional or universal scheme in PNG. These schemes also lack risk pooling as the individual savings are not shared in a common fund to cover adverse shocks to members. The microcredit aspect of some schemes allows individuals to tap into the group savings, but only for investment purposes linked to a micro enterprise. The savings schemes such as NasFund in PNG are closely ied to the formal labor market, and would encounter considerable pracical barriers in atemping to expand coverage to the rural and informal sector, not to menion the most vulnerable groups in PNG society. If a “social” savings scheme with government subsidy were to be introduced in PNG, this also would tend to favor those in the formal sector and those with incomes high enough to generate discreionary savings, leaving vulnerable families with litle or no protecion. As measured against our four yardsicks of social protecion, the savings and credit schemes generally offer some protecion against poverty in old age, but given the individual character of savings schemes and the lack of government subsidy, protecion of the poor and vulnerable is weak, and the assistance character of these schemes is also undeveloped. They do empower those who successfully paricipate in the schemes, but it would be difficult to say they are transformaive. At this stage of PNG development, a social savings/credit scheme might be premature. The Social Safety Net Model Social Safety Nets refer to non-contributory transfer programs targeted to the poor or members of paricular vulnerable groups, regardless of their means. Most internaional agencies use a similar definiion of safety nets or of social assistance, another term used widely to refer to such transfer programs. The Asian Development Bank, for example, defines social assistance as programs designed to assist the most vulnerable individuals, households and communiies to meet a subsistence floor and improve living standards. The ILO defines social assistance as tax-financed benefits to those with low incomes. The Social Safety Net model is seen in many forms following different designs. But all have in common a non-contributory character (from the beneficiary), aim at more vulnerable target groups, and provide the benefit in cash or in-kind. Some examples of different designs are: • Cash transfers or food stamps provided to means tested recipients or categorical recipients (elderly or children for example) • In-kind transfers such as food via school feeding programs or mother/child food supplementaion programs or free school supplies or uniforms, to name a few examples of in kind transfers. • Price subsidies for commodiies (food, energy), aimed at making the commodiies available at 41 lower than market prices, and thus benefiing vulnerable and other households. • Condiional transfers to vulnerable or poor households who must comply with certain condiions to use educaion or health services for family members, especially children. • Jobs on labor-intensive public works schemes, someimes called workfare. • Fee waivers for essenial services, such as health care, schooling, uiliies or transport Social safety nets financed by government are in their infancy in PNG. New Ireland Province has pioneered a monthly cash transfer program for all elderly over age 65 living in the province. Tradiional social protecion is praciced in PNG like a social safety net, with families giving and receiving cash and in-kind gits in good and hard imes. Printed By Blake’s Printing 2015/03 - 352