拉丁美洲經(jīng)濟委員會-拉丁美洲非繳費性社會保護(hù)接受者的社會信息系統(tǒng)和登記處對新冠疫情的回應(yīng)（英文）-2021.5-49正式版

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Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocialprotectioninLatinAmericainresponsetoCOVID-19

HeidiBerner

TamaraVanHemelryck

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Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocial

protectioninLatinAmericainresponsetoCOVID-19

HeidiBerner

TamaraVanHemelryck

ThisdocumentwaspreparedbyHeidiBernerandTamaraVanHemelryck,ConsultantswiththeSocialDevelopmentDivisionoftheEconomicCommissionforLatinAmericaandtheCaribbean(ECLAC),intheframeworkoftheUnitedNationsDevelopmentAccountproject"Strengtheningsocialprotectionforpandemicresponses:identifyingthevulnerable,aidingrecoveryandbuildingresilience".ThestudywascarriedoutunderthesupervisionofSimoneCecchini,Officer‐in‐ChargeoftheSocialDevelopmentDivisionofECLAC,andClaudiaRobles,SocialAffairsOfficerofthesameDivision.BeatrizMorales,ResearchAssistantwiththeSocialDevelopmentDivisionofECLAC,providedsubstantiveinformationonthesocialprotectionmeasuresimplementedbythecountries.TheauthorsaregratefulforthevaluableinformationprovidedbyRandolphGilbert,CoordinatorandFocalPointforHaitiattheECLACsubregionalheadquartersinMexico,VariniaTromben,EconomicAffairsOfficeroftheSocialDevelopmentDivisionofECLAC,SoledadVillafa?e,EconomicAffairsOfficer,andJuanMartínBustos,Consultant,bothwiththeECLACofficeinBuenosAires,aswellasJonesPyram,InformationSystemCoordinatoroftheMinistryofSocialAffairsandLabourofHaiti,andAntoineMorel‐Vulliez,HeadofSocialProtectionoftheWorldFoodProgramme(WFP)inHaiti.TheauthorsarealsogratefultoJuanMartínBustos,SimoneCecchini,RandolphGilbert,BeatrizMorales,ClaudiaRoblesandSoledadVillafa?efortheircommentsandsuggestions.

Thisdocumentisatranslationof"SistemasdeinformaciónsocialyregistrosdedestinatariosdelaprotecciónsocialnocontributivaenAméricaLatina:avancesydesafíosfrentealCOVID‐19",ProjectDocuments(LC/TS.2020/140),Santiago,EconomicCommissionforLatinAmericaandtheCaribbean,notincludingitsannexes.

Theviewsexpressedinthisdocument,atranslationofaSpanishoriginalwhichdidnotundergoformalediting,arethoseoftheauthorsanddonotnecessarilyreflecttheviewsoftheOrganization.

UnitedNationspublication

LC/TS.2021/56

Distribution:L

Copyright?UnitedNations,2021

Allrightsreserved

PrintedatUnitedNations,Santiago

S.21‐00029

Thispublicationshouldbecitedas:H.BernerandT.VanHemelryck,“Socialinformationsystemsandregistriesofrecipientsofnon‐contributorysocialprotectioninLatinAmericainresponsetoCOVID‐19”,ProjectDocuments(LC/TS.2021/56),Santiago,EconomicCommissionforLatinAmericaandtheCaribbean(ECLAC),2021.

ApplicationsforauthorizationtoreproducethisworkinwholeorinpartshouldbesenttotheEconomicCommissionforLatinAmericaandtheCaribbean(ECLAC),DocumentsandPublicationsDivision,publicaciones.cepal@.MemberStatesandtheirgovernmentalinstitutionsmayreproducethisworkwithoutpriorauthorization,butarerequestedtomentionthesourceandtoinformECLACofsuchreproduction.

ECLAC Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocial... 3

Contents

Executivesummary

5

Introduction

7

Maincharacteristicsofsocialinformationsystemsandregistriesofrecipients

inLatinAmericapriortotheCOVID-19crisis

9

A.

Coverageofsocialregistries

12

B.

Levelofintegrationandinteroperabilityofsocialregistries

13

C.

Verificationofsysteminformation

14

Instrumentsforthetargetingorsocioeconomiccharacterizationofhouseholdsinthe

registry

19

ClassificationoftheLatinAmericancountriesunderreview(15countries)

accordingtotheirrecipientregistrysystems

19

Capacityofsocialinformationandregistrysystemstomeettheneedsarising

fromthesocialimpactsofCOVID-19,andmajorinnovationsinresponsetoCOVID-19

25

A.

Useofinformationandcommunicationstechnology

29

B.

Enhancinginformationsystemsandregistriesofrecipients

30

C.

Selectionofsocialentitlementusers

31

Conclusionsandrecommendationstopromotetheuseofsocial

informationsystemsandsocialregistriesofrecipients

35

A.

Expandingthecoveragelevelsofsocialregistriesinthecountriesanalysed

36

B.

Socialregistriesshouldbepartofasocialinformationsystem

36

C.

Increasinglevelsofsysteminteroperability

37

D.

Improvingtargetingorsocioeconomiccharacterizationinstruments

38

E.

Promotingtheuseofinformationandcommunicationstechnology

39

Enhancingtheinstitutionalframeworkandtheroleplayedbythe

differentterritoriallevelsinimplementingsocialregistries

39

ECLAC Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocial... 4

Bibliography

41

Tables

Table1

LatinAmerica(15countries):maincharacteristicsofsocial

informationsystemsandsocialregistries,2015–2020

16

Table2

Socioeconomiccharacterizationinstrumentsin15LatinAmericancountries,

2015–2020

21

Table3

LatinAmerica(15countries):measuresimplementedbytypeof

measureandinnovationintroducedintoinformationorpaymentsystems,

bycountry,31August2020

33

Figures

Figure1

LatinAmerica(15countries)a:coverageofsocialregistries,2015–2020

12

Figure2

LatinAmerica(15countries):classificationofnon-contributorysocialprotection

measuresadoptedbythecountriesunderreview,August2020

26

Figure3

LatinAmerica(15countries):classificationofthenumberof

programmeswithinnovationsinsocialinformation,

recipientregistrationandpaymentsystems,July2020

30

ECLAC Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocial... 5

Executivesummary

Theaimofthisstudyistoanalysethecurrentsituationregardingsocialinformationsystemsandregistriesofrecipients(socialregistries)ofnon-contributorysocialprotectionprogrammesin15LatinAmericancountries(Argentina,Brazil,Chile,Colombia,CostaRica,DominicanRepublic,Ecuador,ElSalvador,Haiti,Mexico,Panama,Paraguay,Peru,PlurinationalStateofBoliviaandUruguay),identifyinginnovationsinthemeasuresimplementedtomitigatetheeffectsofthepandemicandmakingrecommendationstohelpstrengthenuniversalsocialprotectionsystemsand,inparticular,theregistriesofrecipientsthatsupportthesesystems.ThehopeistohelpbuildthecapacityofLatinAmericanandCaribbeancountriestodesignandimplementsocialprotectionpoliciesthatwillleadtoarapidandpositiverecoveryaftertheCOVID-19pandemic.

Socialinformationsystemsincorporatesocialregistriesandaresoftwareapplicationsthatcollect,organize,store,process,createanddistributedataandinformation,includingadministrativedatafromvariousState-managedsourcesandinformationself-reportedbyindividuals,turningitintoamoreextensivetoolwiththepotentialtofollowup,monitorandevaluatesocialprotectionpolicies,enablingindividualsandtheirhouseholdstobelinkedwithsocialprotectionentitlements(WilliamsandMoreira,2020).Socialregistriesofrecipientscollectandstoredataonindividualsandhouseholdsthatcouldpotentiallybeusersofthedifferententitlementsprovidedbysocialprotectionsystems,includingvariablesthatcanbeusedtocharacterizethehouseholdssocioeconomicallyandtherebydeterminetheireligibilityforoneormoresocialentitlements.

InresponsetotheCOVID-19pandemic,withitsheavyeconomicandsocialimpacts,countriesintheregionneededtodevelopshort-term,rapidandeffectivemeasurestomitigateitshealthandeconomiceffects,whichwasplacingaseverestrainonthecapacityofsocialregistriestorespond.Tocounterthis,countriesimplementedinnovationstoadapttheirregistriesofrecipients.Mostoftheseinnovationsentailedbuildingnewtargetinginstruments,adoptingnewwaysofidentifyingthepotentialpopulation,incorporatinginformationandcommunicationstechnologyandimprovinginformationsystemstoexpandcoverageofthepopulationinneedofsupport.

ECLAC Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocial... 6

Thisstudyanalysesthedifferentinitiativesimplementedby15LatinAmericancountriestomitigatetheeffectsofthepandemicandprovidesinitialrecommendationsforimprovingsocialinformationsystemsandsocialregistriestoexpandcoveragelevels,tackleerrorsofinclusionandexclusion,integratedataintoasinglesocialinformationsystem,increaselevelsofinteroperability,optimizetheconstructionoftargetinginstruments,incorporatenewinformationandcommunicationstechnologyanddeveloptheinstitutionalframeworkassociatedwithsocialprotectionsystemsatthedifferentterritoriallevels.Theaimistoturnsocialregistriesintoausefultoolthatprovidesindividualsrequiringsupportatdifferentstagesoftheirliveswithrapidaccesstotheentitlementsprovidedbysocialprotectionsystems.

ECLAC Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocial... 7

Introduction

Thisstudyaimsto:(i)analysethesituationofsocialinformationsystemsandregistriesofrecipients(socialregistries)ofnon-contributorysocialprotectionprogrammesinLatinAmericapriortothespreadoftheCOVID-19pandemic;(ii)identifyhowsocialinformationsystemsandsocialregistrieshavesupportedtheemergencymeasuresimplementedtotacklethecrisis,distinguishingthemajorinnovationsintheiroperation;and(iii)makerecommendationstoguideimprovementsinthefunctioningofthesesystemsduringtherecoveryperiod,whereuniversalsocialprotectionpolicieswillplayakeyroleinstrengtheningawelfarestateintheregion.Allthisisintendedtohelpmitigatethedevastatingsocialandeconomiceffectsofthiscrisis.

Asocialprotectionsystemisasetofpublicpoliciesdesignedtoguaranteepeople’sbasicneeds,toprotectthemagainsttheuncertaintyandriskstowhichtheyareexposedthroughouttheirlives.AsdefinedbytheRegionalAgendaforInclusiveSocialDevelopment:“Socialprotectionaimstoguaranteeuniversalaccesstoincomethatpermitsanadequatelevelofwell-being,aswellasuniversalaccesstosocialservices(suchashealth,education,waterandsanitation),housing,labourinclusionpoliciesanddecentwork”(ECLAC,2020c).Itisaboutsafeguardingtheexerciseofrights,ensuringpresentandfuturewell-beingandguaranteeingadecentlifeforallcitizens.Thiscallsforavarietyofsocialpoliciesandentitlementsindifferentareasofwell-being(includingincome,education,health,workandhousing).Thedevelopmentofsocialprotectionsystemsrequiresaninstitutionalframeworkthatmakesitpossiblenotonlytocoordinatethesetofsocialprotectioncomponentsandentitlementseffectivelybutalsotoensurethatnecessaryandsufficientinformationisavailabletodesignandimplementsocialprotectionsystemsthatcanidentifyindividualsandhouseholdsinneedandreachouttotheminatimelymanner.

Oneofthechallengesoverthepastdecadehasthereforebeentoimplementsocialinformationsystemsandsocialregistriesofrecipientsthatcancollectinformationonhouseholdsandindividualsandalsohavethecapacitytocombinethisinformationandturnitintoameansforthesocioeconomiccharacterizationandidentificationofpotentialrecipientsofsocialpolicies.SocialregistriesofrecipientsareessentialtosupportthefirstphaseofimplementationofStatesocialprogrammesandactions,whichisdeterminingtheeligibilityofindividualsorhouseholdsforthevariousentitlementsprovidedbythepublicsector.Buildingthemiskeytosecuringinclusivesocialdevelopmentineachcountryandthroughouttheregion.However,LatinAmerican

ECLAC Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocial... 8

countriesareatdifferentstagesintheconsolidationandstrengtheningoftheirsocialinformationsystemsandsocialregistries,withgapsincoverageandaccess,aswellasproblemsofexclusionandinclusionofsocialentitlementsrecipients,inadditiontoproblemswithinformationaccuracyandquality.Thisisparticularlyimportantinviewofthecurrenthighlevelsofvulnerabilityandpovertyintheregion,makingitnecessarytoconsiderinstrumentswithincreasingcoveragetoworktowardsuniversalsocialprotectionsystems.TheEconomicCommissionforLatinAmericaandtheCaribbean(ECLAC)estimatedthat,in2019,77%ofLatinAmerica’spopulation(470millionpeople)wereintheloworlower-middleincomestrata,withpercapitaincomeuptothreetimesthepovertylineandinsufficientsavingstoweatheracrisis(ECLAC,2020b).

Thesevereeconomicandsocialimpactsofthecurrentpandemicontheregionhavethereforeplacedanenormousstrainonsocialprotectionsystemsandtheircapacitytorespondtolossofhouseholdincomeandjobs.AccordingtoinformationcollectedbyECLAC,by31August2020,atotalof32LatinAmericanandCaribbeancountrieshadadopted247socialprotectionmeasurestosupporthouseholdsduringthiscrisisandtomitigatetheimpactsofCOVID-19.Countrieshavedevelopeddiversestrategiestosupportthepopulationinneedofprotectionandsupportwitharangeofmeasures,placingsocialinformationsystemsandsocialregistriesatthecentre,asakeytoolforidentifyingthehouseholdstoreceivesuchsupport.Amajorchallengeistoextendentitlementstogroupsofindividualsandhouseholdsthat,traditionally,haveremainedoutsidetheseregistries,suchasformalandinformalworkersormiddle-incomesectorsthathavebeenleftwithoutsourcesofincomeandare,therefore,ingreatneedofsupport.

Thisreportaimstoanalysethepre-pandemicsituationregardingsocialinformationsystemsandsocialregistriesofrecipientsofsocialprotectionsystemsin15countriesinLatinAmerica,1identifyingtheirstructureandmaincharacteristics,includingtheir:coverage,use(conditionalandunconditionalcashtransferprogrammes,othersocialprogrammes),levelofinteroperability,sourcesofinformationandassociatedcharacterizationinstruments,whicharepresentedinchapterIofthisreport.

Basedonthisanalysis,chapterIIexaminesthecapacityofsocialinformationsystemsandsocialregistriestomeettheneedsarisingfromthesocialimpactsofCOVID-19,identifyingthemajorinnovationsthathavebeenintroducedasaresultofthepandemictoreachoutmoreeffectivelytotheneediesthouseholds.Itanalysestheinnovationsinsocialinformationsystemsandalsodescribestheresponsesandsocialprotectionpoliciesimplementedbygovernments,primarilythroughtheministriesofsocialdevelopmentandpresidents’cabinetswheresocialinformationsystemsandsocialregistriesarehousedandadministeredinstitutionally.

Finally,chapterIIIputsforwardthemainconclusionsoftheanalysisandmakesrecommendationsforenhancingthedesignofsocialinformationsystemsandsocialregistriesofrecipientsintheshort,mediumandlongterm.TheserecommendationsconsiderthenewchallengesthatsocialprotectionpolicieswillfaceasaconsequenceoftheCOVID-19pandemic,whichdemandrapidadaptabilityandflexibilitytoundertaketheprocessofexpandingtheircoverageorintegratingnewprogrammes.Therecommendationsalsoconsidertheneedforsocialinformationsystemsandsocialregistriestobecometoolsinsupportofuniversalsocialprotectionsystems,withaneedforincreasinginteroperability,inadditiontodeliveringanefficientandeffectiveemergencyresponse.2

1

2

Thecountriescoveredbythisstudyare:Argentina,Brazil,Chile,Colombia,CostaRica,DominicanRepublic,Ecuador,ElSalvador,Haiti,Mexico,Panama,Paraguay,Peru,PlurinationalStateofBoliviaandUruguay.

Theinformationusedinthisstudyconsiderssocialregistriesofrecipientsemployedtocharacterizeanddetermineusersofnon-contributorysocialprotectionentitlements,includingsocialprogrammessuchastrainingprogrammes,educationgrantsorhealthprogrammes(Lindertandothers,2020).Thisstudyalsoanalysessocialinformationsystemsfromabroaderperspective,whichencompassesboththesesocialregistriesandotherinformationrecords,includingregistriesofsocialprogrammebeneficiaries.Tothisend,thisstudyreviewedofficialsourcesineachcountry(institutionalwebsitesoftheagenciesthatusuallyhousesocialinformationsystemsandregistriesofrecipients),withinformationobtainedfromstudiesandresearchconductedmainlybyinternationalagencies(EconomicCommissionforLatinAmericaandtheCaribbean(ECLAC),WorldBank,Inter-AmericanDevelopmentBank(IDB),platformssuchasandinformationinthenationalandinternationalpress.Insomecases,includingArgentinaandHaiti,itwaspossibletocross-checktheinformationthroughinterviewsofECLACofficialsorcounterparts,whichallowedforamoreprecisedescriptionoftheirsystems.

ECLAC Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocial... 9

I.Maincharacteristicsofsocial

informationsystemsandregistriesofrecipients

inLatinAmericapriortotheCOVID-19crisis

Socialinformationsystemsaresoftwareapplicationsthatcollect,organize,store,process,createanddistributedataandinformationtolinkindividualsandtheirhouseholdswithsocialprotectionentitlements(WilliamsandMoreira,2020).Theycanalsobeusedtoassignothersocialentitlementsorprogrammes(Lindertandothers,2020).Theycontaindetailedandaggregatedinformationonthepopulationandthesocialentitlementstowhichtheyhaveaccess,makingitpossiblenotonlytoestablishalinkbetweenthetwobutalsotomonitor,evaluateandmanagethesetofsocialpolicies,especiallythoserelatingtosocialprotection.

Inthe15LatinAmericancountriesreviewedinthisstudy,socialinformationsystemscontaindifferenttypesofinformationrecord(socialregistriesofrecipients,recordsorinventoriesofsocialentitlementsandprogrammes,territorialinformationrecordsandbenefitpaymentsystems).3Thisenablesthegovernmentineachcountrytoincorporateintoitssocialinformationsystemsadatainfrastructurecontainingintegratedinformation,whichisessentialtomanagingthedemandforsocialprotectionandthesupplyofsocialentitlements,basedontheinformationcollectedfromsocialregistriesofpotentialrecipients(orsocialregistries)andregistriesofbeneficiariesofsocialentitlementsorprogrammes.Astheycontaininformationonallsocialentitlementsandthedifferentstagesofsocialpolicyimplementation,theycanbefollowedupandmonitored.

Thisstudyfocusesparticularlyonthesocialregistriesofpotentialrecipients(hereinafterreferredtoassocialregistries)thatLatinAmericancountrieshaveimplementedinrecentyears.Theseregistries

Socialregistriesmaybesingleregistriesandcovertheentiretyofacountry’sprovisionofentitlementsandprogrammesortheymaybefragmentedandseparatedbytypeofprogramme(suchassocialprotectionprogrammesandotherStateprogrammes),ortheremayevenbeindividualregistriesforeachsocialprogrammeimplemented.Formoreinformationonthissubject,seeLindertandothers(2020).

ECLAC Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocial... 10

incorporateinformationontheindividualsandhouseholdsthatcouldpotentiallyaccesssocialentitlements,includingtheirsocioeconomiccharacteristics.WilliamsandMoreira(2020)describesocialregistriesasinformationsystemsthatsupportoutreach,intake,registrationanddeterminationofpotentialeligibilityforoneormoresocialprogrammes.Lindertandothers(2020)statethatregistriesofrecipientsworkwithsocioeconomicdatatorunassessmentsofneedsandconditionsforapplicantsorindividuals,familiesandhouseholdsforsocialprotectionprogrammesand,insodoing,providedataforbuildingtargetinginstrumentstosupporttheselectionofsocialentitlementusers.

Registriesofrecipientsthereforeneedtoincorporatedifferentsourcesofinformation(variables/indicators)thatenablethepotentialpopulationforsocialentitlementstobecharacterized.Thismeansnotonlyincorporatinginformationfromcivilregistriesbutalsocollectingidentifyingdataanddataonhouseholdcomposition,education,health,formalandinformalincomeandotherrelevantaspectstoidentifypeople’svulnerability.Themainobjectiveisforsocialregistriestoincorporateinformationatthehouseholdlevel,identifyingthecharacteristicsofallhouseholdmembersandkeepingtheregistriesupdatedconstantlyinordertogenerateanddelivertheinformationneededtodesignandimplementsocialpolicies,includingtheproperandtimelyidentificationoftheirusers.

Whendesigningandimplementingsocialregistries,considerationshouldbegiventotherequiredlevelofcoveragetoidentifyallindividualsandhouseholdsthatmightpotentiallyusethesocialprotectionsystem.Itshouldthereforebedesignedwithauniversalaccessrationale,collectinginformationfromthedifferentState-manageddatabases,inadditiontoinformationaboutwhichpeopleneedtobeconsulted.

Whendesigningsocialinformationsystemsandsocialregistries,therealsoneedstobecoordinationwiththedifferentsocialprogrammesandentitlementsinordertoincorporatealltherequiredinformationorcharacterizationvariablesonhouseholdsandtheirmemberstoidentifytherecipientsofeachentitlementinthesocialprotectionsystem.Theaimistofosteracomprehensiveapproachtosocialprotection,withagreaterunderstandingofthedifferentiatedsocialprotectionneedsofthevariouspopulationgroups,whichwillimprovethedesignandcoordinationofthedifferententitlements,aswellasthemonitoringofprogrammesprovidedtomeetsuchdemands.Thisalsoavoidsduplicationinthedeliveryofsimilarentitlements,aswellasexpandingtheircoverage(ChirchirandBarca,2020).Answersarethereforeneededtothefollowingandotherquestions:Whoshouldbeconsideredforinclusioninsocialregistries?Howshouldregistriesbeconstructedtomakethemmoreuniversal?Whatinformationneedstobecollectedfromindividualsandhouseholds,andhowshoulditbecollected?Whichmechanismsexisttorectifyorcorrecttheinformation?FromwhichrecordsorStateadministrativedatabasesorprimaryinformationsurveyswilltherequireddatabeobtained?Howoftenwilltheinformationbeupdated?Allthesearecrucialitemsofinformationfordecision-makingontheimplementationofpublicsectorprogrammesandalsotoensurethattheinformationistransparentandcleartothepublic.

LatinAmericancountrieshavemadegreateffortstocollectinformationsystematicallyonindividualsandhouseholdsparticipatinginconditionalandunconditionalcashtransferprogrammes,sincethelate1990s,whentheseprogrammeswereintroducedintheregionasawaytocombatincomepoverty.Conditionalcashtransferprogrammesincreasedsignificantlyasfrom2000,providingtheimpetustoincorporatetargetinginstrumentstoallowtheseresourcestobeallocatedtothepooresthouseholds,minimizingerrorsofinclusionandexclusionofusersofthesocialprotectionsystemsthatwerebeginningtobestrengthened(Cecchiniandothers,2015).Toimplementthetargetinginstruments,dataneededtobecollectedonthepotentialusers(individualsandhouseholds)oftheconditionalandunconditionalcashtransferprogrammesthatformedthebasisofsocialprotectionsystems.Tothisend,thecompetentinstitutions,normallyministriesofplanning,socialdevelopmentorthepresidency,begantomakegreateffortstoregisterthepopulation,mobilizingsignificantmonetary,logisticalandhumanresources,routinelyusingmunicipalitiestocollectthisinformationthroughsurveys.

ECLAC Socialinformationsystemsandregistriesofrecipientsofnon-contributorysocial... 11

Thefirstgenerationofsocialregistrieswasconstructedbyconductingadhoccensusesormass