INTRODUCTION
Mozambique has recently approved a strategy (the National Strategy for Basic Social
Security) and a regulation (Decree nr. 85/2009) that establishes the Regulation
for the Basic Social Security Subsystem. The latter, together with Law 4/2007 (the
Social Protection Law) and the Regulation for Obligatory Social Security, creates
the basis for a comprehensive model that can be seen as a step in the direction
of a social protection floor.
This legal framework creates an
inclusive juridical foundation,
establishing a
mix of funding mechanisms (both contributory and non-contributory) and offering
a set of potential benefits and mechanisms aligned with the definition of a social
protection floor. The Regulation for the Basic Social Security Subsystem is a step
forward, protecting key rights, establishing universalization as a goal, but also
noting that the expansion of social protection will be gradual in accordance with
government capacity.
Indeed, as a result of the approval of the new Regulation, Mozambique now has a
very comprehensive set of legal instruments. On one hand, the Social Protection
Law establishes three pillars of protection: non-contributory basic social security,
contributory or obligatory social security, and complementary private insurance.
On the other hand, the Regulation for the Basic Social Security Subsystem defines
four areas of intervention: direct social action (monetary and in-kind transfers),
health social action, education social action and productive social action. In addition,
the Regulation for Obligatory Social Security foresees the extension of the social
insurance mechanisms to the self-employed.
The three pillars of protection pro-
vide a diversified range of solutions
for the extension of social security
coverage and for the development of a
social protection
floor. Nevertheless, it is important to recognize that while being an important
step, the existence of a good legal framework is not a sufficient condition for
the successful implementation of a social protection floor.
This case study will focus on the most recent advances in the area of basic social
security that target the most vulnerable populations, establishing “a set of essential social rights and transfers” as specified in the definition of the Social Protection
Floor Initiative.
Regarding the policy level, the National Strategy for Basic Social Security (Estratégia
Nacional de Seguranca Social Básica, ENSSB) defines three objectives: (a) extending
the cover- age and impact of the programmes, (b) increasing the efficiency of the
system, and (c) assuring the coordination of dif- ferent programmes and services.
The strategy definition was steered by the Ministry of Women and Social Action (MMAS),
which will be responsible for implementing the strategy. Implementation will nonetheless
take place in strong coordination with other ministries as well as national and
international partners.
Different mechanisms for coordination
are in place. The Regulation creates the
National Council for Basic Social
Security, which will be led by the
Ministry of Women and Social Action and
involves the participation of ministers from other
sectors that will be associated with the
implementation of the strategy. At the
policy level, the Poverty Reduction
Strategy Paper (PRSP) Working Group on
Social Action played a significant
consultative role in defining the
strategy. It also constitutes the main
forum for policy discussion between the
Government and its national and
international cooperation partners. The
Government and partners see the Working
Group as an excellent space for the
definition of common strategies promoting the agenda on the expansion of basic social protection. A second working
group that supports the Food Subsidy Programme (Programa Subsídio de Alimentos,
PSA) focuses on developments at the operational level.
In the context of the social protection floor, it is important to highlight that
Mozambique has one of Africa’s oldest non-contributory schemes in the Food Subsidy
Programme (PSA). The PSA is a government programme that, since approximately 20
years ago, has been implemented by the National Institute of Social Action on a
national scale, making it the precedent for the current expansion of basic social
security benefits. More details about this programme will be pro- vided in a subsequent
section.
Although this progress represents important achievements for the sector, widespread
coverage remains a big challenge. The
manner in which the sector will face the
challenges brought on by the strategy in
the coming years will be very important
to the future of social protection in the country. Areas such as the efficiency
of programmes, the definition of priorities, and discussions concerning the funding
of the strategy and fiscal space will certainly be among the most important aspects
of the work that the Ministry of Women and Social Action will undertake in the near
future.