Sapienza, University of Rome

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1 Sapienza, University of Rome
SOCIAL SECURITY POLICIES AND MEASURES AGAINST POVERTY AND SOCIAL EXCLUSION IN ITALY 意大利对抗平困和社会排斥的社会保障政策和措施 Maurizio Franzini Sapienza, University of Rome 罗马一大 October 17, 2018 2018年10月17日

2 OUTLINE 提纲 Overview of social expenditures in Europe 总体介绍欧洲的社会支出情况
Focus on Italy’s pecularities 具体介绍意大利的特征 Definitions and measurement of poverty 贫困的定义和衡量 Poverty in Europe and in Italy: some data 欧洲和意大利的贫困情况 Policies to reduce poverty in Italy: weaknesses and recent developments 意大利扶贫政策：不足之处和近期进展 Conditions for successful anti-poverty measures 扶贫政策的成功条件

3 Expenditure on social protection benefits in EU 2015 (% relative to GDP) Source: Eurostat 欧盟2015年社保福利支出情况（对GDP百分比） 来源：欧盟统计局

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5 REMARKS 摘要 Total expenditure on social protection benefits in the EU-28 in was equivalent to 27.5 % of Gross Domestic Product (i.e billion euros) 2015年欧盟28国社保福利总支出相当于GDP的27.5%（即40.68亿欧元） There are considerable variations between EU Member States: 欧盟各成员国情况非常不同 High values: France 32%, Denmark and Finland around 31% 额度较高：法国32%、丹麦和芬兰约为31% Low values: Romania 14,3%; Latvia 14,6%; Lithuania 14,8%; 15,6% Ireland 额度较低：罗马尼亚14.3%、拉脱维亚14.6%、立陶宛14.8%、爱尔兰15.6% Italy is sligthly above the EU average 意大利稍低于欧盟平均水平

6 Expenditures on social protection benefits by function, European Union, 2015 Source: Eurostat 社保福利支出，按功能划分 欧盟，2015年 来源：欧盟统计局 Functions: 功能： Old age and survivors 老年和遗属 Sickness/ Health care 疾病/医疗 Disability 残疾 Family/children 家庭/儿童 Unemployment 失业 Housing and social exclusion 住房和社会排斥

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8 REMARKS 点评 The highest share of expenditure in the EU-28 is for old age and survivors (largely pensions): 45,5% 欧盟28国中，支出比例最高的为老年和遗属福利（绝大多数为养老）：45.5% Then comes the sickness/health care function (29,9%) 占下一位的是疾病/医疗福利（29.9%） The remaining four functions accounted for little shares: 其余四项福利所占比例较低： Family/children: 8.6 % 家庭/儿童：8.6% Disability: 7.3 % 残疾：7.3% Unemployment: 4.7 % 失业：4.7% Housing and social exclusion: 4.0 % 住房和社会排斥： 4.0 %

9 Please note 请注意 these are shares of total expenditures not of GDP 这些是占总支出的比例，并不是占GDP的比例 there can be problems in comparing expenditures across countries do to different classification methods 在比较各国支出时，使用不同的分类方法会产生问题

10 REMARKS II 点评 二 In 10 Member States more than half of their total expenditure was directed to the old age and survivors function: 在10个成员国中，占总支出一半以上的支出直接用于养老和遗属福利、 Greece (65.4 %); 希腊 Poland (59.9 %); 波兰 Italy and Portugal (both 58.3 %); 意大利和葡萄牙（同为58.3%） Romania (55.2 %), Cyprus (54.9 %), Malta (51.2 %), Austria (50.3 %), Latvia and Bulgaria (both 50.2 %). 罗马尼亚(55.2 %)、塞浦路斯 (54.9 %)、马耳他 (51.2 %)、奥地利(50.3 %)、拉脱维亚和保加利亚（同为50.2 %）。 Role of population ageing: Italy and Greece have the highest shares of people aged 65 years and over (around 22%). 人口老龄化的作用：意大利和希腊65岁以上老年人的比例最高（约为22%）。 In Italy, Portugal, Estonia and Greece housing and social exclusion account for less than 1.0 % 意大利、葡萄牙、爱沙尼亚和希腊住房和社会排斥功能比例低于1.0%。

11 Expenditure on means-tested social protection benefits, 2015 (% of total expenditure on social protection benefits) Source: Eurostat 2015年家计调查型社保福利支出 （占社保福利总支出的百分比） 来源：欧盟统计局

12 Ricorda che queste sono le quote sul GDP e non dicono quanto importanti sono le due modalità in relazione alla spesa sociale complessiva. Comunque anche in termini di quote della spesa Danimarca eccede tutti su means tested e poi segue irlanda e Olanda…quindi ordine non varia. Notare le differenze tra danimarca e svezia...

13 REMARKS 点评 In 2015, Means-tested benefits accounted for 11.0 % of expenditure on social protection benefits, most of which in housing and social exclusion 2015年，家计调查型福利占社保福利支出的11%，其中大部分为住房和社会排斥。 Highest shares in Denmark (36,4%) and Ireland (30,2%). In all the other countries values are much lower. 比例最高的国家为丹麦（36.4%）和爱尔兰（30.2%）。其他国家比例稍低。 In 13 countries the share was below 5% with the lowest in Latvia (1.1 %) and Estonia (0.5 %) 在13个国家，比例低于5%，其中最低的为拉脱维亚（1.1%）和爱沙尼亚（0.5%）。

14 Expenditure on social protection benefits in cash and in kind, European Union (% of total expenditure on social protection benefits) Source: Eurostat 欧盟现金福利和实物福利的支出 2015年（占社保福利总支出的百分比） 来源：欧盟统计局

15 Anche dui la graduatoria per quote di spesa non cambia molto rispetto a quella per quote di Pil.
In Kind diffusi in Svezia UK danimarca germania e finlandia, poco diffusi in Cipro Grecia polonia Italia e portogallo

16 REMARKS 点评 In % of the total expenditure on social protection benefits in the EU-28 was cash payments 2015年欧盟28国64.5%的社保福利支出为现金支付 Higher than average values in Cyprus (82,7%), Greece, Poland and Italy (in all of them more than 75%) 高于平均值的国家为塞浦路斯（82.7%），希腊、波兰和意大利（三个国家都高于75%） Lower than average values in the United Kingdom (58.3 %) and Sweden (52.9 %) – here in-kind benefits reached the highest share 低于平均值的国家为英国（58.3%）和瑞典（52.9%）—实物福利的比例最高

17 ITALY’S PECULIARITIES 意大利的特征
Total expenditures as a share of GDP: close to the EU average 总支出对GDP的比例：与欧盟平均水平接近 As to the composition: 构成方面 between 25 and 30% higher for old age/survivors and unemplyment; 25%-30%多的比例用于老年/遗属福利和失业补助 lower for all the other functions, with housing and social exclusion extremely low (less than ¼ of the EU average). 其他功能的福利支出比例较低，住房和社会排斥尤其低（低于欧盟平均水平的四分之一） Means-tested and in-kind benefits are below the average. 家计调查型福利和现金福利低于平均水平

18 POVERTY 贫困 等值收入以家庭收入和家庭规模（构成）的比率表示=>（收入相关）来源和（构成相关）需求的比率
Poverty requires to identify poor => a threshold has to be identified. 需要确定贫困状况=>贫困门槛 Poverty related to households’ resources and needs. 贫困与家庭的资源和需求有关 How to assess poverty over time? Static or dynamic poverty? Persistency, recurrence and transitoriness. 随着时间流去，怎样评定贫困？静态或动态平困？持续时间、再次发生和暂时性。 Poverty concepts: 贫困概念 Absolute 绝对 Relative 相对 Subjective 主观 Equivalised income expressed as the ratio between household income and household size (composition) => as the ratio between resources (related to income) and needs (related to composition). 等值收入以家庭收入和家庭规模（构成）的比率表示=>（收入相关）来源和（构成相关）需求的比率

19 THE DYNAMICS OF POVERTY 贫困的动态发展
Observing the evolution of poverty overtime –i.e. by using panel data – is crucial to assess the individual characteristics associated to different types of poverty and the more suited policy answer. 观察一段时期贫困的变化情况，例如使用固定数据样本，对评价不同贫困类型的特征非常重要，也更适合政策回应。 Poverty may be: 贫困可能是： Transitory: it happens only once in a life => due to rare shocks, e.g. unemployment 暂时的：一生只发生一次=>由于不常见的冲击，例如失业。 Recurrent: individuals can frequently move in and out of poverty, e.g. due to precarious jobs. 再次发生的：经常陷入贫困、脱离贫困，例如由于不稳定的工作。 Persistent: individuals are (almost) always poor, e.g. when they lack basic skills or have some serious problems (e.g. disability, lone mothers). 持续的：（大多数时间）永远处于贫困，如缺乏基本技能或由一些严重的问题（残疾、单亲母亲）。

20 ABSOLUTE POVERTY 绝对贫困 A basket of basic needs is identified => the threshold is the cost of such basket. 确定基本需求篮子=>贫困门槛是这个需求篮子的成本。 How to define such basket? 怎样确定去需求篮子？ Are they absolute or relative needs? 是绝对需求还是相对需求？ How do they change? Between countries and in the long term 需求怎样变化？国家间和长期角度。

21 ABSOLUTE POVERTY IN ITALY 意大利绝对贫困情况
Identified a basket of goods whose consumption is a basic requirement for a decent life. Basket based on food, housing and other goods (clothes, public services and transportation) 确定物品篮子，对这些物品的消费是体面生活的基本要求。篮子包括食品、住房和其他物品（衣物、公共服务和交通）。 Needs are the same in Italy, but their prices differ by areas. 意大利的需求相同，但是每个地区的物价有所不同。 Thresholds computed by Istat in 2005, depending on number and age of household components, geographical area, type of city => 342 poverty lines. 根据意大利国家统计局，2005年贫困门槛根据家庭成员的数量和年龄、地理区域和城市类型进行计算=> 342 个贫困线。 For instance the thresholds for a household with 2 adults and 2 minors are in the North, in the Centre, in the South. 例如，对于有2个成人和2个未成年人的家庭，北部地区的门槛是1.467，中部地区的门槛是1.303， 南部地区的门槛是1.136。 Based on surveys on consumptions. 基于对消费的调查。

22 RELATIVE POVERTY 相对贫困 Poverty is a social norm: individuals very far from the others are poor. The threshold is by definition a relative concept. 贫困是一个社会规范：远离其他人的个人为贫困人群。根据定义，门槛是一个相对概念。 As a main social norm is poor who is far from the others => if the GDP changes also the threshold has to change. 作为一个主要的社会规范，贫困那些是远离其他人的个人=>如果GDP变化，门槛也要变化。 Reference to living standards of the whole population => the threshold is identified according to some points of the income distribution, i.e. 60% of median income or 50% of mean income. 参考所有人口的生活标准=>门槛根据收入分配的一些点数确定，即收入中位数的60%或平均收入的50%。 Poverty does not change if income change in the same proportion. “income paradox” is possible. 如果收入以相同比例进行变化，则贫困也不会发生变化。“收入悖论”是可能的。

23 REMARKS 点评 How to make international comparisons of relative poverty?
怎样对相对贫困进行国际比较？ It is a sort of inequality index in the lower tail than a mere measure of material deprivation. 这是一种收入分配低端的不平等指数，而不仅仅是物资困乏。 Keeping constant the threshold to make comparisons overtime (especially during a crisis)? 保持相同门槛，来进行一段时间的比较吗（尤其是在危机时期）？ Note that absolute poverty does not necessarily mean extreme poverty and it is not necessarily lower than relative poverty (thresholds can be built on different logics). 注意相对贫困并不一定意味着深度贫困，也不一定比相对贫困要更低（门槛基于不同的逻辑）。 For instance, in Italy, because relative poverty has a single threshold and absolute poverty thresholds are specific by region and type of area in some cases absolute thresholds are higher than relative thresholds. 例如在意大利，由于相对贫困是一个单一门槛，而不同大区和不同类型的地区具有不同的绝对贫困门槛，因而一些情况下，绝对贫困门槛比相对贫困门槛更高。 Note that, when analysing policy changes (e.g. an increase in welfare transfers), the thresholds has to be changed too. 注意党分析政策变化时（如增加福利转移支付），门槛也应改变。

24 WHICH RELATIVE THRESHOLD? 哪个相对贫困？
在意大利，有2个相对贫困门槛： 意大利国家统计局：两名以上成员、总消费低于人均消费平均值为贫困家庭。家庭为衡量单位（门槛为等值），消费为福利的替代物。 欧盟统计局：可支配等值收入低于收入中位数的60%为贫困个人。个人为衡量单位，收入为福利的替代物。

25 SUBJECTIVE POVERTY 主观贫困
Based on income considered necessary by the household for meeting their ends (an indirect way for computing equivalence scales). 基于家庭认定的必要收入，以满足他们的需要（一个计算均等比的间接方法）。 Related to a concept of happiness/satisfaction => based on qualitative questions on “make ends meet” or on the comparison between the actual income and a subjective minimum “necessary” income. 与幸福度/满意度的概念有关=>基于“满足需求”的量化问题，或基于实际收入和主观的最低“必须”收入的比较。

26 WELLBEING INDICATORS FOR POVERTY 贫困的民生指标
Crucial choice of the wellbeing indicator, likewise for inequality, even if (also due to data availability) some suggest to use consumption rather than income, because consumption is less volatile and can be more easily observed, especially at the lowest tail of the distribution. 民生指标的重要选择与不平等指标相同，即便（由于数据可获得性）一些人建议使用消费而非收入指标，但由于消费的不稳定性更低、更易于追踪，尤其是在分配最低端的消费，（因而仍建议选择消费指标）。 Vulnerability concept as the risk of dropping in a poverty status in a dynamic sense. 弱势是陷入贫困状态风险的动态意义上的概念。 Monetary indicators: single indicator or a set of indicators to show the “at risk of poverty” (e.g. considering various shares of median income as the threshold). 货币指标：单一指标或一套指标，显示“贫困风险”（例如考虑收入中位数对贫困门槛的不同比例）。

27 MULTIDIMENSIONAL INDEXES FOR POVERTY 贫困的多维度指数
EC refers to the “At Risk of Poverty or Social Exclusion (AROPE)” index, an indicator of deprivation based on at least one of the following conditions: 欧盟委员会使用“面临贫困或社会排斥风险”指数，这是一个基于以下至少一个情况的贫困指标： relative poverty; 相对贫困 low (below 20%) work intensity in a household (based on total worked months of working age household members); 家庭较低的（低于20%）劳动强度（根据家庭劳动年龄成员人数的总工作月数） material deprivation rate - impossibility to afford at least 3 of the following: i) to pay rent, mortgage or utility bills; ii) to keep home adequately warm; iii) to face unexpected expenses; iv) to eat meat or proteins regularly; v) to go on holiday; vi) a television; vii) a washing machine; viii) a car; ix) a telephone. 物资匮乏率-无法承担以下至少3项：1）支付资金、偿还贷款或支付物业费；2）保持家里足够 温暖； 3）支付不可预见的费用； 4）定期得到肉食或蛋白质；5）度假；6）电视；7）洗衣机；8）汽 车；9）电话。 The UN refers to a multidimensional poverty index based on capabilities (education, health, living standard). 联合国使用基于能力的多维度贫困指数（教育、医疗、生活标准）。

28 Relative poverty before and after transfers, EU 欧盟转移支付之前和之后的相对贫困情况 Share of population with income less than 60% the median income 收入低于中位数60%人口的比例 Source: Eurostat 来源：欧盟统计局 Countries ordered according to the after-transfers value in 2016 国家排名按照2016年转移支付后的金额

29 2008-before 2008年之前 2016 –before 2016年之前 2016 -after 2016年之后 European Union- 27 (28) 欧盟-27（28）国 25,4 25,9 17,3 Euro area-15 (19) 欧元区-15（19国） 24,2 25,7 17,4 Czech Republic 捷克 20,0 16,3 9,7 Finland 芬兰 27,3 27,0 11,6 Denmark 丹麦 27,8 24,9 11,9 Netherlands 荷兰 19,9 22,1 12,7 Slovakia 斯洛伐克 18,4 France 法国 23,5 23,6 13,6 Slovenia 斯洛文尼亚 23,0 24,3 13,9 Austria 奥地利 26,3 14,1 Hungary 匈牙利 30,4 25,8 14,5 Belgium 比利时 15,5 United Kingdom 英国 28,9 28,1 15,9 Cyprus 塞浦路斯 22,9 25,0 16,1

30 2008-before 2008年之前 2016 -before 2016年之前 2016 –after 2016年之后 Sweden 瑞典 30,0 29,9 16,2 Germany 德国 24,2 25,3 16,5 Luxembourg 卢森堡 23,6 27,1 Malta 马耳他 22,9 23,8 Ireland 爱尔兰 34,0 34,7 16,6 Poland 波兰 25,1 17,3 Portugal 葡萄牙 24,9 25,0 19,0 Croatia 克罗地亚 : 27,3 19,5 Italy 意大利 23,5 26,2 20,6 Greece 希腊 23,3 25,2 21,2 Estonia 爱沙尼亚 24,7 28,9 21,7 Latvia 拉脱维亚 30,2 27,8 21,8 Lithuania 立陶宛 27,4 27,9 21,9 Spain 西班牙 25,7 29,5 22,3 Bulgaria 保加利亚 Romania 罗马尼亚 30,8

31 Poverty reduction: the effectiveness of transfers
Poverty reduction: the effectiveness of transfers. 减贫：转移支付的有效性 % reduction in poverty after transfers 转移支付候贫困降低百分比

32 Country 国家 % reduction 降低率 European Union- 28 欧盟28国 33,2% Euro area-19 欧元区19国 32,3% Romania 罗马尼亚 14,2% Greece 希腊 15,9% Bulgaria 保加利亚 17,9% Italy 意大利 21,4% Lithuania 立陶宛 21,5% Latvia 拉脱维亚 21,6% Portugal 葡萄牙 24,0% Spain 西班牙 24,4% Poland 波兰 24,5% Estonia 爱沙尼亚 24,9% Croatia 克罗地亚 28,6% Malta 马耳他 30,7% Slovakia 斯洛伐克 31,0% Country 国家 % reduction 降低率 Germany 德国 34,8% Cyprus 塞浦路斯 35,6% Luxembourg 卢森堡 39,1% Czech Republic 捷克 40,5% Belgium 比利时 41,1% France 法国 42,4% Netherlands 荷兰 42,5% Slovenia 斯洛伐克 42,8% United Kingdom 英国 43,4% Hungary 匈牙利 43,8% Sweden 瑞典 45,8% Austria 奥地利 46,4% Ireland 爱尔兰 52,2% Denmark 丹麦 Finland 芬兰 57,0%

33 People at risk of poverty or social exclusion (AROPE), 年面临贫困或社会排斥风险的人群 Source: Eurostat 来源：欧盟统计局

34 Country 国家 % of population 占人口百分比 EU (28 countries) 欧盟（28国） 23,5 Euro area (18 countries) 欧元区（18国） 23 Czech Republic 捷克 13,3 Finland 芬兰 16,6 Netherlands 荷兰 16,7 Denmark 丹麦 16,8 Austria 奥地利 18 Slovakia 斯洛伐克 18,1 France 法国 18,2 Sweden 瑞典 18,3 Slovenia 斯洛文尼亚 18,4 Germany 德国 19,7 Luxembourg 卢森堡 19,8 Malta 马耳他 20,1 Belgium 比利时 20,7 Country 国家 % of population 占人口百分比 Poland 波兰 21,9 United Kingdom 英国 22,2 Ireland 爱尔兰 24,2 Estonia 爱沙尼亚 24,4 Portugal 葡萄牙 25,1 Hungary 匈牙利 26,3 Cyprus 塞浦路斯 27,7 Spain 西班牙 27,9 Croatia 克罗地亚 Latvia 拉脱维亚 28,5 Italy 意大利 30 Lithuania 立陶宛 30,1 Greece 希腊 35,6 Romania 罗马尼亚 38,8 Bulgaria 保加利亚 40,4

35 Absolute poverty in Italy 意大利绝对贫困情况 Source: Istat 来源：欧盟统计局

36 Absolute poverty in Italy 意大利绝对贫困情况 (and in its three geographical macro-areas) （三个地理区域）

37 Absolute poverty in Italy, details 意大利绝对贫困的详细情况
Gender 性别 2016 2017 Males 男性 7,8 8,8 Females 女性 7,9 8 Age 年龄 2016 2017 < 17 12,5 12,1 18-34 10 10,4 35-64 7,3 8,1 >65 3,8 4,6

38 Absolute poverty in Italy, details/2 意大利绝对贫困的详细情况（二）
No. minor children in Household 家庭未成年女子人数 2016 2017 1 7,2 9,5 2 10 9,7 3 or more 三个以上 26,8 20,9 Status of head of household 家庭支柱成员情况 2016 2017 Employed 就业 6,4 6,1 Unemployed in search of occupation 失业、寻找工作 23,2 26,7

39 Absolute poverty in Italy, details/3 意大利绝对贫困的详细情况（三）
Presence of foreigners in household 家庭存在外国移民 2016 2017 Italians only 只有意大利人 4,4 5,1 Both Italians and foreigners 同时存在意大利人和外国移民 27,4 16,4 Foreigners only 只有外国移民 25,7 29,2

40 REMARKS 点评 The main features of absolute poverty in Italy are:
意大利绝对贫困的主要特征是： Its incidence is quite high (1,8 million families, 8,4 million people – the highest since 2005) 发生率非常高（180万户家庭、840万人，2015年以来最高） Huge differences across geographical areas 各地理区域的情况显著不同 High incidence of minor poverty 未成年人绝对贫困发生率高 High share of poor among unemployed but significant also among employed (working poor) 失业人口发生绝对贫苦的比例比较高，但就业人员的绝对贫困发生率也很高（穷 忙族） Very high incidence among household with foreign members 有外国移民的家庭贫困发生率非常高

41 POLICIES AGAINST POVERTY IN ITALY 意大利反贫政策
A “universal” measure against poverty missing for a very long time in Italy (there are few other cases in Europe) 意大利长期缺乏一个“普遍的”反对贫困措施（欧洲少数其他国家也存在这种情况） In EU minimum income schemes have been adopted, sometimes since a long time, in Belgium, Denmark, France, Germany, Ireland….. 欧盟采用最低收入制度已经有一段时间，比利时、丹麦、法国、德国、爱尔兰。。。 This implies that there was no “minimum income scheme” – i.e. income targeted to low-income people below a given threshold for whatever reason 这说明并没有“最低收入制度”，即针对无论出于什么原因低于门槛的低收入人口的收入 Minimum income schemes are different from Basic income schemes. 最低收入制度不同于基本上收入制度 Therefore poverty and social exclusion fought mainly with other instruments which in many circumstances are not effective 因此主要通过其他措施反对贫困和社会排斥，而在很多情况下，都不是很有效。 The situation changed recently first with the introduction of SIA but more significanty in September 2017 when REI (Reddito di inclusione) a sort of minimum income scheme was introduced 这个情况最近有所改变，尤其是2017年9月推出包容性收入计划后，开始使用一种最低收入制度。 The debate on the need for a last resort social safety net in Italy started in In January 2018, the implementation of a minimum income scheme – called Reddito di Inclusione (Inclusion Income, REI) – has eventually started throughout the national territory. As anticipated by the ESPN Flash Report 2016/60 (Jessoula 2016), REI constitutes the last step in a long reform process which opened with the “New Social Card” pilot scheme introduced in 2012 (later re-named Support for active inclusion - SIA), followed by the launch of a national anti-poverty strategy with the 2016 Stability Law introducing a national “Fund to fight poverty and social exclusion”. In September 2017, Decree No 147/2017 implemented the operational principles established by Law No 33/2017 to combat poverty and social exclusion through the nation-wide programme REI. REI is a means-tested monetary benefit based on household ISEE (Indicator of equivalised economic conditions, which takes into account both income and wealth). It is conditional on signing a “social contract” aimed at promoting active inclusion through individualised plans and service provision. To avoid cross-regional variations, this benefit constitutes one of the so-called “minimum levels of assistance” (Livelli essenziali delle prestazioni) envisaged by Laws No 328/2000 and 3/2001.

42 REI: MAIN FEATURES 包容性收入计划：主要特征
General characteristics 一般特征 Combines income support with activation policies 结合收入支持和促进劳动政策 Eligibility on the basis of 受益资格的基础是 citizenship and residence requirements 公民身份和居留方面的要求 economic requirements 经济情况方面的要求 family requirements (initially, no longer now) 家庭情况方面的要求（一开始需要，现在不再需要） The income benefit ranges between 2.250,00 and around 6.500,00 euros per year per household 收入津贴为每个家庭每年2250欧元到6500欧元左右之间。 The economic benefit is paid monthly on a credit card that cannot be used freely but according to specified rules 经济福利每月支付到一张信用卡中，不能自由使用，需按照一定规定使用。 REI is paid according to tight means testing conditions. In order to be eligible, a household must have an ISEE of maximum €6,000 and an equivalised income of maximum €3,000 in the ISEE computation. Furthermore, housing wealth (excluding the primary residence) and financial wealth cannot exceed €20,000 and €10,000 respectively, and households are not eligible for REI when a member receives an unemployment benefit or has bought a car/motorbike in the 24 months before application. In 2018, the monthly REI amount is: €187.5 for a single member household; €294.5 for a 2-member household; €382.5 for a 3-member household; €461.5 for a 4-member household; € for a 5-member household and for larger households. In all cases, the REI benefit cannot exceed the monthly ceiling of the old age social allowance increased by 10% (€6, in 2018). Only 50% of the REI amount can be received as cash: the remaining part has to be used to purchase items in a set of fixed shops through an ad hoc credit card (e.g., supermarkets, pharmacies, etc.). Importantly, REI duration is limited: the benefit is paid for 18 months then, after suspension of 6 months, it can be received for maximum 12 more months. Originally, REI was targeted at households with at least one of the following requisites: i) one child less than 18 years old; ii) a disabled child; iii) a pregnant woman; and iv) an unemployed member aged 55 or above. The Stability Law of 2018 eliminates, starting from July 2018, these eligibility requirements, thus overcoming the categorical approach that has long characterised, as well as undermined, the Italian system of social assistance. Also, the 2018 Stability Law slightly increases the resources allocated to the “Fund to fight poverty and social exclusion”, endowed with €2,059 billion in 2018, €2,545 in 2019, and €2,745 each year from % of this fund is targeted to finance the social services connected to REI. Nevertheless, critical remarks have also been made by experts. Criticism has mostly focussed on the presence of strict budgetary constraints that do not allow protecting the whole population living in absolute poverty, the limited generosity (in terms of both means testing conditions and benefit amount) and strong conditionality. More precisely, the allocated budget is modest, much less than the €7 billion which experts and the “Alliance Against Poverty” estimate as necessary for the establishment of a nation-wide minimum income scheme targeted at all the 4.75 million individuals in absolute poverty (Saraceno 2017). Official figures by the government indicate that coverage of the REI is limited to only 1.8 million individuals. Moreover, the cash benefit amount is not generous both in a comparative perspective and in terms of national living standards (Granaglia 2018): for instance, a 3-member household living in Central Italy will receive maximum €382.5/month while the absolute poverty threshold computed by the Italian national statistical institute (ISTAT) is around €1,200/1,400 depending on members’ age. Finally, the presence of strict duration limits, the constraints on beneficiaries’ discretion in the usages of the monetary component as well as the existence of a pervasive sanctioning system has led experts to question the ability of the REI to actually “empower” poor individuals.

43 REI: FIRST RESULTS 包容性收入计划：初步结果
Between January and June people got the benefit, 70% of the in the South of Italy 2018年1月至6月共84万人受益，70%来自意大利南部。 Other people still benefit of the old SIA. This makes for around 1 million people receiving economic support, much less than people living in absolute poverty 其他17.7万人仍旧为老SIA计划的受益人。老SIA计划使得约100万人受到经济支持，但比陷入绝对贫困的人数要少得多。 The average benefit with REI has been slightly above 308 euros per month 包容性收入计划的平均福利为每月308欧元。

44 THORNY ISSUES (among others…) 棘手的问题（除了别的之外。。。）
Financial resources (only 2 billion for REI in 2018) 资金来源（包容性收入计划2018年只有20亿欧元）。 The “take-up” problem “占有”问题 。 The design of eligibility criteria 受益资格条件的设定。 How to balance income support, activation and work incentives 怎样平衡收入支持、促进劳动、工作激励。 How to make the Public Employment Service and the coordination between central and local bodies more effective 怎样使公共就业服务以及中央-地方机构间的协调更加有效。

45 THE ROAD AHEAD 未来的路 The new government announced the introduction of what they call “ basic income” but actually is a “minimum income scheme” with some features in common with REI but also with some differences, including a much greater generosity 新政府宣布推出他们所称的“基本收入”，但这实际上是一种“最低收入制度”，其某些特征与包容性收入计划相同，但两者又有所差别，如发放额度更低。 But success (mainly in terms of lasting poverty reduction) will depend also on how all the thorny issues will be tackled… 但是成功与否（主要是持续减贫方面）也将取决于怎样解决这些棘手的问题。。。。 … details matter. 其他一些细节也很重要。

46 Thank you! 感谢！