TARGETING FAMILIES AFFECTED BY HIV AND AIDS 49


Goudge et al. (2007) study, involving 280 households, found that among households eligible for the CSG, 57 percent of children in the poorest quintile were eligible for the CSG but not receiving it. The percentage not receiving the benefit declined steadily with each better-off quintile, so 39 percent were not receiving it in quintile 4, although this climbed to 48 percent in quintile 5. The CSG is not rationed in the sense that there are no caps (such as the


10 percent limit in Zambia), although the overall budget restrictions in effect create a cap.12 From 2000 to 2002 a primary caregiver was eligible for the CSG if she had children under age 7. This gradually increased to include chil- dren under age 18 by 2011 for a single caregiver earning R31,200 per year or less or for married caregivers earning R62,400 per year or less. The eligibility criteria have been subject to some criticism: that the poverty thresholds have not kept pace with inflation, resulting in exclusions (Budlender, Rosa, and Hall 2005, 8–9), and that the poverty line used may not be reasonable, especially because such a line is a complicated concept, that is, it does not take into account household size, discriminating against families with many dependents, including families fostering orphans. Finally, the cutoff age has historically excluded coverage of children at a vulnerable age. Earlier data found that for those who applied, only about half of 1 percent of applications were rejected, suggesting that the means test criteria are not prohibitive (Haarman 1998; Rosa, Leatt, and Hall 2005). Errors of exclusion have had more to do with gaps in take-up among eli- gible households, initially based on lack of knowledge about the grant, and with requirements related to documents and procedures. The earlier problem has been greatly reduced; now people generally know about the grant. The problems with the requirements remain, although increased uptake figures imply that people have been navigating the process more easily than at ear- lier stages of the program. The KwaZulu-Natal Income Dynamics Study of 2004 found that the main reason people do not apply for the grant is the difficulty of obtaining documents, including the cost, time, complications, and difficul- ties in accessing documents needed to obtain other documents (Woolard, Carter, and Agüero 2005; Hunter and Adato 2007b). For example, birth cer- tificates are required to access the CSG, but there are various reasons why births are not registered, exacerbated by an AIDS-related context of extreme poverty, maternal illness and death, and increased mobility of children (Giese and Smith 2007). A review of studies of birth registration in South Africa found


12Given the remaining gap in take-up for eligible households, this budget-related “cap” does not currently have that much significance. Where it previously had more effect was with respect to the age cutoff for eligible children.


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