Social protection floors for all - ILO Global Flagship Programme Strategy for the second phase 2021-2025
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X Building social protection floors for all ILO Global Flagship Programme Strategy for the second phase 2021–2025
X Building social protection floors for all ILO Global Flagship Programme Strategy for the second phase 2021–2025 International Labour Office • Geneva
Copyright © International Labour Organization 2021 First published 2021 Publications of the International Labour Office enjoy copyright under Protocol 2 of the Universal Copyright Convention. Nevertheless, short excerpts from them may be reproduced without authorization, on condition that the source is indicated. For rights of reproduction or translation, application should be made to ILO Publications (Rights and Licensing), International Labour Office, CH-1211 Geneva 22, Switzerland, or by email: rights@ilo.org. The International Labour Office welcomes such applications. Libraries, institutions and other users registered with reproduction rights organizations may make copies in accordance with the licences issued to them for this purpose. Visit www.ifrro.org to find the reproduction rights organization in your country. Building Social Protection Floors for All: ILO Global Flagship Programme, Strategy for the second phase (2021-2025) International Labour Office - Geneva: ILO, 2021. ISBN: 978-9-22035722-4 (web PDF) The designations employed in ILO publications, which are in conformity with United Nations practice, and the presentation of material therein do not imply the expression of any opinion whatsoever on the part of the International Labour Office concerning the legal status of any country, area or territory or of its authorities, or concerning the delimitation of its frontiers. The responsibility for opinions expressed in signed articles, studies and other contributions rests solely with their authors, and publication does not constitute an endorsement by the International Labour Office of the opinions expressed in them. Reference to names of firms and commercial products and processes does not imply their endorsement by the International Labour Office, and any failure to mention a particular firm, commercial product or process is not a sign of disapproval. Information on ILO publications and digital products can be found at www.ilo.org/publns Cover photo: Marcel Crozet, ILO
X Strategy for the second phase (2021-2025)
III
X Foreword
The high road to social protection
The COVID-19 crisis has shown that social protection is essential to protect
people, economies and societies in the event of systemic shocks. It has
highlighted the urgency of building national social protection systems
that are universal, robust and sustainable to facilitate a job-rich, just and
green recovery. That means investing to make a meaningful push towards
universal social protection.
Through its Flagship Programme on Building Social Protection Floors for All,
the International Labour Organization (ILO) supports its Member States to
advance towards universal social protection. The ILO provides the technical
support needed to build, through social dialogue, resilient social protection
systems, as well as to close coverage and financing gaps. It develops and
adapts its approaches to ensure that social protection systems can protect
people from today's risks and meet tomorrow's challenges.
The Flagship Programme builds on international social security standards
and collaboration with other UN agencies, international financial institutions
and other partners to increase its impact. It seeks to achieve and monitor
tangible results, creating or adapting social protection schemes, supporting
domestic resource mobilization and improving the lives of millions.
I invite you to join us by becoming a partner of the Flagship Programme and
thereby support countries in realizing the human right to social protection
for all.
Guy Ryder
Director-General
International Labour Organization
IV X Building Social Protection Floors for All
ILO Global Flagship Programme
X Acronyms
ABND assessment-based national dialogue
EU European Union
Global Action Plan for Healthy Lives and Well-being for All/Sustainable Financing for
GAP/SFHA
Health Accelerator
GTAC Global Tripartite Advisory Committee
GTT Global Technical Team
IFI international financial institution
ILO International Labour Organization
IMF International Monetary Fund
INFF integrated national financing framework
ISPA inter-agency social protection assessment
ITC-ILO International Training Centre of the ILO
MIS management information system
NSPS national social protection strategy
P4H Global Network for Health Financing and Social Health Protection
SDGs Sustainable Development Goals
SPIAC-B Social Protection Inter-agency Cooperation Board
TSF Technical Support Facility
UN United Nations
UNDAF United Nations Development Assistance Framework
UNDESA United Nations Department of Economic and Social Affairs
UNDG United Nations Development Group
UNICEF United Nations Children’s Fund
UNSDCF United Nations Sustainable Development Cooperation Framework
Global Partnership for Universal Social Protection to Achieve the Sustainable
USP2030
Development Goals
X Strategy for the second phase (2021-2025)
V
X Contents
ForewordIII
AcronymsIV
Introduction1
Building on earlier success 2
ILO mandate 5
Strategy9
Implementation structure 27
Resources mobilization 30
Visibility and communication 31
Results and Impact 32
X Building Social Protection Floors for All
ILO Global Flagship Programme
©ILO/KB Mpofu
X Strategy for the second phase (2021-2025)
Introduction 1
X Introduction both to avert the routine life-cycle risks of their
populations and to be able to respond to systemic
COVID-19 pandemic
crises and shocks. We all share the responsibility
of putting strong social protection systems at the
and beyond
heart of our recovery efforts in order to make our
world more secure and more just.
At the 109th Session of the International
More than 70 years af ter the Universal
Labour Conference in June 2021, the tripartite
Declaration of Human Rights was promulgated,
constituents of the International Labour
the human right to social security is still not a
Organization (ILO) adopted a framework for
reality for more than 4 billion people who have
action towards universal social protection that
been left totally unprotected and without access
reaffirmed the primary responsibility of states
to any social protection benefit. They live in a
in this regard, while also acknowledging the
world in which people cannot access the health
crucial importance of international solidarity
care services they need; children have to work
with technical cooperation to support countries
to help their parents; women have to go back to
with more limited economic means. The ILO
work the day after delivering their babies; frail
constituents also adopted a Global call to action
older persons have to work until they die; and
for a human-centred recovery from the COVID-19
persons with disabilities have no income of their
crisis that is inclusive, sustainable and resilient,
own. This is not the world that we want. Several
with universal social protection at its centre.1
of the Sustainable Development Goals (SDGs)
have prioritized universal social protection as a In his report entitled “Our Common Agenda”, 2
target. Universal social protection the UN Secretary-General recently emphasized
is a human rights imperative. It is the importance of universal social protection and
needed now to protect everyone, the urgency of closing the financing gap through
�� domestic resource mobilization efforts and
including the most vulnerable,
Universal and to prepare societies for a international solidarity, and launched the idea of a
better future. Global Accelerator for Jobs and Social Protection3
social that will support countries in building universal
The COVID-19 crisis has shown
protection that in the absence of social
social protection systems.
is a human protection, everyone is vulnerable In giving effect to the conclusions of the
to shocks. It highlighted the International Labour Conference, the UN
rights’ persistent social protec tion Secretary-General’s “Our Common Agenda” and
imperative deficits experienced in particular the proposed Global Accelerator for Jobs and
by cer tain groups, such as Social Protection, the second phase of the Flagship
informal workers, migrants and Programme on Building Social Protection Floors
unpaid carers. It also highlighted that countries for All will support Member States in achieving
that had invested in national social protection universal social protection by supporting the
systems in the past were better able to respond to development of universal, comprehensive and
the shock by facilitating their population’s access adequate social protection systems that are
to health care and vaccines, preventing them from sustainable and adapted to today’s world of work
falling sharply into poverty and avoiding deep and the challenges ahead. It will help Member
economic recession. If there is a silver lining to the States emerge from the crisis and build a more
COVID-19 crisis, it is the way it has made it clear just, inclusive and sustainable future, in which
that all societies need social protection systems social protection is a reality for all.
1 See ILO, Resolution and Conclusions concerning the second recurrent discussion on social protection (social security),
International Labour Conference, 109th Session, 2021; and ILO, Global call to action for a human-centered recovery from
the COVID-19 crisis that is inclusive, sustainable and resilient, International Labour Conference, 109th Session, 2021
2 UN, Our Common Agenda: Report of the Secretary-General, 2021.
3 UN, Investing in Jobs and Social Protection for Poverty Eradication and a Sustainable Recovery, Secretary-General's Policy
Brief, 28 September 2021.
2 X Building Social Protection Floors for All
ILO Global Flagship Programme
X Building on ILO country teams in specific areas, such as the
extension of social protection to the informal
earlier success
economy; disability-inclusive social protection;
social protection for migrants, refugees and
host communities; social health protection;
Lessons from unemployment protection; pension systems
design and reform; actuarial valuations; financing
the first phase social protection; building statistical capacities;
and information systems. This track provided
(2016-2020) the flexibility needed to respond to constituents’
demand even in the absence of large and
The Global Flagship Programme on Building established “in-country” projects. The Flagship
Social Protection Floors for All was launched Programme successfully developed regional
in 2016 and is ILO’s first attempt to develop a or global projects on ten thematic streams;
comprehensive and coherent global programme documented and shared good practices in the
on social protection. Based on a common theory spirit of South–South learning; generated practical
of change and a results and impact framework, guides and knowledge; and created the Technical
it aims to achieve, consolidate and document Support Facility (TSF) in specialized areas of
results and impact on people across countries expertise to complement the technical assistance
and projects, as well as to provide evidence on provided by field specialists and experts.
the ILO’s contribution to the SDGs in the area of Through the development of the innovative
social protection. Results Monitoring Tool, the Flagship Programme
During its first phase (2016–2020), the Flagship was able to track its contribution to institutional
Programme provided “in-country” support changes across countries, projects and thematic
to 21 target countries and territories to bring areas, as well as to assess the impact that the
about institutional changes such as the adoption effective implementation of schemes, which
of strategies; the design and adoption of was achieved with ILO support, had on millions
policies and programmes embedded in law; of people. During the first phase, the Flagship
and the implementation Programme contributed to the adoption of
or improvements in the strategies in 10 of the 21 initially targeted
�� governance and operations countries; the design or reform of schemes
embedded in law in 13 of these countries; and
The ILO has of social protection systems.
Beyond the 21 focus the practical operations of such schemes in 16 of
successfully countries and territories these countries. With ILO support, the 21 initially
targeted countries were able to extend coverage
developed projects initially identified, the ILO
has successfully developed to more than 10 million people.4 The results and
in 56 additional projects in 56 additional impact achieved in the 56 additional countries
have also been tracked through the Results
countries, building countries, building on the
F l a g s h i p P r o g r a m m e ’s Monitoring Tool and the country pages available
on the Flagship theory of change. This brings online.5
Programme to 77 the total number of
countries supported in the
Systematic knowledge development and sharing
allowed experiences to be documented, good
theory of change first phase. practices to be developed and knowledge
The Flagship Programme to be organized and disseminated to a wide
complemented “in-countr y” suppor t with audience. Through its Flagship Programme, the
“cross-countr y” policy advice to offer on- ILO produced a series of good practices guides,
demand thematic support to constituents and country briefs, capacity-building packages and
4 For more information, see ILO, ILO Global Flagship Programme: Building Social Protection Floors for All: Report of the
First Phase (2016–2020) (2021).
5 See ILO, Social Protection platform website, www.social-protection.org.X Strategy for the second phase (2021-2025)
Building on earlier success 3
©Unsplash/D. Roy
quantitative tools during its first phase. Inter- An independent evaluation conducted in
agency cooperation on the production of certain the first half of 2021 provided a number of
tools (for example inter-agency social protection recommendations for the second phase, notably:
assessment (ISPA) tools 6 and United Nations
X to refine the theory of change and the results
Development Group (UNDG) issues briefs) were
measurement framework based on the lessons
also used to promote the ILO’s two-dimensional
learned from the first phase and the new
social protection extension strategy and to share
challenges that need to be addressed in the
the principles embedded in international social second phase;
security standards.
X to increase the visibility and understanding
Strategic partnerships with the United Nations of the Flagship Programme by improving
(UN), development partners, research institutes, ownership among ILO staff and constituents,
workers and employers’ organizations through improving communication on policy directions
specific networks, as well as civil societ y and concrete results, clarifying the thematic
organizations, increased and geographic scope of the Flagship
the outreach of the Flagship Programme and strengthening the linkages
�� Programme, disseminated with country and thematic projects;
the ILO’s vision beyond ILO
With ILO constituents and contributed to
X to better explain the Flagship Programme’s
linkage to the ILO programme and budget
support, the 21 strengthening the ILO’s role in and how it will contribute to the International
the multilateral system.
initially targeted Labour Conference’s 2021 conclusions and
framework for action in its second phase;
The Flagship Programme was
countries were very successful in mobilizing X to build capacities across the GTT, including
able to extend funding for social protection for specialized areas of work (for example
development projec ts and health, financing, informal economy and
coverage to more mobilized US$ 140 million in so on); project management, partnership
than 10 million 5 years. This translated into a development and resource mobilization; using
steady increase in development the Results Monitoring Tool for evidence-
people coop erat ion f unding t hat based communication and knowledge-sharing;
allowed a doubling of the and further mainstreaming the Flagship
budget for social protection at Programme in individual projects at country
level; and
the ILO. This also contributed to increasing ILO’s
field presence in 77 countries and territories. The X to increase the sustainability of the Flagship
Global Technical Team (GTT) on social protection Programme by leveraging existing projects to
is today composed of more than 180 staff. develop larger and longer-term partnerships
and developing pooled funding mechanisms,
US$ 140 million
and to further engage development partners
through structured funding dialogues and
specific networks, which should be properly
mobilized in 5 years resourced to achieve results and impact.
6 See ISPA website, ispatools.org4 X Building Social Protection Floors for All
ILO Global Flagship Programme
©Unsplash/T. MeloX Strategy for the second phase (2021-2025)
ILO mandate 5
X ILO mandate terms of eligibility conditions, level and duration.
More advanced thematic standards were
Universal social subsequently adopted, building on the principles
of Convention No. 102 but setting higher
protection for all benchmarks and requirements as compared to
the minimum standard.
The Social Protection Floors Recommendation,
2002 (No. 202) also represents a key reference.
�� Poverty anywhere constitutes This standard articulates the ILO’s vision on how
to implement the human right to social security;
a danger to prosperity lists the principles based on which universal
social protection systems should be built; and
everywhere calls on countries to develop concrete policies
� ILO Declaration of Philadelphia, 1944 and national strategies to this effect, prioritizing
the establishment of social protection floors to
ensure at a minimum that all those in need have
X The backbone for access to essential health care and basic income
the ILO’s work security over the life cycle and that higher levels
of protection are provided to as many people as
In line with the Declaration of Philadelphia (1944), possible, as soon as possible.
the Flagship Programme on Building Social
National social protection floors should cover
Protection Floors for All supports Member States
at least all residents and children and should
in extending national social security measures in
order to ensure a basic income for all those who comprise at least four basic social security
need such protection, as well as comprehensive guarantees:
medical care for all. The Universal Declaration of X access to a nationally defined set of goods
Human Rights (1948), the International Covenant and services, constituting essential health
on Economic, Social and Cultural Rights (1966), care, including maternity care, that meets the
the Convention on the Elimination of All Forms criteria of availability, accessibility, acceptability
of Discrimination against Women (1979), the and quality;
Convention on the Rights of the Child (1989)
X basic income security for children, at least
and the Convention on the Rights of Persons
at a nationally defined minimum level, that
with Disabilities (2006) define the human right
provides access to nutrition, education, care
to social security and social protection, which
and any other necessary goods and services;
is complemented and concretized by the
international social security standards. X basic income security, at least at a nationally
defined minimum level, for persons in active
To support the implementation of the human
age who are unable to earn sufficient income, in
right to social security, the Flagship Programme
particular in cases of sickness, unemployment,
promotes the ratification and application of maternity and disability; and
the ILO’s up-to-date social security standards –
Conventions and Recommendations – that have X basic income security, at least at a nationally
been adopted by ILO Member States and cover all defined minimum level, for older persons.
areas of social protection. Countries should guarantee a social protection
In particular, these include the Social Security floor to all as a fundamental element of their
(Minimum Standards) Convention, 1952 (No. 102), national social protection systems. Importantly,
which established the minimum standard for these are “floors” or first building blocks and not
social security and first defined social security in a a “ceiling”. Countries should not stop at the “floor
systemic manner, with reference to the risks that level” but should instead progressively develop
should be protected, and established the core national social protection systems that provide
principles of governance and financing and the higher levels of protection for a comprehensive
minimum benchmarks to be met by benefits in range of life-cycle risks to all. By pursuing this6 X Building Social Protection Floors for All
ILO Global Flagship Programme
two- dimensional extension strategy, countries X A framework for action
will progressively achieve universal social
At its 109th session in 2021, the International
protection, which is not only about covering
Labour Conference held a recurrent discussion
the entire population
that highlighted in its conclusions the urgency to
of a country but also
�� about the scope, level
establish universal social protection systems that
are adapted to the developments in the world
ILO social security and sustainability of
of work and are resilient, effective, inclusive,
protection, in line with
standards provide a Convention No. 102
adequate and sustainable.
unique framework and Recommendation To live up to the commitment of the 2030
No. 202. Agenda for Sustainable Development to leave
to ensure that no one behind, social protection systems must
The principles and
social protection minimum benchmarks
provide social protection for all and take into
consideration the specific needs of women, as
schemes follow for social protection
well as people living with disabilities and other
systems established
a rights-based in ILO social security
vulnerable groups, including migrants and
refugees. The discussions and conclusions also
approach standards provide a
highlighted in particular the need to expand
unique framework
social protection to workers in the informal
to ensure that social
economy in order to facilitate their transition to
protection schemes follow a rights-based
formal employment. Social protection further
approach; express solidarity across population
plays a key role in mitigating the effects of climate
groups; aim to leave no one behind; are based on
change and facilitating a just transition. Finally,
social dialogue; and adhere to universal coverage
the conclusions reaffirmed the primary role of the
and non-discrimination. Recommendation
state and the need for solidarity in the financing
No. 202 (Para. 3 (a)–(r)) establishes 18 guiding
of sustainable systems.
principles for which states should assume the
overall and primary responsibility in the policy The conclusions identify three areas for action
design, financing and implementation of their by the ILO and its Member States. The first area
national social protection systems. focuses on measures to promote universal social
protection and calls on the Member States,
Based on the principle of coherence across social,
supported by the ILO:
economic and employment policies, support
provided through the Flagship Programme X to realize, through strong social dialogue,
will also be guided by ILO Conventions and universal social protection, which provides
Recommendations related to those other policy comprehensive, adequate and sustainable
areas, especially the Transition from the Informal protection for all, over the life cycle;7
to the Formal Economy Recommendation, 2015
X to strengthen social protection systems under
(No. 204) and the Employment and Decent Work
the primary responsibility of the state; and
for Peace and Resilience Recommendation, 2017
(No. 205). X to provide sustainable and adequate financing
for social protection systems with due regard
to equity and social justice.
7 “Universal social protection entails actions and measures to realize the human right to social security by
progressively building and maintaining nationally appropriate social protection systems, so that everyone has
access to comprehensive, adequate and sustainable protection over the life cycle, in line with ILO standards.”
(ILO, Resolution and Conclusions concerning the second recurrent discussion on social protection (social security),
International Labour Conference, 109th Session, 2021, para. 3).X Strategy for the second phase (2021-2025)
ILO mandate 7
The second area focuses on mobilizing ILO means Complementary to the Conclusions concerning
of action and specifically requests the ILO: the second recurrent discussion on social
protection (social security) adopted by the
X to support Member States in the formulation International Labour Conference at its 109th
and implementation of national social Session in 2021, the Conference also adopted
protection policies and strategies, with a Global call to action for a human-centred
a specific focus on crisis-resilient social recovery from the COVID-19 crisis that is inclusive,
protection, coherence and coordination with sustainable and resilient, in which Member States
other socio-economic policies, as well as on committed to achieving universal access to
support for a just transition;
comprehensive, adequate and sustainable social
X to support research and capacity-building to protection.
expand the evidence base on universal social The Flagship Programme in its second phase will
protection, its adequacy, sustainability and
support the implementation of the conclusions
impact. This will further contribute to the
of the discussion on social protection (social
monitoring of SDG targets related to social
protection; security) and the Global call to action for a human-
centred recovery (see subsequent section on the
X to support effective planning and resource Strategy). More specifically:
mobilization and allocation; and
X Universal social protection. The Flagship
X to implement effective standard-related
Programme will contribute to the progressive
action, including the launch of a campaign to
achievement of universal social protection in
ratify Convention No. 102 and the assessment
50 pre-identified countries and strengthen
of the impact of international social security
national social protection systems, including
standards in national policymaking and
through inclusive social dialogue and more
multilateral partners’ activities.
sustainable and adequate financing.
The third area reaffirms the ILO’s mandate and
X ILO means of action. The Flagship Programme
leadership in social protection in the multilateral
will contribute to mobilizing development
system and promotes policy coherence. This
cooperation resources in order to provide
includes the ILO taking an active steering role in
technical assistance to ILO Member States
global partnerships such as the Social Protection and will promote and explore the linkages
Inter-Agency Cooperation Board (SPIAC-B) and the between social protection and other policies
Global Partnership for Universal Social Protection (for example climate, macroeconomic, active
to Achieve the Sustainable Development Goals labour market, formalization policies). Through
(USP2030). The ILO should also strengthen the support it provides to countries, the
its engagement with international financial Flagship Programme will build Member States’
institutions (IFIs) with a view to promoting the statistical capacities for social protection and
inclusion of ILO standards and international support the organization of a ratification
principles in their social protection-related policies campaign for the ILO standards related to
social security.
and in-country programmes. The ILO should
also support domestic resources mobilization X Leadership and policy coherence in the
efforts by countries with limited fiscal space multilateral system. The Flagship Programme
or facing economic crisis, through technical will also reinforce collaboration with the UN
assistance as well as through the mobilization of system and IFIs through country, regional
complementary international financing for social and global partnerships, as well as by further
protection and initiate and engage in discussions promoting international social securit y
on concrete proposals for a new international standards in strategies, partnerships and
financing mechanism, such as a Global Fund for programmes. The Flagship Programme will
ensure that the technical assistance it provides
Social Protection. Finally, the ILO should explore
can support more and better investments
the possibility of introducing an International
in social protection. It will contribute to the
Social Protection Day. development of a new international financing
mechanism to complement and support
domestic resource mobilization efforts.8 X Building Social Protection Floors for All
ILO Global Flagship Programme
©ILO/M. CrozetX Strategy for the second phase (2021-2025)
Strategy 9
X Strategy with policymakers, workers and employers
organizations committing to closing financing
Country, thematic,
gaps for social protection through domestic
resources mobilization, with the backing of
partnerships key financial institutions and complemented
by additional international financing for social
protection, when needed. They should be
administered in a sound manner, based on
X Vision the principles of transparent and accountable
management and tripartite governance. They
Realizing the human right to social security for should include in their design, financing and
all. Our vision is of a world in which all countries administration their capacity to face systemic
have national social protection systems that changes, such as demographic change, as well as
provide comprehensive and adequate social covariate shocks and crises. Through coherence
protection to all their populations throughout with employment, climate and macroeconomic
their lives, prevent poverty, reduce inequality policies, they should facilitate transformations in
and combat social exclusion. This includes the economy and society and just transitions to a
providing access to health care, family allowances, socially and environmentally respectful economy.
unemployment benefits, old age and disability
pensions and maternity benefits, among others,
working in tandem with services, including child,
X Value proposition
health and long-term care services. Universal
Universal social protection is part of the ILO
social protection should be inclusive of all
mandate and was reconfirmed as a key priority of
ages and categories of the population – rural
its work at the 109th Session of the International
and urban, women and men, persons with
Labour Conference.8
disabilities, migrants and refugees – and should
prioritize protection mechanisms that enable the The Flagship Programme on Building Social
transition of workers to the formal economy. This Protection Floors for All responds to the demand
may require specific and adapted approaches to of 100 Member States9 that have requested ILO
reach those still excluded from national social support in the area of social protection. Policy and
protection systems. technical support are based on the international
social security standards, which provide common
Robust social protection systems: A cornerstone
guidance to countries in shaping their national
of economies and societies that are fit for the
social protection systems, following a rights-
future. Our vision is of a world in which national
based approach and using inclusive social
social protection systems are not temporary
dialogue throughout the process.
arrangements – created in response to periodic
shocks or crises – but robust, reliable and Inclusive social dialogue and consultation with
sustainable mechanisms. They should be built other relevant and representative organizations
prior to crises, should be based on a national of persons concerned are essential for social
consensus achieved through inclusive social protection systems to be responsive to specific
dialogue and should aim to secure protection needs; to respect the rights and dignit y
throughout the life cycle. They should be the of beneficiaries; and to increase the social
main responsibility of the state and be embedded acceptance of policy decisions and ownership
in law in order to provide rights and obligations and the trust in these decisions and public
for current and future generations. They institutions, as well as compliance in their
should be adequately and sustainably financed, implementation. Through a reactivated Global
8 See ILO, Resolution and Conclusions concerning the second recurrent discussion on social protection (social security),
International Labour Conference , 109th Session, 2021; and ILO, Global call to action for a human-centered recovery from
the COVID-19 crisis that is inclusive, sustainable and resilient, International Labour Conference, 109th Session, 2021.
9 Among the ILO’s 187 Member States, 100 have prioritized social protection as part of their 2020–2021
programme of work with the ILO.10 X Building Social Protection Floors for All
ILO Global Flagship Programme
Business Network for Social Protection Floors The ILO’s Decent Work Agenda links social
and the Social Protection, Freedom and Justice for protection to other areas of the world of work
Workers Network, the Flagship Programme aims (for example employment, including active
to increase the voice of workers’ and employers’ labour market policies, the formalization of micro
organizations in social protection policy debates. and small enterprises, social dialogue, labour
migrations, minimum wages, just transition and
The ILO provides support in building social
so on), which is key to make social protection
protection systems from A to Z, using its diverse
more relevant (as an enabler of other policy
expertise and experience in policy design;
changes) and sustainable (as it can benefit from
the application of international social security
these changes as well). At country level, the
standards; the development of laws; the costing
Decent Work Agenda is translated into Member
and financing of policies and programmes;
State-owned decent work country programmes
f inancial and administrative governance;
that propose such integrated strategies to
monitoring and evaluation; and building a culture
respond to national priorities and are designed
of social protection.
and implemented through social dialogue.
The scope of the ILO’s expertise includes all
The ILO’s field presence in the area of social
branches of social security (from health care to
protection has increased in the past five years,
pensions, unemployment and maternity)10 to
through the rapidly developed GTT. This allows
ensure that national social protection systems
the provision of a more timely response to ILO
can respond to the needs of people across the life
constituents’ needs, coupled with additional
cycle. The ILO helps Member States to establish –
specialized expertise provided by regional
through social dialogue – concrete policy as well
specialists and experts at headquarters. It also
as legal, administrative, operational and financial
increases the ILO’s presence in UN country teams
solutions that leave no one behind; are adapted
and its contribution to One UN work on social
to national contexts; and include all workers,
protection.
including workers in the informal economy and
all forms of work, migrants and refugees, persons The Flagship Programme supports primarily
with disabilities and others. It also ensures that ILO constituents – governments and employers’
social protection policies and programmes are and workers’ representatives – and brings
gender-sensitive and disability-inclusive. together a large number of other key actors,
such as development partners, academia,
The ILO’s technical and policy support relies on
businesses and civil society. It offers a platform
decades of experience, technical expertise and
for South–South learning and collaboration that
good practices documented through guides
can inspire countries and development partners
and quantitative models as well as the sharing
and share solutions on specific aspects of policy
of country experiences. Through recurrent
design and implementation.
discussions with its constituents and daily work
in countries, the ILO adapts its approaches to The ILO’s leadership in global networks on social
the changing world of work and ensures that protection (such as the SPIAC-B and USP2030)
social protection systems are responsive to new and strategic partnerships with specific agencies
and emerging challenges. It also makes use of (for example partnerships with the EU, the
new technologies in order to standardize and World Bank, the International Monetary Fund
disseminate widely its approaches, such as the (IMF) and the UN system) increases the political
actuarial models that are today available online support for social protection and creates a better
for a broad range of users. understanding of the ILO’s vision that is reflected
in inter-agency tools and joint country support.
10 Medical care, child and family benefits, survivors’ benefits, maternity, unemployment, sickness,
employment injury, invalidity, old age and long-term care.X Strategy for the second phase (2021-2025)
Strategy 11
The ILO Global Flagship Programme provides Through their contribution to the Flagship
space for the ILO to engage and work with Programme and synergies across projects,
development partners to support the shared development partners help achieve much wider
ambition of universal social protection, while and sustainable changes than through stand-
focusing their support on specific countries or alone projects.
thematic areas in line with their own priorities.
X Figure 1. ILO’s value proposition
Link with formalization Link with green policies
Link with labour
Link with Informal Victims of market and
labour migration economy climate change employment policies
Gender Persons with
responsive disabilities
Child & family benefits
Survivor benefits
Maternity Unemployment Coherent
Old age and adaptable
Sickness Long term care
Employment injury Policy design Health Universal
LNOB
Adaptation to new and
Disability emerging challenges
Strategies Costing
Legal frameworks and Comprehensive
Financial and
financing
administrative
governance
Sustainable
Governments and responsive
Data and
statistics
Workers Employers Culture
MIS Civil society
Partnerships:
USP2030, SPIAC-B, P4H, IFIs
Based on inclusive
UN SPF initiative
social dialogue
Workers and employers
networks
Global coalition for SPFs
X Based on inclusive social dialogue and the application of international social security
standards, the Flagship Programme supports Member States in building national social
protection systems that are sustainable and adapted to new and emerging challenges,
are universal and leave no one behind, are comprehensive across the life cycle and are
coherent with other policies. Through partnerships, the Flagship Programme increases
ownership for universal social protection and the application of international social security
standards.12 X Building Social Protection Floors for All
ILO Global Flagship Programme
©Unsplash/K. KwartengX Strategy for the second phase (2021-2025)
Strategy 13
X Ambition
From results to impact
Institutional changes
The ambition of the Flagship Programme in its second phase is to achieve institutional changes
in all 50 focus countries by 2025 and more specifically to achieve:
X step 1 in 10 countries;
X step 2 in 30 countries; and
X step 3 in 40 countries.
Table 1. Institutional changes achieved during the first phase of the Flagship Programme
and ambitioned in the second phase
First phase (2016–2020): Second phase (2021–2025):
21 focus countries 50 focus countries
Ambition Achievement Ambition based on country plans
Step 1. Strategy adopted 21 10 10
Step 2. Scheme design/law 14 13 30
Step 3. Improving operations 7 16 40
Source: ILO, “Results Monitoring Tool” and country strategies.
X Figure 2. Institutional changes achieved during the first phase of the Flagship
Programme and ambitioned in the second phase
Institutional changes achieved in the first
40 phase (2016-2020) of the Flagship Programme
30
10 Institutional changes ambitioned in the second
phase (2021-2025) of the Flagship Programme
16 16
10 13 10 13
Source: ILO, “Results Monitoring Tool” and country strategies.14 X Building Social Protection Floors for All
ILO Global Flagship Programme
Impact on people X increase effective coverage for an additional
30 million people; and
The ambition of the Flagship Programme in its
second phase is to contribute to: X improve protection for an additional 10 million
people (people will be covered for a wider
X increase legal coverage for an additional
range of risks and/or have higher levels of
20 million people;
benefits).
Table 2. Impact on people (legal and effective coverage) achieved during the first phase
of the Flagship Programme (based on a sample of 10 reporting countries/territories) and
ambitioned in the second phase
First phase (2016–2020): Second phase (2021–2025):
21 focus countries 50 focus countries
Achievements in 10 reporting countries Ambition based on country plans
Legal coverage 11.6 million people 20 million people
Effective coverage 10.9 million people 30 million people
More comprehensive and adequate
2.6 million people 10 million people
social protection
Source: ILO, “Results Monitoring Tool” and country strategies.
X Figure 3. Impact on people (legal and effective coverage) achieved during
the first phase of the Flagship Programme (based on a sample of 10 reporting
countries/territories) and ambitioned in the second phase
20
11.6 Legal
coverage
Millions of people impacted during the first
phase (2016-2020) of the Global Flagship
30
Programme
10.9 Effective
coverage
Millions of people that will be impacted
during the second phase (2021-2025) of the
Global Flagship Programme
10 More comprehensive
2.6 and adequate protection
Source: ILO, “Results Monitoring Tool” and country strategies.
This will contribute to achieving the SDGs on to lift 146 million people out of poverty by
social protection, notably SDG targets 1.3 and 2030 as a result of investments in governance,
3.8, and the goal set by the UN Secretary- social protection, the green economy and
General, in launching the Global Accelerator for digitalization.11
Jobs and Social Protection on 28 September 2021,
11 UN, "Investing in Jobs and Social Protection for Poverty Eradication and a Sustainable Recovery", Secretary-General's Policy
Brief, 28 September 2021.X Strategy for the second phase (2021-2025)
Strategy 15
X Theory of change through concrete institutional changes leading to
impacts on people. The second phase builds on
The first phase of the Flagship Programme on
these achievements.
Building Social Protection Floors for All laid the
foundations for the development of robust The theory of change of the Programme is
social protection systems in 21 priority countries illustrated in figure 4.
X Figure 4. Theory of change of ILO Global Flagship Programme
Pillar 1
Pillar 3 In-country
Strategic support
National social Design of social
Operations of social
data
partnerships protection policy or protection schemes
Application protection systems
of R202 strategy and systems
Promotion of
R202 principles principles
Pillar 2
Thematic
support IMPACT
ILO thematic ON
data
Guided by Baseline Support (TSF) Knowledge
approach
R202
PEOPLE
principles
Improvement of ILO’s thematic approaches
Pillar 1: a three-steps International social security standards. The
ILO support will follow a rights-based approach
approach at country level anchored in human rights and promote the
ratification and application of relevant ILO
Expected outcome: Universal access to
Conventions and Recommendations, in particular
comprehensive, adequate and sustainable
Convention No. 102 and the more advanced
social protection systems that are gender-
standards, as well as Recommendation No. 202
responsive, disability-inclusive and adapted
across the three steps.
to developments in the world of work in
50 countries. Data and statistics. The social protection
situation (baseline) is assessed based on national
T he Flagship Programme suppor t s the
statistics of coverage and expenditure. Assessing
implementation and strengthening of rights-
this baseline is crucial to inform national social
based, country-specific, robust, resilient and
dialogues on policy priorities. Progress made in
universal social protection systems in 50 countries
the implementation of social protection systems
(see table 1) through a step-by-step approach
will also be measured against this baseline. Data
which is flexible enough to respond to country
collection and compilation uses the ILO’s Social
situations and needs for support; this step-by-
Security Inquiry and the World Social Protection
step approach is not necessarily chronological
Database. National statistical capacities are
and linear, as several steps may be carried out in
increased to ensure up-to-date and accurate
parallel. Country teams respond to constituents’
measurements of the national social protection
needs and adjust and engage in partnerships for
situation and allow each country to monitor
social protection at country level.
progress towards universal social protection and
inform its policy reforms.16 X Building Social Protection Floors for All
ILO Global Flagship Programme
Step 1. Adopting a national social protection Step 2. Designing and reforming schemes.
strategy. Through relevant monitoring, Based on the priorities established in the NSPS
diagnos tic s tudies and a par ticipator y or specific demand from ILO constituents, the
assessment-based national dialogue (ABND), the ILO supports the design and reform of social
ILO supports the development of a long-term protection schemes or programmes.
vision for social protection.
This covers various areas (branches) of social
This process involves a whole-of-government protec tion (medical care, unemployment
approach, including social security institutions, protection, old-age pensions, maternity and
and a broad national dialogue with workers so forth), with the objective of extending social
and employers’ representatives and other protection to groups that are so far excluded from
stakeholders, supported by relevant United comprehensive and adequate social protection
Nations agencies, civil society organizations, (such as workers in the informal economy,
IFIs and other development partners. It uses migrant workers, refugees and so on).
ILO social security standards, in particular
The ILO’s support includes the provision of
Recommendation No. 202, which provides a
technical advisory services, capacity-building and
framework against which countries can assess
the strengthening of social dialogue mechanisms
their national systems and prioritize action.
at all levels, as well as the enhancement of social
National counterparts identify policy options partners’ capacities to contribute to policy
to close social protection gaps and their cost is discussions on social protection. The ILO’s advice
estimated and projected over time. A fiscal space is based on international social security standards
analysis helps identify financing options for newly and good practices and includes formulating
proposed programmes or adjustments to existing policy options; conducting costing and actuarial
schemes and provides recommendations on the studies; assessments of sources of financing;
mobilization of domestic resources. It also serves mobilization and use of additional international
to identify funding gaps that require international financial sources, design of the institutional
solidarity in resource mobilization (for example set-up; and drafting or amendment of social
budget support, funds jointly resourced by security laws and regulations. These studies
national budgets and development partners). and technical advice support informed decision-
making on scheme design and implementation
The ABND contributes to forging a consensus on
modalities and facilitate sound planning for the
priorities for the implementation or extension of
incorporation of social protection reforms into
a nationally defined social protection floor and
national and social security budgets.
more comprehensive social protection systems.
It is important to secure the necessary budgetary
This step leads to the adoption by the government
allocations for new or expanded social protection
of a national social protection strategy (NSPS),
benefits. The ILO supports Member States in
which is an institutional change that can be
improving linkages between social protection and
reported as part of the results measurement
public finance management, identifying financing
framework of the Flagship Programme. While
options for social protection and conducting
adopting the NSPS, it is also important to build
actuarial assessment for setting the parameters
the case for social protection, convince decision-
of new or expanded schemes. Additional efforts
makers (for example ministries of finance and
are often required to ensure the buy-in of key
tripartite boards of national social security
decision-makers (for example parliamentarians).
institutions) to invest in the further development
of social protection and secure sufficient and This step leads to the creation or reform of a social
sustainable financing for the implementation of protection scheme, programme or branch, which
the NSPS. is an institutional change that can be reported as
part of the results measurement framework of
the Flagship Programme. The adoption of a law
or decree of implementation has an impact on the
legal coverage of the population, which should be
reported in the results measurement framework
of the Flagship Programme and ultimately in the
World Social Protection Database.X Strategy for the second phase (2021-2025)
Strategy 17
Step 3. Improving operations. Once the law is Inclusive social dialogue, a cross-cutting
passed, the ILO supports the implementation of enabler. The three steps are implemented
social protection schemes and programmes or through tripartite participation of representative
improves their operations, administrative and organizations of employers and workers, as well
financial governance. as consultations with civil society organizations,
in order to ensure that policy options receive wide
This step aims to strengthen administrative
support from those who benefit and contribute to
and delivery capacities, including management
social protection and that the governance of the
information systems (MISs) and one-stop-
social protection system is truly tripartite.
shops for beneficiary registration and payment
of benefits, as well as complaints and appeals
mechanisms. It also improves coordination across Role of the Flagship Programme
the schemes and institutions involved in policy in the 50 countries and territories
design, financing and delivery of social protection. In each of the 50 countries and territories, the
It strengthens the tripartite governance of the Flagship Programme supports:
scheme and ensures the participation of those
concerned at the national, regional and local
X the identification through inclusive social
levels. dialogue of governments’, workers’ and
Through this step, the ILO carries out actuarial employers’ priorities in the area of social
studies to improve the financial governance of protection in order to set the Flagship
the scheme. The communication and education of Programme’s country objectives and strategy,
which should be coherent with the overall
the wider public may also be necessary to create
strategy of the Flagship Programme, the decent
a national consensus around proposed policy
work country programme, ILO programme and
reforms, build ownership and trust in the system budget country programme outcomes and
and increase future compliance. the UN Sustainable Development Cooperation
This step also includes the development of Framework (UNSDCF).12
agreements with service providers in the health, X resource mobilization for the implementation of
child and long-term care sectors. Integrated the country programme, whether domestically
approaches that link social protection with other (for example resources from government
policies (such as employment or tax policy), or social security institutions), through local
services and programmes (employment services, partners (for example UN resident coordinator,
skills and return to work programmes) are also UN country team, UN agencies, local embassies
developed and operationalized. and non-governmental organizations) or
through regional/global partners (for example
The effective implementation or reform of a development banks, development partners
social protection scheme is an institutional and trust funds);
change that can be reported as part of the
X ensuring the necessary human resources
result s measurement framework of the
on the ground to support the programme,
Flagship Programme; it also has an impact
including through staff recruitment and
on the effective coverage of the population;
capacity-building;
the comprehensiveness and adequacy of the
protection; and social protection expenditure, X the implementation of the country programme
which should be repor ted in the results through policy and technical advice, tripartite
measurement framework of the Programme social dialogue and capacity-building for
and ultimately in the World Social Protection national counterparts and collaboration with
Database. UN and development partners (including,
through the social protection sector group, to
work towards joint advocacy and projects);
12 The “UN Development Assistance Frameworks (UNDAFs)” have been renamed the “UN Sustainable Development
Cooperation Frameworks (UNSDCFs)” in order to more accurately reflect the relationship between governments and the
UN development system in collaborating to achieve the SDGs.18 X Building Social Protection Floors for All
ILO Global Flagship Programme
X the design, implementation and monitoring of X Vision. There is already a shared understanding
national social protection financing modalities among governments, workers and employers
(for example contingency fund, basket fund, represent atives of the impor t ance of
budget support) in order to complement progressively achieving universal social
and support, at least temporarily, countries’ protection, through rights-based, gender-
efforts in mobilizing domestic resources for sensitive and inclusive social protection
social protection (with a focus on low-income systems that leave no one behind.
countries);
X Strong political will and national ownership.
X the provision of additional political and The government shows commitment to
technical support from regional or global implementing national social protection
specialists and experts (see pillar 2); frameworks through the priority given to social
protection extension in national strategies, SDG
X the identification of indicators of monitoring implementation plans, the COVID-19 pandemic
and evaluation and collection of data, response and post-crisis recovery plans, the
both prior to the implementation of the budget or human resources assigned to social
programme and on a regular basis, in order protection and the efforts made to increase
to assess its impact in terms of institutional fiscal space. There is also a strong momentum
changes (adoption of strategies and laws, from social partners (workers and employers
implementation of social protection schemes organization) to introduce or extend social
and increase in social protection expenditure) protection.
and its impact on people (legal coverage and
effective coverage), as well as the inputting of X Potential. These countries have the potential
this information to the Results Monitoring Tool; to achieve results within five years and serve
and as role models for others.
X drawing useful lessons learned by closely X Priority for the UN. Social protection is a pillar
assessing the success, enabling factors, entry of the One UN sustainable development plans
points, difficulties and bottlenecks in providing and ILO decent work country programmes.
policy and technical support, including the
“turning points” that have led to policy X Partnerships. Pre-existing collaboration
decisions, sharing this experience through with other international and national bodies,
country briefs and informational stories as including development partners and IFIs, is
well as global and regional events to foster a strong basis for the multiplication of ILO’s
South–South learning. investment through its Flagship Programme.
The Flagship Programme will also complement Other criteria were also used for selection, such
and support the regional strategies of the Office, as regional balance, development status, ILO
notably the “Strategy Note for the Extension of presence and past experience, among others.
Social Protection in Africa”.
Country strategies
List of prioritized countries For each of the 50 countries and territories
The ILO Global Flagship Programme will support pre-identified for in-country support during
50 countries and territories, which have been the second phase of the ILO Global Flagship
identified through consultations with the GTT, Programme, dedicated web pages provide
regional and country directors and the members an overview of the social protection situation;
of the Global Tripartite Advisory Committee country priorities; previous and current support
(GTAC). The consideration of the following provided by the ILO; and the main priorities for
five criteria (slightly adjusted from those used the second phase.
during the first phase) helped in selecting the
50 countries and territories.You can also read
