Title: The PROGRESAOportunidades program of Mexico and its Impact Evaluation
1The PROGRESA/Oportunidades program of Mexico and
its Impact Evaluation
- Emmanuel Skoufias
- The World Bank
- PRMPR
- May 2007
2What is a CCT?
- A Conditional Cash Transfer (CCT) program is a
targeted transfer program whereby cash is
directly provided to beneficiary families
(usually mothers) on the condition that children
attend school regularly and family members visit
health centers regularly.
3Dual Objectives of CCT programs
- Long-run poverty alleviation through investment
in human capital (i.e., education, health and
nutrition) - Early Interventions have much higher returns over
life-cycle - Short-run effect on poverty through cash
transfers
4Why are CCT programs attractive?-1
- CCT can provide the foundation of a comprehensive
Poverty Alleviation and Social Protection Policy - Induce investments by poor on human capital
- Can mitigate short-run macroeconomic shocks
- Can facilitate the phase-out of price subsidies
and/or other less effective programs - Can serve as a basic social safety net system
available to ALL households (complementary to the
safety net system accessible through employment
in formal sector)
5Why are CCT programs attractive?-2
- CCT can achieve a significant redistribution of
income in favor of the poor under tight fiscal
conditions - PROGRESA was initiated in the context of a
short-run economic crisis (1994-95) and was
designed as medium-term response to the crisis - PROGRESA gradually replaced generalized food
subsidies with direct monetary transfers
6Why are CCT programs attractive? -3
- CCT exploit the complementarities among health,
education, and nutrition. - Coordination Promote coordination of poverty
alleviation efforts among Govt ministries
(education, health, nutrition) - Synergy simultaneous provision of health,
education and nutrition benefits to all the
beneficiaries.
7Why are CCT programs attractive?-4
- Co-responsibility The beneficiaries need to take
specific actions or else they do not receive
benefit - CCT have potential of leading to lasting
improvements in the well being of the poor - Evidence from rigorous impact evaluation of
Oportunidades in Mexico Familias en Accion in
Colombias and other countries
8How CCT try to achieve their objectives?-1
- Targeting (geographic/household-level)
- Oportunidades combines geographic/village-level
with household level targeting within villages - Simultaneous intervention in 3 key sectors
(synergy)
9How CCT try to achieve their objectives?-2
- Conditioning cash transfers to regular school
attendance and visits to health centers - Cash transfers given to mothers
- Parallel support on Supply Side (schools health
centers)
10Controversial aspects of Oportunidades-1
- Why grant direct monetary transfers instead of
food in-kind, vouchers, or improving supply side
of services. - Distribution of large volumes of food free of
charge can inhibit the development of private
commercial channels and create unfair competition
with marginal producers in the area - Why target on the extreme/structurally poor and
not include all? - Setting new selection criteria Why not than
start from beneficiary lists of existing programs
or obtaining the roster of beneficiaries from
community proposals
11Controversial aspects of Oportunidades-2
- Creating a single national roster of
beneficiaries - Giving transfers directly to individuals rather
than to communities - Having unique, non-discretionary rules for the
whole country rather than allowing flexibility
for local initiatives and conditions in each
state
12Controversial aspects of Oportunidades-3
- Granting benefits to women, given potential
family conflicts - Having possible impact on fertility (since
benefits are linked to family demographics) - Size of cash transfer
- the definition of family co-responsibilities and
their certification (might generate additional
workload for teachers and medical personnel)
13How the controversial aspects of Oportunidades
were managed
- Piloting
- Expansion of the program in phases
- Independent and rigorous evaluation (targeting,
impact of the program on health, education,
nutrition, social relations, womens status etc.) - Monitoring
- Operational evaluation of the program
- Cost analysis
14Why Evaluation?
- Economic Reasons
- Improve design and effectiveness of the program
- Comparing program impacts allows G to reallocate
funds from less to more effective programs and
thus to an increase in Social Welfare - Social Reasons (increases transparency
accountability) - Political Reasons
- Credibility/break with bad practices of past
15Key elements of a successful and rigorous
evaluation
- Evaluation built-in as a component of the program
early in the program design stages - Evaluation has clear objectives
- Impact?
- Program Design? e.g. PROGRESA package
- Evaluation has political support
- Evaluation Design that yields credible estimates
of Impact
16Key elements of a successful and rigorous
evaluation
- Log frame helps identify subject to the budget
constraint available (agreed) upon - objectives
- setting indicators of impact
- data needs (quantitative and qualitative)
- the threshold value of the CHANGE in impact
indicator if a program HAS an effect - Survey sizes needed
- Budget allocated to the evaluation
17Key elements of a successful and rigorous
evaluation
- Pre-existing household surveys administrative
data - Can be used for an ex-ante evaluation of the
expected program impact and determining size of
benefits (design) - Can be used to evaluate program impact (using
before after estimator)
18CCT programs (like Oportunidades) Expanding
- Brazil Bolsa FamiliaBolsa Escola, Bolsa
Alimentacao Programa de Erradicaçao do Trabalho
Infantil (PETI) - Colombia Familias en Acción
- Honduras Programa de Asignación Familiar (PRAF)
- Jamaica Program of Advancement through Health
and Education (PATH) - Nicaragua Red de Protección Social (RPS)
- Turkey
- Ecuador Bono Solidario
- Argentina
- Bangladesh Food for Education
19OPORTUNIDADES (previously called PROGRESA)
- Large program covering rural and marginal urban
areas - In 2004 5 million families or 25 million
individuals - In 2004 budget of US 2.5 billion or 0.3 of GDP
20Program Description Benefits
- Education component
- A system of educational grants (details below)
- Monetary support or the acquisition of school
materials/supplies - (The above benefits are tied to enrollment and
regular (85) school attendance) - Improved schools and quality of educations
(teacher salaries) -
21Program Description Benefits
- Health and Nutrition Component
- basic package of primary heath-care services
- Food support (cash)
- nutritional supplements 6 packs/child/mo 20 of
caloric requirements and 100 of necessary
micronutrients) - (The above benefits are tied to regular visits to
health-service centers). - Information and training
- Improved supply and quality of health services
(medicine availability etc.)
22Program Description Benefits
- Average benefit received by beneficiary
households or 20 of the value of consumption
expenditure before program - About ½ of transfer is the cash transfer for food
and the rest from the school-related cash
transfer
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27Targeting
- Step 1 geographical targeting
- Identify localities of highest marginality used
census data - Step 2 Household-level targeting
- Within the localities identified in step 1,
conduct a household census and use that census to
collect socio-demographic data and information on
housing characteristics that is consistent and
standard nationwide. - Within Village household-level targeting (village
household census) - Used hh income, assets, and demographic
composition to estimate the probability of being
poor (Inc per capltStandard Food basket). - Discriminant analysis applied separately by
region - Discriminant score (DS) of each household
compared to a threshold value (high
DSNoneligible, low DSEligible)
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29PROGRESA/OPORTUNIDADES Evaluation Design
- EXPERIMENTAL DESIGN Program randomized at the
locality level (Pipeline experimental design) - IFPRI not present at time of selection of T and C
localities - Report examined differences between T and C for
more than 650 variables at the locality level
(comparison of locality means) and at the
household level (comparison of household means) - Sample of 506 localities
- 186 control (no program)
- 320 treatment (receive program)
- 24, 077 Households (hh)
- 78 beneficiaries
- Differences between eligible hh and actual
beneficiaries receiving benefits - Densification (initially 52 of hh classified as
eligible)
30Table A Decomposition of the Sample of All
Households in Treatment and Control Villages
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32Using regressions to get 2DIF estimates
Limit sample to eligible households in treatment
and control and run regression
- Y(i,t) denotes the value of the outcome indicator
in household (or individual) i in period t, - alpha, beta and theta are fixed parameters to be
estimated, - T(i) is an binary variable taking the value of 1
if the household belongs in a treatment community
and 0 otherwise (i.e., for control communities), - R2 is a binary variable equal to 1 for the second
round of the panel (or the round after the
initiation of the program) and equal to 0 for the
first round (the round before the initiation of
the program), - X is a vector of household (and possibly village)
characteristics - last term is an error term summarizing the
influence random disturbances.
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35Evaluation Tools
- Formal surveys
- (Semi)-structured observations and interviews
- Focus groups with stakeholders (beneficiaries,
local leaders, local PROGRESA officials, doctors,
nurses, school teachers, promotoras)
36PROGRESA Evaluation Surveys/Data
37PROGRESA Evaluation Surveys
- Additional Info Sources
- School clinic survey
- School and clinic administrative data
- Nutrition survey conducted independently by Min.
of Health and INSP - Student achievement test scores by Min of
Education - Record of payments distributed to beneficiary
households
38Topics of PROGRESAs Evaluation
- Targeting accuracy and impact on poverty
- School enrollment, attendance, child labor,
achievement scores - Health and utilization of health facilities
- Child Nutrition
- Household Consumption Nutrition
39Topics of PROGRESAs Evaluation contd
- Operation of the program and perceptions of
stakeholders - Cost-Analysis and Cost Effectiveness
- Status of women, community relations
- Adult labor supply, leisure
- Impact on short-run poverty
- intrahousehold transfers
40Evaluation Results-Targeting
- Geographic targeting of the program in rural
areas is good - Method of selecting poor households within
localities is generally accurate (undercoverage
of 7 ) - PROGRESAs targeting decreases the poverty gap
P(1) by 30 and the severity of poverty P(2) by
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41NOTE Program Operation Impact
- Linkage between program operation
implementation estimated program impact - Delays in Benefit Distribution
- Mistakes in lists of Beneficiaries
- Intention to Treat Effect vs Treatment Effect on
those who actually received treatment
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44Education
- Are more children attending school because of
PROGRESA? - How much can schooling be expected to increase?
- Are there more cost effective ways of bringing
children to school? - Does PROGRESA have more impact in certain grades?
- Any effects on drop-out rates, grade progression,
repetition, reentry?
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49Evaluation Results Education
- PROGRESA has a positive effect the school
attendance of both boys and girls in primary and
secondary school - Boys in secondary increase by 8
- Girls in secondary increase by 14
- Negative impact on childrens labor market
participation (especially boys) - No observed increase in the attendance rate
(frequency) of children in school. - PROGRESA increases overall educational attainment
by 10 (and 8 higher earnings)
50Evaluation Results Education
- Program effective in keeping children in school
especially during the critical transition from
primary to secondary - Less effective in bringing back to and keeping in
school children who were out. - Earlier entry ages, less grade repetition, better
grade progression - PROGRESA more cost-effective than increasing
access to junior secondary education
51Health
- Does it increase visits to public health clinics?
- Does PROGRESA have an effect on child health?
- On the health of adults?
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54Evaluation results Health
- Significant increase in visit rates in PROGRESA
communities - Increasing in nutrition monitoring visits,
immunization rates and prenatal care in 1st
trimester (8 increase) - No substitution between private and public
facilities
55Evaluation results Health
- 12 lower incidence of illness in children
between ages 0-5. - Significantly positive effects on adult health
56Nutrition
- Does PROGRESA impact of child growth?
- Household consumption and food diet?
57Evaluation results Nutrition
- Significant effect at increasing child growth
(1cm higher growth) and reducing the probability
of stunting among children 12-36 mo. - Household total consumption increases
- PROGRESA households eat better (higher
expenditures on fruits, vegetables, meats
animal products)
58Impact of PROGRESA on Poverty (1)
- Results so far program has no adverse effects on
labor income - Effects on total hh income and thus poverty
depends on the direct and indirect costs
associated with participation in PROGRESA. - Participation in PROGRESA?
- (a) income losses form childrens work
- (b) give up benefits from other programs (DIF,
Ninos de Solidaridad, Abasto Social de Leche) in
additional to the elimination of the Tortilla
subsidy
59Impact of PROGRESA on Poverty (2)
- Figures 1 2 the effects of PROGRESA on hh
income and poverty may not be adequately
summarized by the size and incidence of the cash
transfers - Econometric analysis based on individual and hh
income in each round from a variety of sources
labor income, income from self-employment, other
income (pensions, rent, and community profits)
and government transfers (Ninos de Solidaridad,
ININ, PROBECAT, PET, PROCAMPO) PROGRESA Cash
Transfers (from program admin records)
60Impact on Poverty
where
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64Table 4 results (1)
- PROGRESA had a significant impact in reducing
poverty between November 1997 and November 1999. - E.g. using the 50th percentile of the value of
consumption per capita as a poverty line,
suggests that the headcount poverty rate declined
by around 4.88 between November 1997 and
November 1998 and by 18.11 in the November 1999
in treatment areas (using as base the 55.44
headcount poverty rate in treatment localities in
November 1997). - Over the same period, and using as base the
corresponding value of the poverty gap and
squared poverty gap indices in treatment areas in
November 1997, the poverty gap measure declined
by 37.40, and the severity of poverty measure
(squared poverty gap) declined by 47.42. - The higher impacts of the program in reducing
poverty over time are consistent with the
findings of Gertler et al. (2006), who
demonstrated that rural households increased
their investments in microenterprises and
agricultural activities which, improved the
ability of households to generate income.
65Table 4 results (2)
- Estimates are remarkably in line with the
estimates obtained using ex-ante simulations. - E.g. simulations based on the predicted
consumption of each household in the evaluation
sample in November 1997 and adding the maximum
amount of PROGRESA cash transfers an eligible
household could receive assuming full compliance
with the programs requirements (see Skoufias et
al., 2001).
66Table 4 results (3)
- The poverty reduction effects are stronger for
the poverty gap and severity of poverty measures,
which put greater weight on the poorest of the
poor, and our evidence suggests that these
estimated poverty effects are robust to the
choice of different poverty lines. - Figure 3 and Appendix A
67Cost Analysis
- Are the administrative costs of PROGRESA high?
- What are the private costs associated with
participation in the program? - What might be the indirect effects of the program
on the national economy? (e.g. financing of the
program)?
68Evaluation Results Cost Analysis
- For every 100 pesos allocated to the program, 8.2
pesos are administration/program costs. - Very low compared to LICONSA (40 pesos per 100
pesos) and TORTIVALES (14 pesos per 100) - Targeting and conditioning of the program makeup
56 of program costs (4.6 pesos out of 8.2 pesos) - Private costs (3.8 pesos out of 8.2 pesos)
69Evaluation Results Cost Analysis
- Eliminating distortionary food subsidies and
using funds to finance a program like PROGRESA
leads to substantial welfare gains.
70The Contributions of Program Evaluation-1
- Program continued and improved
- Fox administration (begun in 2001) kept and
expanded the program - Early operations reports in PROGRESA identified
implementation issues to be analyzed further
(food supplements, intra-household conflict,
targeting views) - Decision to maintain household targeting in
PROGRESA expansion, but to add self-selection
to administrative selection in urban areas
71The Contributions of Program Evaluation-2
- Program Design improved Program expanded to
urban areas - Benefits extended to Preparatoria Secondary level
- Jovenes con Oportunidades- aims to create income
generating opportunities for poor households
through preferential access to microcredit,
housing improvements, adult education and access
to social/health insurance.
72Critical Issues to be Resolved on CCT
- Do CCT programs break the intergenerational
transmission of poverty? Need long time-series - What is the minimal CCT that may be paid?
- Oportunidades size of transfer based on
opportunity cost of children (child wage/value of
childrens contribution to family)
73Critical Issues to be Resolved
- Impact on Childrens Achievement Learning?
- Do CCT increase achievement or induce teachers to
lower grade-passing standards? - Teacher health worker incentives
- Quality of Services
74Critical Issues to be Resolved
- Do CCT generate Program/Welfare Dependency?
- So far no negative incentive effects on
adult work - Transfers Income generation
- Exit Rule?
- Lack built-in flexibility to expand coverage to
households falling below poverty during crisis
75Final Issue
- Long-Run Sustainability of Program Budget
Political Economy of Program Support
76Thank you
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79Concluding Remarks
-
- Our analysis reveals that in the PROGRESA sample,
the RDD performs very well (i.e. yields program
impacts close to the ideal experimental impact
estimates). - Critical to be aware of some of the limitations
of the RDD approach - Estimates treatment effects at the point of
discontinuity (eligibility threshold). Impact on
this group of households may be of less interest
than impact of the program on the poorer
households
80Concluding Remarks
-
- The integrity/quality of the control/comparison
group is of vital importance. - Spillover effects do not necessarily lead to a
violation of the RDD approach. As long as the
local continuity assumption continues to hold
even though there are spillover effects the
presence of spillover effects would only affect
the interpretation of the RD effect It is the
effect of being eligible for program
participation in treatment villages net of
spillover effects. - Social programs at the national scale may be very
difficult to evaluate ex-post because of the
difficulty in finding an adequate comparison group