TO CONDITION OR NOT TO CONDITION? 59 There are two broad questions to ask in considering and designing a CCT.
First, what are the priority problems that the program should target? For example, is there an urgent need to provide basic subsistence to ensure sur- vival or protect against destitution? This may be the case among families the hardest hit by AIDS. If so, an unconditional transfer, of cash or food, is the most appropriate response. Or is the main objective to increase investment in children’s health or education? For girls, boys, or both, and at which ages? Are there particular micronutrient deficiencies to target? Second, what is the reason for low levels of participation in health ser-
vices or school enrollment or for nutritional deficiencies? Is it people’s lack of knowledge about prenatal healthcare or girls’ education or an under- valuing of these? Is it lack of access to nearby facilities? Or is it an issue of cost: the cost of transportation to the clinic, the cost of school fees, or the opportunity cost of child labor? Is child labor even a problem in the region? In Turkey, Adato et al. (2007) found that although cost was a major constraint to children’s schooling and thus a cash transfer responded to the problem, in some regions, other concerns were as important to schooling decisions or more so: inadequate supply of nearby schools, inadequate transportation, unsafe schools, lack of perceived value of education (as opposed to the value of work for boys or the value of marriage for girls), and other gender issues revolving around sexuality and threats to family reputation and honor. With respect to conditioning in the context of AIDS, other questions should be asked: Does HIV and AIDS affect families’ behavior in particular ways so that the conditions may not work or may deny benefits to those who most need them? Are children in households with ill parents affected in particular ways? Is this related to care responsibilities, stigma, or emotional or psychological problems? What are the main influences on adolescent behavior and choices? Do fostering families discriminate against orphans? Conditioning is a concept used to create incentives for change; the object of that change and ways to achieve it will vary widely from one context or another. Conditions, if used at all, should be developed flexibly and creatively to achieve carefully thought- through objectives.
Does Conditionality Matter in Terms of Human Capital Impacts? Once the nature of the problems to be tackled, their underlying causes, and program objectives are defined, the next issue to face is whether conditional- ity is necessary to achieve these objectives. What difference does it make? There is no reason to expect that UCTs would necessarily be less effective than CCTs with respect to short-term poverty reduction. There is more reason to believe that they might be less effective in increasing school enrollment
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