Strengthening local administration of social assistance in Russia

The challenge to improve is acute because the administration of the great majority of programs rests with agencies of local government. This study examines how amenable local program administration is to improved targeting and more progressive program administration in general. Presented is an analysis of the results of assessments of pilot programs implemented in two Russian cities in 2000-2001. The first introduced means testing in the school lunch program on a citywide basis; eligible families receive cash payments and all children pay the same price for their lunches in cash. The second is a new, local means-tested program that provides cash support to families while unemployed workers search for work; continued receipt of funds is conditional on a minimum job search effort. The study found that both programs were successfully implemented and that there was little resistance to the sharper targeting. However, a variety of problems with program administration were identified -- problems that need to be addressed if program integrity and credibility are to be maintained. A common problem is the lack of specific detailed documentation setting clear standards for program operations. Where the pilot municipalities had little prior experience, official regulations tended to be vague, leading, at best, to the development of vague procedures and, at worst, to no procedures at all or to ones that undermined program goals. However, even where official regulations were thorough, further elaboration in operational instructions was missing. Clearly, timing was a factor; had official regulations been issued sooner, implementors would have had a greater opportunity to develop further documentation. An even more important factor was the lack of previous experience in developing comprehensive program documentation and the general reliance on upper-level administrators to intervene in matters of policy and procedures, making the attitude of implementing personnel an even greater factor in determining program success. Conflict among implementing agencies, particularly when numerous agencies are involved in implementation, was also a common problem, as in implementation everywhere.