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The views expressed in this paper are the views of the authors and do not necessarily reflect the views or policies of the Asian Development Bank (ADB), or its Board of Governors, or the governments they represent. ADB does not guarantee the accuracy of the data included in this paper and accepts no responsibility for any consequence of their use. The countries listed in this paper do not imply any view on ADB's part as to sovereignty or independent status or necessarily conform to ADB's terminology.
Timeline of crises and responses Food and fuel crisis Financial crisis Findings from assessments of impacts
Food Crisis Financial Crisis
Conclusion
2008
2009-2010
2010-2011
2012 -?
New Inflation
Financial Crisis
Dzud
FNSWP P
SSSP
End HDF
Povert y Benefit
+30% inflation: highest in Asia Food = highest consumption item (70%) for poor Immediate impact: lower and less quality food consumption (particularly for women), postponing expenditures on education, health; limiting travel; substituting energy sources; moving in with relatives
Government Responses: food donations: limited impact, difficult to implement equitably, time lag Reliance on CSO not enough and not well distributed Price protection sets off other instabilities Request for Food Stamp Program from ADB
Government budget received 40% of its revenue from mining prior to the crisis Falling commodity prices had economy-wide impacts and severely impacted Government revenue Transmission channels:
Declining Exports, Imports, Tourism and Remittances; The Banking Crisis and the Consequences of the Credit Freeze Falling Government Revenue and Cross-the-Board Budget Cuts
The crisis highlighted the risks of linking social benefits to volatile commodity-based revenue
Copper prices fell by 60% from peak of $8,600/ton in 2008 to $3,500/ton in April 2009 State budget income decreased by 33 % (comparing1st Qrts 2008 to 2009) State budget deficit increased by 4 times
Social protection expenditures increased significantly from 7.0% of GDP in 2001 to 11 % in 2008 and 12% in 2009. Key SW expenditure: Child Money Program Universal benefit to all hh with children With the universalization of the CMP in 2006, the number of social welfare beneficiaries soared from 160,000 in 2004 to more than 1 million in 2006. The increases were not related to poverty incidence, but to the interplay of political pressures and the universal coverage of social cash transfers. The escalations in expenditures up to 2009 presented the challenge of cutting entitlements (the total cost of CMP was MNT 142 billion per year) to restore fiscal sustainability Key = Targeting and Consolidation
Food Crisis: Creation of the Food Stamp Program focusing on most vulnerable hh, PMT
10,000MNT/adult, 5,000/child
Financial Crisis: Program loan with JICA (100m) with conditions on targeting and consolidation of benefits; creation of medicard program; Education for the poor
Food Crisis
Quantitative food price increase impacts based on HSES data Qualitative recall of 2008 and 2010 increases
Mutton Beef Goat Horse Bread Rice Flour, highest grade Flour, grade 1 Flour, grade 2 Potato Cabbage Carrot Milk Yoghurt Dried curds Horse milk Curds
Source: HSES 2007/08 and 2009; units vary, e.g. kilogram for meats and litre for milk.
Quantity consumed
Dietary diversity
Quality of food
We cant always buy fresh meat, so sometimes well have to use some spare products like heart, liver, lung, or ground meat. (FGD, Bayanzurkh)
We buy our food in the soum shop. We rarely go to Ulaangom city, because the expenses are highThe transportation fee increased from 2500MNT to 3000MNT because of the petrol cost. (FGD, Uvs)
Shopping habits
PMT households: Minor changes on health seeking behaviour. Drastic cuts on their health expenditure especially in the short term Even in the medium term, health expenditure remains lower than before the shock.
Source: HSES 2007/08 and 2009
Drug dosage
Generic drugs
Informal treatment
Health consequences
School attendance is not affected by the food price hike For PMT eligible households, education expenditure remained constant before and
after the shock However, the most interesting finding here is that the receipt of assistance for educational expenses (mainly from relatives/friends) increased drastically with the shock for PMT eligible.
Percentage of children who received any assistance for educational expenses: PMT eligible
Indirect expenditure
He does not have any books to study because the books cost a lot of money. He does not do his homework at all. (Interview, Bayanzurkh) Yes, the food price rises affects education outcomes. When I worked as the teacher of primary school, there were kids who did not consume food for long periods as the parents were unemployed. If prices keep going up, then such parents will not be able to afford for any food for their children. For such kids, it will be really difficult to make an effort and concentrate on their studies. (Interview with
teacher, Uvs)
Education outcomes
Stress
Mutual support
themselves do not have extra things to offer others. So, people usually are not helping each other, just barely meeting their own needs. (FGD,
Bayanzurkh)
Shame
Isolation
I feel ashamed from other people, when I meet someone I know. I hardly ever meet my friends and classmates because I have nothing nice to wear. (FGD, Bayanzurkh) Our children are growing up thinking we dont have anything, so its affecting their future social statuswhen they see a rich child, they isolate themselves from him. (FGD, Songino Khairkhan)
We always take loans. The shop owners have a full bag of the human development money books in it. The frequency of loans is increasing this year in comparison with last year. Focus group discussion,
Uvs.
Asset sales
I do not have any jewels left because I lost all of them to pawn shops as a result of not paying back the money to them on time. (FGD, Bayanzurkh)
Urban areas largely
Rising prices
No change unemployment
in
Practice
Why? Transport price increases and mining revenues lead to inflation but not to employment creation
Poor households find it harder to cover essential expenditures but not to find
employment
Four rounds of qualitative: May 2009, September 2009, January 2010, November 2010 Transmission channels:
Labor market effects Price shocks Social changes
Increased unemployment, reduced salaries and intensified competition for jobs especially in the informal sector Bargaining power of employers increased (longer working hours, delays in wage payment and getting less than minimum wage or hiring for short probation periods and then terminated) discriminatory hiring practices (especially for women) became more prevalent based on age, gender and appearance Reductions in sales and profits of small businesses: reduced demand and depreciation of Mongolian currency; loss of access to credit; increased selling on credit Higher transport costs contributed to shift from wage labor to unpaid activities like gardening in urban areas Long term: even with labor market improvements migrants and low skilled workers continued to suffer from poor enforcement of labor contracts, low salaries and poor working conditions
Food price inflation was still high Fall in price of cashmere and livestock products with depreciation of national currency shifted terms of trade against herders Big impact because of loans at high interest rates based on projections for cashmere and meat Costs of schooling and university increased at the peak of the crisis Herder resilience strongly correlated to herd size (under 100 most affected) Long Term: Economic recovery accompanied by continued rise in consumer prices. Higher prices for cashmere and skins improved herder livelihoods. Impact of govt social transfers in HDF and education subsidies helped.
Changes in gender roles Women shift from non-income domestic work to income generating activities Increased self esteem and role in hh decision making Increase apathy, alcohol abuse and crime especially for youth Rise in domestic violence Long term: difficult to measure women continued in economic activities but other aspects not readily discussed
Reduced consumption Diversification of income sources Increased reliance on government assistance (HDF, food stamps, herder programs) Increased assistance from donors and NGOs Illegal gold ming as diversification strategy and safety net (women and children involved) Increased borrowing from financial institutions but worse loan conditions Increased rural-urban migration Reliance of family and community support Long term: improvements in livelihoods for all were observed in the 4th round of research. Those who had lost major assets (herders) and faced new vulnerabilities (migrants) could cover food expenses, but little more. Bank loans without collateral remained inaccesible
Both crisis reveal a number of economic and social vulnerabilities and weaknesses of social safety nets Longer term recovery in both cases for the poor is more than anticipated and often does not reach where they were before Women played a large part in building resilience of hh and negotiating strategies to adapt to crises Mongolia invested in creating social protection systems to better prepare for the future (PMT, initiation of targeted benefits, emergency warning system with social indicators) But. Looking forward Growth is back (17%), but so is increasing inequality These dynamics of vulnerability, resilience and responses to shocks have important implications for planning for inclusive growth, addressing inequality and preparing for future shocks