Universal social protection: a target for all - IPC IG
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A publication of
The International Policy Centre for Inclusive Growth
Volume 17, Issue No. 2 • December 2019
Universal social protection:
a target for all
Policy in Focus is a regular publication of the International Policy Centre for Inclusive Growth (IPC-IG).
The International Policy Centre for Inclusive Growth (IPC-IG) is a Some of the photographs used in this publication are licensed under
partnership between the United Nations and the Government of Brazil The Creative Commons license; full attribution and links to the individual
to promote learning on social policies. The Centre specialises in research- licenses are provided for each.
based policy recommendations to foster the reduction of poverty and
Specialist Guest Editors: Mariana Balboni and Aline Peres
inequality as well as promote inclusive growth. The IPC-IG is linked to the
United Nations Development Programme (UNDP) in Brazil, the Ministry In-house Editor: Manoel Salles
of Economy (ME) and the Institute for Applied Economic Research (Ipea)
of the Government of Brazil. Publications Manager: Roberto Astorino
Director a.i.: Katyna Argueta Copy Editor: Jon Stacey, The Write Effect Ltd.
IPC-IG Research Coordinators: Diana Sawyer; Alexandre Cunha; Art and Desktop Publishing: Flávia Amaral and Priscilla Minari
Fábio Veras Soares; Mariana Balboni; Rafael Guerreiro Osorio and Sergei Soares
Cover art: Mosaic produced by the IPC-IG Publications Team,
The views expressed in IPC-IG Publications are solely those of the authors and composed of photographs by (from left to right, top to bottom)
should not be taken as representing the views of their respective institutions, Axel Fassio/CIFOR, Christopher Herwig/UN Women, UN Women/Ryan
the United Nations Development Programme, or the Government of Brazil. Brown, Tri Saputro/CIFOR, Elizabeth Glaser Pediatric AIDS Foundation/
DFID .
Rights and Permissions – All rights reserved. The text and data in this
publication may be reproduced as long as written permission is obtained Editor’s note: We would like to express our sincere appreciation to all
from the IPC-IG and the source is cited. Reproductions for commercial the authors for their generous and insightful contributions, without
purposes are forbidden. which this issue simply would not have been possible.
Summary
7 Challenges and opportunities for the expansion of social protection
10 Universal social protection in the context of the Sustainable Development Goals
13 Universal social protection: key concepts and international framework
17 Limitations of the indicators for Sustainable Development Goal targets relating to
social protection provision, in the context of universal social protection and USP2030
21 Indonesia policies towards universal social protection by 2030
24 Universal social protection in Kenya— achievements, challenges and opportunities
26 Creating fiscal space for social protection through reprogramming: the Brazilian case
30 Extending social security to workers in the informal sector: a view from the ground
34 Expanding social protection in rural areas, focusing on fisheries and forestry
38 Digital social protection in Ethiopia
Editorial
Social protection has gained relevance and designed a webinar series to promote knowledge-
garnered increasing interest over recent decades. sharing and stimulate relevant discussions—the USP2030
Developing countries are progressively adopting more webinar series. In 2019, four webinars have been
programmes and policies to protect their poor and delivered discussing the following issues:
vulnerable populations, while international organisations Universal social protection in the context of the
and donors work to enhance the capacity of States SDGs—where are we now?; Universal social protection:
to develop efficient and sustainable systems. achievements, challenges and opportunities; Social
Social protection schemes also play a key role in stabilising protection and social security; and Digital social
economies, protecting livings standards and providing protection—innovation for effectiveness. The series will
social security for all. continue in 2020 with updated discussions on the current
state of social protection programmes and policies.
However, challenges remain despite recent advances,
particularly regarding the creation of inclusive, cost-effective This special edition of Policy in Focus has been developed
and sustainable social protection systems and their linkages by the International Policy Centre for Inclusive Growth
with inclusive growth. In this context, the achievement (IPC-IG) in partnership with the socialprotection.org
of universal social protection is closely aligned with the platform, presenting articles based on the discussions
2030 Agenda for Sustainable Development, in particular addressed in the first webinars of the series.
Sustainable Development Goal (SDG) 1’s (“End poverty in
We hope that the following set of articles helps to inform
all its forms everywhere”) target 1.3: “Implement nationally
readers on the most up-to-date discussions related to
appropriate social protection systems and measures for all,
universal social protection and foster new debates.
including floors, and by 2030 achieve substantial coverage
of the poor and the vulnerable.”
As the topic of universal social protection is gaining
momentum worldwide, socialprotection.org has Mariana Balboni and Aline Peres
6
Challenges and opportunities for
the expansion of social protection
Mariana Balboni and Aline Peres 1 The following piece, by Maya Stern Plaza, programmes’ and ‘universal basic income’.
Mira Bierbaum and Christina Behrendt, Joining the USP2030 call to action, they
This special issue of Policy in Focus opens with inputs from Valérie Schmitt and emphasise that countries should follow
with an article by Anush Bezhanyan and Luz Veronika Wodsak, presents key aspects of five key actions to achieve universal
Rodriguez on universal social protection in universal social protection, highlighting social protection: protection throughout
the context of the Sustainable Development how it is anchored in the current the life cycle; universal coverage;
Goals (SDGs), exploring the expansion of international legal and policy framework. national ownership; sustainable and
social protection and related challenges The authors emphasise that universal equitable financing; and participation
over the last decades. social protection not only plays a key role and social dialogue.
in the achievement of SDG 1 but also
Many countries in different parts of the contributes to achieving goals related to In the next article, Anna McCord delves
world have made significant progress health, gender equality, decent work and into the limitations of the two indicators
in the expansion of social protection. economic growth, reduced inequalities adopted for the provision of social
However, 55 per cent of the global and peace, justice and strong institutions. protection in the SDGs. Exploring the
population still has no access to any type findings of a study conducted by the
of social protection system or programme. Considering international human rights Overseas Development Institute in 2017,
Therefore, urgent efforts are needed to as the basis for the concept of universal she gives an overview of the progress
ensure that the human right to social social protection, universal access to social achieved regarding coverage and
protection becomes a reality for all people, protection should not be hindered by any financing, in line with these indicators.
and to achieve the goals set by the 2030 type of discrimination. The article presents
Sustainable Development Agenda. key indicators that can help assess progress Data-related challenges are considered
towards universal social protection, one of the major constraints to securing
The recognition of social protection as a such as universal coverage in terms a comprehensive and comparable
means to reduce poverty and inequality of persons protected, comprehensive overview of social protection provision
has been increasingly accompanied by the protection in terms of risks covered, worldwide. The author argues that
notion that it can also help to accomplish and adequacy of protection. ‘coverage’, for example—which is
complementary goals. Social protection an outcome indicator used by many
systems and programmes are crucial Adding to the discussion on conceptual donors—is problematic as a measure of
elements for the achievement of human clarity, the authors focus on delimiting universality, since there is no consistency
development, economic growth and the term from other concepts and across countries or development
productive inclusion. ideas that are currently present in agencies regarding which instruments
policy discussions, such as ‘one-size- constitute social protection, resulting
The term ‘universal social protection’ is fits-all model’, ‘universal schemes or in inaccurate data on overall coverage.
widely used among the international
community, but conceptual clarity is still
needed to avoid confusion. Moreover,
social protection systems must strive
for effectiveness, and countries need to
understand the relevance of delivery
systems to overcome major challenges.
The article also underlines the importance
of close collaboration with key partners
and stakeholders at the global and national
levels to ensure universal access to social
protection for all. It highlights the USP2030
global partnership for universal social
protection, initiated by the World Bank
and the International Labour Organization,
which aims to support countries to design
and implement universal and sustainable
social protection systems to achieve goal
1.3 of SDG 1 by 2030. Photo: Divulgação/Codevasf. Family of rural producers with their harvest, Juazeiro, Brazil, 2008.
The International Policy Centre for Inclusive Growth | Policy in Focus 7
“Many countries
in different parts
of the world have made
significant progress
in the expansion
of social protection.
Photo: EC/ECHO Arjun Claire. Sri Lankan refugees receiving their cash transfer, Tamil Nadu, India, 2012
.
Moreover, McCord is concerned that too produced based on presentations from of natural disasters and adequate funding
much focus on headcount coverage can this second webinar and illustrate progress for the expansion of social protection are
leave important measures behind, such as towards universal social protection in three ongoing challenges faced by the country,
quality of social protection and adequacy countries: Indonesia, Kenya and Brazil. which must be addressed to achieve
of provision. To overcome this problem, universal social protection by 2030.
she presents key factors to consider, Maliki, Hariyadi and Ramadhan Nizar
such as: frequency, regularity and nature Istighfarli provide an analysis of Indonesia’s In the following article, Cecilia Mbaka
of payment; duration and reliability of policies towards universal social protection states that effective investment in social
support; targeting method; and the ability by 2030, stressing that increased social protection interventions is one of the
of the provision to address needs across protection coverage has become a key biggest challenges currently facing
the life cycle, among others. instrument in the reduction of poverty and Kenya, in addition to the lack of
inequalities in the country over recent years. comprehensive legislation on social
The article also addresses the current protection, diminishing real values of
performance against SDG indicators According to the authors, the Government cash transfers, and fragmentation and
on universal social protection coverage of Indonesia today prioritises the most limited coordination of programmes.
and financing, comparing effective vulnerable and poor people in several Despite these problems, there has been
coverage and public social protection targeted programmes. However, around progress in recent years.
expenditure across countries and regions. 40 per cent of the population—whom the
Notwithstanding data limitations, progress author refers to as the “unseen middle- She argues that considerable advances
towards adequate, nationally financed class”—are not covered by any insurance have been made in strengthening
universal social protection remains slow, and/or social assistance. This is due to processes and systems and in improving
which requires countries to adopt more limited schemes for the informal sector, programme and national management
effective strategies to achieve the goals financial constraints and lack of insurance information systems. She ranks the
of ending poverty and reaching universal literacy, among other issues. They argue adoption of universal health care coverage,
social protection by 2030. that providing social protection to the the launch and roll-out of universal
“missing middle” is a pressing issue, coverage for elderly people and increased
These first articles were based on the requiring affirmative policy development coverage of core social assistance schemes
introductory webinar of the USP2030 and implementation. among Kenya’s main achievements and
series hosted by socialprotection.org: investigates them further in her article.
Universal social protection in the context They also state that, as mentioned in
of the SDGs—where are we now?,2 which other articles in this special issue, social Together with other authors in this special
focused on challenges and opportunities protection plays an important role not issue, Mbaka stresses the importance of
related to universal social protection in the only in poverty reduction but also in enhancing and expanding capacity and
context of the SDGs. It set the stage for the improving people’s livelihoods as a whole. coordination across all levels of social
next webinar of the series, Universal social In Indonesia, the expansion of social protection actors to efficiently improve the
protection: achievements, challenges and protection has led to improvements in design, implementation and evaluation
opportunities,3 which explored country immunisation rates and school attendance, of social protection programmes in Kenya
cases to assess progress on universal social access to basic infrastructure and job and ensure the long-term sustainability of
protection. The following articles were opportunities. Yet informality, the high risk social protection systems.
8
Rafael Osorio, Sergei Soares and informal, high-risk and low-return jobs. people’s livelihoods, social protection systems
Letícia Bartholo follow up with an Moreover, Alfers suggests that the main should be designed in collaboration with
article discussing options to increase barriers encountered by informal workers fisheries and forestry programmes and
fiscal space for social protection by in accessing social security are related policies to address their key vulnerabilities.
reprogramming inefficient social schemes to low and irregular incomes, distrust of
and interventions—terminating some and government rules and regulations and Closing this special issue, the next piece
merging and redesigning others to make inadequate understanding about social draws on the fourth webinar of the series:
way for better programmes, as was the security and its importance. Digital social protection—innovation for
case with the Brazilian flagship targeted effectiveness,5 addressing issues related
cash transfer programme, Bolsa Família. An interesting point raised by the author is to the impact of technological solutions
that in recent years, not only governments on social protection systems, from
Based on that premise, they propose but also informal workers themselves have design to implementation.
merging four Brazilian social protection been developing innovative solutions to
programmes into a single, consolidated expand social security coverage, which Fekadu Kassa presents a country-level
scheme. As Bolsa Família is far better creates an opportunity for shifting social perspective focusing on the example of
targeted than the other programmes, security schemes beyond protection and Ethiopia and the use of innovative technology
due to its eligibility criteria and the Single prevention and towards a fundamental for payment systems. The need for greater
Registry of beneficiaries, this would transformation of relations between the coordination of the entire social protection
save a significant amount of resources. State and society. Drawing on examples sector has led to efforts to design and
They estimate that an additional BRL52.8 from different countries, such as India, Kenya implement robust management information
billion from the consolidated budgets and Uruguay, Alfers concludes that there is systems for social protection programmes.
of the other three programmes could be still much to learn from informal workers;
distributed through a revamped Bolsa therefore, their inclusion in the design and The article delves into implementation
Família more efficiently and effectively, implementation of social security schemes is details and proposes a model for
entailing a universal child benefit to extend crucial to the expansion of social protection the integration of social protection
social protection to the 17 million Brazilian coverage in line with the 2030 Agenda for management information systems in the
children living in households that do not Sustainable Development. country. This would ensure the high-quality
receive any benefits. delivery of key operational processes
The next article, by Mariaeleonora D’Andrea, such as registration, enrolment, payments
The following two pieces are based on the Qiang Ma, Ana Ocampo and Omar and grievance redressal mechanisms.
third webinar of the series, Social protection Benammour, explores the potential of social It would also increase the quality and
and social security.4 Levels of social protection for inclusive rural development, quantity of data, leading to easier access to
security protection are uneven worldwide, focusing on fisheries and forestry, which is information and more informed decision-
although overall coverage trends continue one of the most vulnerable communities making, improving programme targeting
to increase. To enhance social security in the agricultural sector. The authors and timely delivery of benefits.
coverage in line with the 2030 Agenda for describe specific needs, characteristics
Sustainable Development, countries have and vulnerabilities of forest-dependent This compilation of articles addressing some
been looking into developing innovative people and small-scale fishers and fish- of the main challenges and opportunities
policies and strategies to improve their workers, which make a compelling case for related to the expansion of social protection
social security systems. extending both the quantity and quality of demonstrates the importance of knowledge-
coverage of social protection systems. sharing and capacity-strengthening across
In the same vein as Maliki, in the following all levels of social protection actors. We hope
article Laura Alfers posits coverage of the In recent years, these communities have that it can help promote expert debates and
“missing middle”—especially informal seen an increase in the development and provide a glimpse into promising avenues
workers—as crucial for the universalisation of adoption of measures and provisions of for what may work in different contexts.
social protection. She presents the informal social security that encompass their specific However, several steps still need to
economy from a global perspective and needs. The article showcases some successful be taken to ensure the long-term
argues that the lack of protection, combined experiences of extending social protection to sustainability of social protection systems
with relatively lower and more unstable address their vulnerabilities and promote the and the achievement of universal social
incomes than those in the formal economy, sustainable use of resources. protection for all.
have left informal workers with a higher risk
of falling into poverty, resulting in a significant Although there are several examples
challenge for countries worldwide. of good practices—with important 1. International Policy Centre for Inclusive
results related to better access to health Growth (IPC-IG).
The article focuses on self-employed services, increased coverage rates of 2. See: .
workers and the need to approach this social insurance schemes, and women’s 3. See: .
issue from a gendered perspective, since empowerment—challenges still remain. 4. See: .
women tend to be over-represented in To adequately cover the sector and improve 5. See: .
The International Policy Centre for Inclusive Growth | Policy in Focus 9
Universal social protection in the context
of the Sustainable Development Goals
Anush Bezhanyan and Luz Rodriguez 1 progress in expanding access to social considerations. For instance, while child
protection benefits and services. development services and old-age
Evolution and challenges However, social protection is still not pensions may be required only at certain
of social protection a reality for the majority of the world’s stages of the life cycle, disability insurance
Although the history of social protection population. According to the World Bank or income support may (or may not) be
can be traced back to the beginning of ASPIRE 2 database, in 2018 only 44 per needed throughout life. Many benefits
the 17th century with the emergence cent of the global population received and services may not be needed by
of the first forms of unemployment, at least one form of social protection.3 people in a given period or even at all,
old-age and disability benefits, the When it comes to access to comprehensive or people might choose to forgo receipt
last three decades have witnessed an social security, the picture is even worse: of the goods or services to which they are
expansion and diversification of the only 29 per cent of the global population entitled (Packard et al. 2019). This calls
types of social protection benefits and has access to it, while 71 per cent do not for a portfolio of programmes tailored to
services, especially in low- and (ILO 2019). Hence, it is critical to intensify specific needs and risks, instead of relying
middle-income countries. efforts at country and global levels on a single instrument, such as universal
to achieve the SDG target by 2030. basic income, to achieve multiple
Social protection, defined as a “system of At the current pace of progress, SDG 1.3 objectives (Gentilini et al. 2019b).
policies and programmes that provide will be achieved in 2084, while fragile
equitable access to all people and protect States will need until 2259 to attain A systems‐oriented approach that
them throughout their lives against it (Gentilini 2019). strengthens coordination and integration
poverty and risks to their livelihoods and at the policy, programme and delivery
well-being” (USP2030 2019), can take the What does universal levels is a key factor for effective and
form of benefits and services ranging social protection really mean? integral social protection (World Bank
from contributory schemes to cash or For the World Bank, the concept of 2012). By ‘integral systems’ we mean those
in-kind benefits, active labour market universality in social protection rests that offer an adequate combination of
programmes to enhance skills and access on two elements: ‘everyone’ is ‘covered’ benefits and services to cover the main
to jobs, as well as social services for (Gentilini et al. 2019a). While ‘everyone’ risks faced by the population, with an
vulnerable populations. refers to protection for all members emphasis on the most vulnerable.
of society (not only some), ‘universal
Social protection is recognised not only coverage’ does not necessarily mean Effective social protection systems require
for its potential to contribute to the that every person will receive a pay-out the following minimum attributes:
reduction of poverty and the promotion in a given period, or equally, from each
of social inclusion, but also for its ability individual part of the package. This stems y Inclusiveness: Everyone is protected
to help achieve complementary goals. from the fact that coverage of social along the life cycle; this entails ensuring
It is seen as a key element for human insurance is based on risk, while non- non-discrimination, gender equality,
development (by promoting nutrition, contributory assistance is pegged to the availability of and accessibility to social
education and health), productive ‘receipt’ of transfers. In other words, one protection programmes and benefits,
inclusion (by enhancing human capital is covered by social assistance when and programme designs that respond
and productive assets) and economic an actual transfer is received; instead, to the special needs of people with
growth (via better risk management coverage in social insurance terms does different characteristics, circumstances
and reduction of inequalities). not entail an actual receipt of benefits— and vulnerabilities. The goal is to
insurance will be available if, when and eliminate coverage gaps, thus ensuring
Social protection has evolved and figures where needed by all citizens and even all the inclusion of the poorest and most
prominently in the United Nations residents (Packard et al. 2019). This dual vulnerable members of society.
Sustainable Development Goals (SDGs). concept of coverage makes universality in
Target 1.3 sets the goal of “implement[ing] social protection distinct, for instance, from y Adequacy: The system provides regular
nationally appropriate social protection universality in health care, which is entirely and predictable benefits and quality
systems and measures for all, including risk-based (Gentilini 2018). services that are adequate to meet the
floors, and by 2030 achiev[ing] substantial social protection needs of the population
coverage of the poor and the vulnerable”. Since people’s needs are in constant and achieve national objectives.
change, individuals’ and households’
Over the past decade, countries trajectories on social protection vary over y Sustainability: Financial resources
with support from the international time depending on social, demographic allocated are aligned with the
community have made significant and even political and environmental actual and expected outcomes,
10demographic patterns and fragmentation and promote synergies frameworks should articulate the
economic development. across programmes. Such integration long-term financial requirements
requires a high degree of coordination needed to meet long-term funding
y Coherence: There is internal and between institutions. commitments (ISPA 2016).
external consistency with social,
economic and sectoral policies. y Dynamic inclusion challenge: Delivery systems constitute the
The principle that anyone who needs operating environment for implementing
y Responsiveness or dynamism: assistance can access it at any time social protection systems and should
To evolve and adapt to changing social, is a core tenet of social protection. be designed with a human-centred
demographic, environmental and For delivery systems, this raises the approach (see Figure 1). Since key
political needs. issue of whether delivery systems— players interact along that delivery
particularly their intake and registration chain, including people (applicants
On the other hand, while much attention phases—are static or dynamic. and beneficiaries) and institutions
is paid to the design of social protection On-demand systems are more (central and local), delivery systems help
interventions, countries also need to amenable to dynamic inclusion facilitate those interactions by offering
move from discourse to practice and because people can apply or update communications, information systems
understand the relevance of delivery their information at any time. Dynamic and technology (Lindert et al. 2019).
systems that may help overcome major inclusion also favours portability of
challenges, including: benefits, which is critical for highly The World Bank’s social protection
mobile populations (Lindert et al. 2019). strategy,4 defined around three main
y Coordination challenge: By means of objectives (Resilience, Equity and
reducing fragmentation, ensuring y Financing: Effective social protection Opportunity), is deeply linked to the goal
that citizens do not have to navigate demands not only legal provisions of universalisation and the strengthening
each programme separately, look but also that countries ensure that of a systems perspective for the design and
for the same information and they have the financial capacity delivery of social protection.
documentation over and over, wait to sustain expenditures, by raising
in long lines at different offices etc. sufficient resources (i.e. via taxes or Since social protection is inherently
This is inefficient for administrators contributions) and by having budgets multisectoral, it demands close
because it can result in duplications that are aligned with actual and collaboration with key partners and
or gaps in coverage, overlapping expected programme outcomes, stakeholders at global and country levels.
processes, wasted resources and demographic patterns and economic The World Bank has been working for
an inability to keep track of which development. The sources of funds decades with development partners to
clients have received which services should be stable and reliable; if highly coordinate resources and provide advice
or how social protection money is dependent on external financial to reduce programme fragmentation,
spent. Many countries are integrating support, it is necessary to have a and to help develop social protection and
various aspects of policy and delivery clear plan for substituting them for labour programmes to scale, rather than
systems into social protection to avoid local sources. Legal and institutional isolated pilots. Private-sector actors are
FIGURE 1: Social protection systems delivery chain
MONITOR
ASSESS ENROLL PROVIDE AND MANAGE
Potenal demand
1 2 3 4 5 6 7 Recurring
cycle 8 9
Periodic re-assessment
1. Outreach 4. Eligibility and enrolment decisions 7. Benefits and/or services
2. Intake and registraon 5. Determine benefits and service package 8. Beneficiaries, grievances and compliance
3. Assess needs and condions 6. Noficaons and onboarding 9. Exit decisions, noficaons and case outcomes
Source: Lindert et al. (2019, forthcoming).
The International Policy Centre for Inclusive Growth | Policy in Focus 11“ Delivery systems
constitute the operating
environment for
implementing
social protection
systems and should be
designed with a human-
centred approach.
Photo: EC/ECHO/Anouk Delafortrie. Poor families receiving health and nutrition care as well as food assistance
including cash transfers, Burkina Faso, 2013 .
critical partners, to generate employment Gentilini, U. 2018. “What lessons for social
and growth, and as direct providers of protection from universal health coverage?” 1. World Bank.
World Bank, Let’s Talk Development 2. The Atlas of Social Protection Indicators of
social protection services. Civil society blog. . Bank’s compilation of Social Protection and
Accessed 28 October 2019. Labour (SPL) indicators to analyse the scope
knowing the challenges, shaping opinion
Gentilini, U. 2019. “By when would universal and performance of SPL programmes. ASPIRE
and representing excluded groups
social protection be achieved?” World Bank, provides indicators for over 120 countries
(World Bank 2012).
Let’s Talk Development blog. . Accessed 28 October 2019. programme-level administrative data and
International Labour Organization initiated
national household survey data.
a global partnership on universal social Gentilini, U., M. Grosh, and M. Rutkowski.
3. The region with the largest coverage of social
protection (USP2030),5 with the objective 2019a. “Understanding coverage: what does
universal social protection really mean?” protection programmes is Europe and Central Asia,
to make progress on achieving SDG 1.3 6
OECD, Development Matters blog. . (51 per cent) and Middle East and North Africa
USP2030 partnership. (43 per cent). South Asia and sub-Saharan Africa are
Accessed 28 October 2019.
the regions with the lowest coverage: 21 per cent
In a world filled with risk and uncertainty, Gentilini, U., M. Grosh, J. Rigolini, and R. Yemtsov
and 24 per cent, respectively (World Bank 2018).
(eds). 2019b. Exploring universal basic income: a
social protection systems help 4. See: .
guide to navigate concepts, evidence and practices.
individuals and households, especially Washington, DC: World Bank. In press. 5. See: .
those who are poor or vulnerable,
ISPA. 2016. Core Diagnostic Instrument. Inter- 6. As of June 2019, the World Bank was
to cope with shocks, enter the labour Agency Social Protection Assessments. working on nearly 100 social protection
market, accumulate human capital and
Lindert, K. et al. 2019 (forthcoming). Sourcebook projects in approximately 70 countries by
protect the ageing population. The World
of Social Protection and Labor Delivery Systems. providing loans and grants. In addition, the
Bank supports universal social protection Washington, DC: World Bank. Bank has ongoing analytical work in more
that is central to its twin goals of ending
than 80 countries. The Bank not only supports
poverty and boosting shared prosperity. Packard, T., U. Gentilini, M. Grosh, P. O’Keefe,
R. Palacios, D. Robalino, and I. Santos. 2019. countries with technical expertise and
If appropriately designed and delivered, Protecting All: Risk-Sharing for a Diverse and knowledge in the areas of social safety nets,
social protection systems can powerfully Diversifying World of Work. Washington, DC: pensions, labour policies and job programmes,
enhance human capital and productivity, World Bank.
but also offers advice and data analysis for
reduce inequalities, build resilience USP2030. 2019. “Universal Social Protection programme design and implementation
and end the intergenerational cycle of 2030.” Global Partnership for Universal ,monitoring and evaluation. It also contributes
poverty. The invitation for countries Social Protection to Achieve the Sustainable
to global knowledge with products such as
Development Goals by 2030 website.
and partners is to act rapidly to achieve . the State of Social Safety Nets (2018), the
inclusive, integrated and relevant Accessed 28 October 2019. World Development Report: The Changing
social protection systems by 2030 and Nature of Work (2019) and Protecting All:
World Bank. 2012. Resilience, Equity, and
to ensure universal access to social Opportunity—WBG SPL Strategy. Washington, Risk Sharing for a Diverse and Diversifying
protection for all. DC: World Bank. World of Work (2019).
12Universal social protection: key concepts
and international framework¹
Maya Stern Plaza, Mira Bierbaum (target 5.4), decent work and economic background, their language, or other
and Christina Behrendt, with inputs from growth (target 8.5), reduced inequalities characteristics that could be used
Valérie Schmitt and Veronika Wodsak ² (target 10.4), and peace, justice and as a pretext for discrimination.
strong institutions (target 16.6).3
In recent years, many countries have The ILO’s social security standards
achieved a significant expansion of Universal social protection is also one are an integral part of the internationally
social protection coverage, including of the cornerstones of a human-centred agreed framework for the development of
child benefits, maternity benefits, agenda for the future of work, as set social protection systems. In particular, ILO
old-age pensions, health protection out by the Global Commission on the Social Protection Floors Recommendation,
and other benefits. There is also growing Future of Work (2019) and recognised by 2012 (No. 202) and the Social Security
interest among the international governments, workers and employers in (Minimum Standards) Convention,1952
community in promoting universal the International Labour Organization (No. 102) are the cornerstones for
social protection, showing that it (ILO)’s 187 Member States (ILO 2019a). developing universal social protection
is not only relevant but also feasible. systems (ILO 2017a; 2019b).
A number of countries and development A comprehensive framework
partners have joined the Global for universal social protection First, national social protection systems
Partnership for Universal Social The concept of universal social protection should guarantee at least a basic level
Protection (USP2030), which aims to is enshrined in the international human of social security for all, throughout the
accelerate progress in building universal rights framework. It is reflected in life cycle, including effective access to
and sustainable social protection several treaties, including the Universal essential health care and income security—
systems, in line with the 2030 Agenda Declaration of Human Rights (United this is the social protection floor.
for Sustainable Development, and in Nations 1948): “Everyone, as a member Second, national social protection systems
particular target 1.3 of the Sustainable of society, has the right to social security” should be further strengthened by the
Development Goals (SDGs). (Art. 22), and the International Covenant progressive achievement of higher levels of
on Economic, Social, and Cultural Rights protection to ensure adequate protection.
This article presents key aspects (United Nations 1966), which recognises
of universal social protection and “the right of everyone to social security, Key aspects of universal social protection
highlights how it is anchored in the including social insurance” (Art. 9). According to this international framework,
current international legal and policy The principle of universality means universal social protection encompasses
framework. It summarises the progress that every member of society possesses three key aspects:
so far and sets the concept apart these rights, regardless of where
from other ideas and terms that are they live, their gender, their race, y universal coverage in terms
currently present in policy discussions. their religion, cultural or ethnic of persons protected;
In addition, it presents key indicators
that can help assess progress towards
universal social protection.
Universal social protection and the
Sustainable Development Goals
Universal social protection has a
central role in the fulfilment of the 2030
Agenda for Sustainable Development.
SDG 1 (“End poverty in all its forms
everywhere”) sets, among others,
the target to “implement nationally-
appropriate social protection systems
and measures for all, including floors,
and by 2030 achieve substantial
coverage of the poor and vulnerable”
(target 1.3). In addition, universal social
protection contributes to achieving
other SDGs, in particular those related
to health (target 3.8), gender equality Photo: UN Photo/David Ohana. Refugees in Myanmar, 2013 .
The International Policy Centre for Inclusive Growth | Policy in Focus 13FIGURE 1: SDG Indicator 1.3.1: Effective social protection coverage,
global and regional estimates by population group (as a percentage)
0% 20% 40% 60% 80% 100%
Popula�on covered by at least one social protec�on benefit 45.2
Children 34.9
Mothers with newborns 41.1
World
Person with severe disabili�es 27.8
Unemployed 21.8
Older persons 67.9
Vulnerable persons covered by social assistence 24.7
Popula�on covered by at least one social protec�on benefit 17.8
Children 15.9
Mothers with newborns 15.8
Africa
Person with severe disabili�es not available
Unemployed 5.6
Older persons 29.6
Vulnerable persons covered by social assistence 9.5
Popula�on covered by at least one social protec�on benefit 67.6
Children 66.2
Mothers with newborns 68.6
Americas
Person with severe disabili�es 72.9
Unemployed 16.7
Older persons 86.2
Vulnerable persons covered by social assistence 38.7
Popula�on covered by at least one social protec�on benefit 38.9
Children not available
Mothers with newborns 33.4
the Pacific
Asia and
Person with severe disabili�es 9.4
Unemployed 22.5
Older persons 55.2
Vulnerable persons covered by social assistence 16.4
Popula�on covered by at least one social protec�on benefit 84.1
Children 87.5
Mothers with newborns 81.4
Central Asia
Europe and
Person with severe disabili�es 86.7
Unemployed 42.5
Older persons 95.2
Vulnerable persons covered by social assistence 66.7
Source: ILO (2017b).
y comprehensive protection in terms or her life cycle, ensuring that all persons social inclusion (including of persons in
of risks covered; and in need can effectively access social the informal economy); and respect for
protection. These guarantees should people’s rights and dignity.
y adequacy of protection. cover at least all residents and all children,
subject to other international obligations. Universal social protection, however,
Universal coverage does not stop at a basic level of protection.
According to ILO Recommendation Social protection systems should Recommendation No. 202 also sets out
No. 202, nationally defined social protection respect and promote the principles of that countries should progressively ensure
floors guarantee at least a basic level of non-discrimination, gender equality higher levels of social security for as many
social security for everyone throughout his and responsiveness to special needs; people as possible and as soon as possible.
14Figure 1 provides global and For conceptual clarity: universal types of universal schemes/programmes:
regional estimates of effective social protection and other concepts those that cover broad categories of
social protection coverage for different The term ‘universal social protection’ the population—for instance, children
population groups according to is widely used in policy discussions. or older persons (also known as
SDG indicator 1.3.1. It illustrates To avoid confusion, and for conceptual categorical schemes); and those that
coverage in terms of both persons clarity, it is helpful to delimit the term cover the entire population, such as a
and risk protected. from other concepts. national health service or a universal
basic income (UBI).
Comprehensive protection Not to be confused with
Universal social protection also requires a one-size-fits-all model Many countries that have achieved
comprehensive coverage of a broad There is no single, all-encompassing universal social protection are relying
set of social risks and contingencies. model to achieve universal social on universal schemes, as they tend
Such comprehensive protection should protection, as the focus is on the to be more inclusive and lead to less
encompass the core areas of social outcomes rather than on means. stigma than narrow poverty-targeted
protection systems, including sickness Recommendation No. 202 clearly programmes. Such universal schemes are
benefits, unemployment benefits, old-age specifies that social protection floors often complemented by social insurance
benefits, employment injury benefits, should be nationally defined, and that or other schemes providing higher
child or family benefits, maternity countries should consider the most levels of protection.
benefits, invalidity/disability benefits and effective and efficient combination of
survivor benefits, which are reflected in benefits and schemes in their national However, this is not the only option that
Convention No. 102 and in SDG target contexts. Likewise, they should consider countries have at their disposal, as other
1.3. In addition, Convention No. 102 also different methods to mobilise the approaches can also be compatible with
includes access to medical care, which is necessary resources. This is what has the universal social protection framework.
reflected in SDG target 3.8 on universal happened around the world; countries While many countries achieve universal
health coverage. As new social risks may have chosen different paths to achieve social protection for children through a
arise in the future, such as long-term care, universal social protection. universal child benefit, other countries
these would have to be addressed as well. achieve it through a combination of
Not to be confused with universal several schemes (ILO and UNICEF 2019).
Adequacy of protection schemes or programmes For example, in Argentina more than
Universal social protection needs to be According to the internationally agreed 80 per cent of children are covered
adequate to achieve the expected policy legal and policy framework previously through a mix of social insurance and
outcomes in line with internationally described, universal social protection tax-financed benefits.
accepted minimum benchmarks for refers mainly to social protection
social protection systems set out in systems. However, the term ‘universal’ Not to be confused with universal
ILO social security standards. For social is also used to describe specific basic income
protection floors, the basic social security schemes and programmes that are Universal social protection means that
guarantees should prevent or at least non-contributory, typically tax-financed, everybody is adequately protected
alleviate poverty, vulnerability and social not means-tested, and with broad against the full range of risks throughout
exclusion, and allow life in dignity. population coverage. There are two their life cycle. However, this does
“ National social
protection systems
should guarantee at
least a basic level
of social security for all,
throughout the
life cycle, including
effective access to
essential health care
and income security.
Photo: Sarah Farhat/World Bank. Workers in a social protection project in Kinyana village, Rwanda, 2017
.
The International Policy Centre for Inclusive Growth | Policy in Focus 15not require that everybody receive a
permanent benefit, as would be the
case with a UBI.
Universal social protection could be
achieved through a UBI that achieves
universal coverage and comprehensive
protection and provides an adequate level
of protection. However, UBI proposals can
differ substantially in their design, and
not every proposal complies with the key
principles of universal social protection
(Ortiz et al. 2018). For example, for a UBI
to meet the principles of universal social
protection, it would need to be at a level
that fully meets the entire range of basic
needs of recipients.
Photo: UN Women/Narendra Shrestha. Woman with her income as rural farmer, Nepal, 2016 .
How to achieve universal
social protection?
The international human rights of social protection systems ILO. 2017b. Building Social Protection Systems:
framework, international social security by prioritising reliable and International Standards and Human
Rights Instruments. Geneva:
standards and the Agenda 2030 for equitable forms of domestic International Labour Organization.
Sustainable Development set out a clear, financing, complemented by
internationally agreed framework to international cooperation and ILO. 2019a. “Universal Social Protection:
Key Concepts and International Framework.”
achieve universal social protection. support where necessary. Social Protection for All Issue Brief.
Geneva: International Labour
USP2030 called on all countries to live y Participation and social dialogue. Organization. .
Accessed 15 August 2019.
up to their commitment to develop Strengthen governance of social
nationally owned social protection protection systems through ILO. 2019b. Universal Protection for Human
systems for all, including floors. It called institutional leadership, Dignity, Social Justice and Sustainable
Development. Geneva: International
on countries and development partners multisectoral coordination and the Labour Organization.
to undertake the following five actions, participation of social partners and
to support the global commitment on ILO and UNICEF. 2019. Towards Universal Social
other relevant and representative
Protection for Children: Achieving SDG 1.3.
universal social protection: organisations, to generate broad- Geneva and New York: International
based support and promote the Labour Organization and United Nations
Protection throughout the life cycle. Children’s Fund.
y effectiveness of services.
Establish universal social protection Ortiz, I., C. Behrendt, A. Acuña-Ulate,
systems, including floors, that provide Many countries have already achieved and Q.A. Nguyen. 2018. Universal Basic Income
Proposals in Light of ILO Standards: Key Issues
adequate protection throughout significant progress in universal social and Global Costing. Geneva: International
the life cycle, combining social protection for at least one area of their Labour Organization.
insurance, social assistance and social protection system. This includes
United Nations. 1948. Universal Declaration
other means, anchored in national most high-income countries, as well as a of Human Rights. New York: United Nations.
strategies and legislation. growing number of middle- and low-
income countries, including Argentina, United Nations. 1966. International Covenant on
Economic, Social, and Cultural Rights. New York:
y Universal coverage. Provide universal Cabo Verde, China, Georgia, Lesotho, United Nations.
access to social protection and ensure Mongolia, Namibia, Nepal, South Africa
that social protection systems are and Uruguay.4 However, greater efforts are USP2030. 2019. “Together to Achieve Universal
Social Protection by 2030—A Call to Action.”
rights-based, gender-sensitive and needed to expand coverage and ensure Global Partnership for Universal Social
inclusive, leaving no one behind. comprehensive and adequate Protection website. .
protection for all. Accessed 15 August 2019.
y National ownership. Develop social
protection strategies and policies
based on national priorities and Global Commission for the Future of Work. 2019.
Work for a Brighter Future. Geneva: International 1.This article draws on ILO (2019a).
circumstances in close cooperation Labour Organization. 2. International Labour Organization (ILO).
with all relevant actors.
ILO. 2017a. World Social Protection Report 3. For a full list of the SDGs, see:
2017-2019. Universal Social Protection to Achieve .
y Sustainable and equitable financing. the Sustainable Development Goals. Geneva: 4. See: for a map
Ensure the sustainability and fairness International Labour Organization. and country briefs.
16Limitations of the indicators for Sustainable
Development Goal targets relating to
social protection provision, in the context
of universal social protection and USP2030
Anna McCord ¹ agency responsible for target 1.3 is the The SDG indicator selected for target 1.3
International Labour Organization (ILO), is ‘effective’ coverage, which combines the
This article explores the indicators identified with additional involvement from the two ideas of coverage (legal and actual),
for measuring progress towards the provision World Bank. referring to those who receive contributory
of universal social protection under target and non-contributory social protection
1.3 (“implement nationally appropriate As discussed elsewhere in this special programmes plus those people who
social protection systems and measures for issue, the principle of universality of actively contribute to social insurance
all, including floors, and by 2030 achieve social protection means that social schemes. It is, therefore, an aggregate
substantial coverage of the poor and the protection systems should guarantee indicator gathering those who receive any
vulnerable”) of Sustainable Development decent living conditions to the whole form of social security or social assistance
Goal (SDG) 1 (“end poverty in all its forms population throughout their lives. payment, and those who contribute to
everywhere”), in line with the objective of The SDGs fall short of this and do not social insurance schemes and who will be
the Global Partnership for Universal Social explicitly include the aim of universal eligible to receive benefits in the future.
Protection to Achieve the Sustainable provision of social protection by 2030; Data for this indicator are provided by
Development Goals by 2030 (USP2030). instead they refer to the implementation national ministries, collected through an
It presents the findings of a study conducted of “social protection systems and administrative survey—the ILO Social
by the Overseas Development Institute measures for all”, with the goal of Security Inquiry (SSI)—collated into a
(ODI) (McCord, Holmes, and Harman 2017), “substantial coverage” by 2030. database and published in the World Social
detailing the challenges and limitations of the However, the proportion of the Protection Report (ILO 2017).
two indicators adopted for social protection population covered by social protection
provision in the SDGs and providing an systems/floors is used as an indicator of The database contains information for
overview of the progress that has been progress towards universality (United 183 countries in total, but the number of
achieved so far on coverage and financing, Nations Statistics Division 2018), countries providing coverage data varies
in line with these indicators. The article is as well as an indicator of SDG progress. significantly across different social protection
based on a presentation entitled ‘Universal instruments, as illustrated in Table 1, leading
social protection in the context of the SDGs— Coverage may be conceptualised in two to problems in producing accurate and
where are we now?’, the introductory distinct ways, either in terms of legal consistent data on overall coverage.
webinar in the USP2030 webinar series coverage—i.e. the numbers of those who,
hosted by socialprotection.org. in principle, are eligible to draw down on Many of these data are not disaggregated
some form of social protection provision by gender or other categories; therefore,
Targets and indicators should they need it, or actual beneficiary subdividing coverage by vulnerable
The target which most accurately articulates numbers at any point in time. group in the SDG indicator is a challenge.
the call for the provision of universal social
protection is SDG 1’s target 1.3: “Implement
nationally appropriate social protection TABLE 1. Availability of country coverage data, by social protection instrument
systems and measures for all, including
floors, and by 2030 achieve substantial Number of countries
Social protection type
providing coverage data
coverage of the poor and the vulnerable.”
Old age 175
The indicator for this target is the
Work-injury victims 172
“proportion of population covered by
social protection floors/systems, by sex, Disability 171
distinguishing children, unemployed
Pregnant women 139
persons, older persons, persons with
disabilities, pregnant women, newborns, Child grants 109
work-injury victims and the poor and
Unemployment benefits 79
the vulnerable”. Each indicator target
has its own custodian agency; the Source: IAEG-SDG (2016).
The International Policy Centre for Inclusive Growth | Policy in Focus 17Hence, although coverage is an outcome to how social protection should be
indicator used by many donors and is defined, how diverse funding sources
readily calculable based on national data, should be captured and how ‘significant’,
it is a problematic indicator as a measure ‘adequate’ and ‘predictable’ might be
of universality. The primary reason for conceptualised and captured.
this is that there is no consistency across
countries or development agencies Indicator challenges
regarding which instruments constitute Obtaining a comprehensive and
social protection and are reported on, how comparable overview of social protection
‘coverage’ is measured or how the concept provision across countries is not currently
of universality can be accommodated. feasible due to data-related challenges.
The major constraints are significant
Mobilisation of resources for inconsistencies in terms of data collection
social protection processes and periodicity, as well as quality
Resource mobilisation is recognised as key for and definitional/compositional differences.
achieving SDG 1, and target 1.a specifically These practical constraints have limited the
addresses this: “Ensure significant feasible indicator options for target 1.3 and
mobilization of resources from a variety the measurement of progress towards the
of sources, including through enhanced provision of universal social protection.
development cooperation, in order
to provide adequate and predictable These data constraints and the need for
means for developing countries, feasible indicators have resulted in the
in particular least developed countries, selection of SDG indicators which focus
to implement programmes and policies on the measurement of input (resources)
to end poverty in all its dimensions.” and output (coverage), at the expense of
results-oriented indicators which would
One of the three indicators for this capture social protection outcomes
target (indicator 1.a.2) refers explicitly and impacts. This has compromised the
to social protection: the “[p]roportion of adequacy of the selected indicators as
total government spending on essential measures of progress towards universal
services (education, health and social social protection as specified in the
protection)”.2 This indicator is still under SDGs, in terms of the implementation of
discussion in terms of an appropriate “nationally appropriate social protection
methodology for its calculation and the systems and measures for all, including
metadata required, which will be able creation of social protection floors, and
to accommodate challenges relating by 2030 achieving substantial coverage
“ The principle of
universality of social
FIGURE 1: Percentage of the total population covered by at least
one social protection benefit (effective coverage), 2015
protection means that
social protection systems Europe and Central Asia
Northern America
should guarantee
Americas
decent living conditions
La�n America and the Caribbean
to the whole population
World
throughout their lives. Northern Africa
Asia and the Pacific
Africa
Sub-Saharan Africa
0 20 40 60 80
Source: Author’s elaboration.
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