TRANSFORMING COUNTRY BRIEFING CASH TRANSFERS Beneficiary and community perspectives on the Palestinian National Cash Transfer Programme transformingcashtransfers.org Introduction transformingcashtransfers.org Our research aimed to explore the perceptions of cash transfer programme beneficiaries and implementers and other community members, in order to ensure their views are better reflected in policy and programming. Introduction transformingcashtransfers.org There is growing evidence internationally of positive links Key points: between social protection and poverty and vulnerability reduction. However, there has been limited recognition of the • De-developmental policies, recurring social inequalities that perpetuate poverty, such as gender insecurity and dependency on donor inequality, unequal citizenship status and displacement funding are among the key challenges through conflict, and the role social protection can play in in advancing social protection in the tackling these interlinked socio-political vulnerabilities. Occupied Palestinian Territories. • The Palestinian National Cash Transfer This country briefing synthesises qualitative research focusing Programme is an important but on beneficiary and community perceptions of the Palestinian limited component of female-headed National Cash Transfer Programme (PNCTP) in Gaza1 and households’ coping repertoires. West Bank2, as part of a broader research project in five countries (Kenya, Mozambique, OPT, Uganda and Yemen) by • Programme governance requires urgent the Overseas Development Institute (ODI) in partnership with improvement. Bolder efforts to reduce national research teams. The research was commissioned by inclusion and exclusion errors, invest in the UK Department for International Development (DFID) and human resource capacity and improve involved primary and secondary data collection and analysis. communication with beneficiaries could Given the particular vulnerabilities female-headed households help tackle the multidimensionality (FHH) - such as widows, divorced and separated women - face of poverty and vulnerability while in the OPT context, the research sample focused on FHHs also strengthening social cohesion and included beneficiary and non-beneficiary households and and state–citizen relations. refugees and non-refugees living in urban and peri-urban areas (Rafah and Beit Lahia in Gaza and Jenin and Hebron in West Bank). Country Briefing 1 transformingcashtransfers.org Country context The unique political, economic and socio- cultural context of the Occupied Palestinian Territories (OPT) presents opportunities as well as challenges for implementing social protection. The Palestinian Authority (PA) is strongly committed to a social protection agenda and a rights-based approach to human welfare, supported by on-going programme strengthening and lesson learning. However, key challenges remain: the long-drawn-out Israeli–Palestinian conflict and internal factional conflict between the two main Palestinian political parties; relentless restrictions on the movement of people and goods and the consequent strangled economy and dwindling job opportunities, especially in Gaza; limited coordination among the wide array of actors in social approach means extremely poor households protection and relief; and a dearth of in the programme are eligible for free health social accountability mechanisms. insurance, food assistance, educational fee waivers and lump sum disbursements The PNCTP, launched in 2010 in West from the MoSA Emergency Assistance Bank and in 2011 in Gaza, is the largest Programme. Cash transfers of between unconditional cash transfer programme 750–1,800 New Israeli Shekels (US$195– in the OPT targeting extremely poor 468) per quarter are paid to the household households. Representing approximately 1% head or designated representative (in case 3 of national gross domestic product (GDP) , it of incapacity due to illness or disability) is managed by the Ministry of Social Affairs and are intended for general household (MoSA) with substantial international funds. use. The cash amount is calculated so as to As a result of a 2009/10 merger of the Relief bridge 50% of the household poverty gap7,8. and Social Services Social Safety Net (funded by the TIM/PEGASE4 mechanism) and the Before the Intifada Social Safety Net Reform Project (funded by I used to go to work the World Bank), the programme underwent an important shift from categorical to at 5 o’clock in the poverty-based targeting and quickly achieved a substantial increase in coverage5 morning until 4 o’clock – from 55,000 to more than 95,000 in the afternoon. Our households6, with almost half (41,000) being female-headed. The PA and its development economic situation partners nonetheless acknowledge that became much better there remain around 125,000 extremely poor households in both West Bank and during my work in Gaza in need of assistance, with 15,000 Israel […] I felt good eligible households on a waiting list in Gaza. because I could feed Eligibility for the PNCTP is determined through a proxy means test formula my kids. Now, though, (PMTF) that measures different aspects life is so difficult. of consumption, while a joined-up policy 2 Country Briefing transformingcashtransfers.org Poverty, vulnerability and coping strategies Perceptions and nature of with deep-rooted conservative gender poverty and vulnerability perceptions, norms and expectations. Many are prevented by family and/or In Gaza, deliberate de-developmental community pressures from exercising their policies, including the imposition of rights to freedom of movement, choosing human-made barriers to mobility, recurring if and whom to marry, taking up paid violence, displacement, unemployment and work outside the home and exercising loss of assets, are key drivers of deepening their agency more broadly in terms of poverty, chronic humanitarian needs and making life choices for themselves and rising psychosocial ill-being. A staggering their children. Vulnerabilities linked to 40% of the population in Beit Lahia and 42% intra-household tension and violence, in Rafah live in extreme poverty9, while psychosocial ill-being and social isolation unemployment rates stand at 28.5% and were also a common theme among 33%, respectively. Statements like ‘Everyone female respondents in both sites. However, many were also quick to add that informal social support, both financial is poor here and in Palestine!’ and ‘You Coping strategies are closed up, there are no industries and in-kind, from relatives, neighbours and friends had decreased substantially in and no jobs’ were common, indicating The coping strategies that households widespread perceptions that poverty is recent years, and explicitly linked this to the and individuals in OPT are adopting general impoverishment of the population. prevalent and is a direct outcome of the are overwhelmingly negative. Distress on-going blockade. Humiliation and loss of strategies such as poor food consumption, Many households stretch their limited dignity were also widely associated with indebtedness, selling personal belongings, resources to ensure sons and, in particular, these processes, together with feelings of withdrawal of children from school, child daughters, are able to go to university. frustration and desperation, which were labour and marrying daughters off early Investing in the higher education of often palpable during fieldwork discussions. are widespread. Taking on paid work to girls appears to be expanding among supplement the family income is less In the West Bank, while not as high as in Palestinian families, including those in common – because of both the scarcity of Gaza, poverty levels are still significant - in lower socioeconomic quintiles, and is a employment opportunities and strong social Jenin 24.8% and in Hebron 32.5% - and have positive strategy. However, structural and norms preventing women’s involvement risen significantly since the Second Intifada, social constraints continue to limit the in the labour force. For those who do which began in late 2000. Unemployment opportunities for girls and young women find employment, it is universally in the stands at 22%, and multiple respondents to translate these gains in education informal sector, poorly paid, and is viewed highlighted this as a key driver of poverty. capital into labour market participation. very much as a strategy of last resort. ‘Before the Intifada I used to go to work In the face of rising psychological ill- Many respondents, FHHs in particular, also at 5 o’clock in the morning until 4 o’clock being and poverty, men and women seek relief and social assistance from formal in the afternoon. Our economic situation adopt divergent coping strategies. Drug providers (including local and international became much better during my work addiction as a way to cope with feelings of non-governmental organisations (I/ in Israel […] I felt good because I could powerlessness and frustration is a worrying NGOs), Islamic organisations, the UN feed my kids. Now, though, life is so phenomenon on the rise among young and Relief and Works Agency (UNRWA) and adult men in Gaza, and to a significant but difficult’ (female beneficiary, 65, Jenin) MoSA) and informal providers (such as lesser degree in the West Bank. Engagement In both Gaza and West Bank, households nuclear and extended family members, in risky livelihood strategies, such as rubble where the head is unemployed, which have who typically provide gifts, food and collection