A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste A Gender-Sensitive Insight of Poverty For any questions regarding this Copyright Statement work, please send a request The World Bank Office Dili Mapping for Timor Leste is a report, please contact: with complete information Avenida Marginal, Lecidere product of the staff of the The material in this publication to the Copyright Clearance Dili, Timor-Leste World Bank. The findings, Ririn Salwa Purnamasari is copyrighted. Copying and/ Center, Inc., 222 Rosewood T (670) 3312369 interpretations, and conclusions (rpurnamasari@worldbank.org) or transmitting portions or all Drive, Danvers, MA 01923, USA, W www.worldbank.org/tl expressed herein do not of this work without permission telephone 978-750- 8400, fax necessarily reflect the views of may be a violation of applicable 978-750-4470, http://www. the Board of Executive Directors Printed in March 2019 law. The International Bank copyright.com/. All other queries of the World Bank or the for Reconstruction and on rights and licenses, including Government they represent. The Development/ The World Bank subsidiary rights, should be World Bank does not guarantee Photo Credits: encourages dissemination addressed to the Office of the the accuracy of the data Cover: Josh Estey of its work and will normally Publisher, The World Bank, included in this work. The Page 1, 3, 4, and 6: World Bank grant permission to reproduce 1818 H Street NW, Washington, boundaries, colors, Page 6 and 17: shutterstock.com portions of the work promptly. DC 20433, USA, fax 202-522-2422, denominations, and other For permission to photocopy e-mail pubrights@ worldbank.org. The World Bank information shown on any map or reprint any part of this in this work do not imply any 1818 H Street NW Washington, judgment on the part of the DC 20433, USA World Bank concerning the T (202) 458-1876 legal status of any territory or F (202) 522-1557/1560 the endorsement or acceptance W www.worldbank.org of such boundaries. Foreword Poverty maps are powerful visual tools that enable disaggregation. This limits the Government’s ability to identify governments, civil society and development partners to better and target pockets of extreme poverty and gender disparity identify areas of poverty with greater accuracy. They also allow across the country below the district level. highly complex information to be presented in a visual format that is easy to understand. Poverty maps can also be used In addressing this gap, the World Bank, in close collaboration to display simultaneously the various outcomes of interest, with the General Directorate of Statistics Timor-Leste, has for example school enrolment, access to health, economic generated a new set of gender-disaggregated poverty statistics activities, etc. This allows us to not only use Poverty Maps to at the village (suco) level. The aim is for these Poverty Maps to identify the distribution of poor population, but also pinpoint help informing policymakers in designing and introducing more those places where development outcomes are lagging. socially inclusive and gender-sensitive policies and programs to eradicate poverty across the country in better targeted and While in recent years Timor-Leste has achieved impressive efficient ways. reductions of poverty, the progress was not experienced equally across the country. Moreover, concerns exist regarding With strong commitment and sound policies, the Government of gender gaps based on broader socioeconomic dimensions, Timor-Leste has great potential to bring its people a better and such as access to economic activities, education, health, and brighter future. We look forward to furthering our partnership power and agency. However, gender-disaggregated statistics with the Government of Timor-Leste and development partners are missing and the existing poverty estimates resulting from to jointly tackle the most challenging development issues that the 2014 Survey of Living Standards only provide district-level still face the people of Timor-Leste going forward. Sara Lobo Brites Elias dos Santos Ferreira Macmillan Anyanwu Vice Minister/Acting Minister Director General Country Representative Timor-Leste Ministry of Finance Timor-Leste General Directorate of Statistics World Bank Timor-Leste 2 A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 Acknowledgements “A Gender-Sensitive Insight of Poverty Mapping for Timor- The team acknowledges the leadership and support of Mr. Elias Leste” is the result of a collaborative work between the World dos Santos Ferreira (Director General, Timor-Leste General Bank and the General Directorate of Statistics (GDS) of Timor- Directorate of Statistics), with technical support from Mr. Silvino Leste and aims to support the efforts of the Timor-Leste Lopes (National Director, System and Reports, Timor-Leste Government to better understand the gender dimensions of General Directorate of Statistics) and Mr. Lourenco Soares results of household surveys and national poverty assessments (Chief of Department of Statistics Data Management, Timor- in Timor-Leste at a more granular level of detail. Leste General Directorate of Statistics). Crucial inputs were shared by Timor-Leste government agencies and development The Bank’s team was led by Ririn Salwa Purnamasari (Task Team partners participated in consultative meetings on the Leader), with vital support from Prof. John Gibson (the principal preliminary findings of the exercise. author of the technical report), Bagus Arya Wirapati, Mercoledi Nikman Nasiir, Peter Kjaer Milne, Imam Setiawan, and Astrid Financial support was gratefully received from the Umbrella Rengganis Savitri. Excellent comments to the draft technical and Facility for Gender Equality, a multi-donor trust fund dedicated policy reports were received from the peer reviewers, Kathleen G. to strengthening awareness, knowledge, and capacity for Beegle, Elizaveta Perova and Kenneth Simler. gender-informed policy-making. Sincere thanks to Helle Buchhave, Manohar Sharma and David Knight for their support Overall guidance was provided by Salman Zaidi (Practice in obtaining the funding. Manager, Poverty Global Practice, East Asia Pacific), Macmillan Anyanwu (Country Representative, Timor-Leste), and Rodrigo Chaves (Country Director, Indonesia and Timor-Leste). A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 3 Introduction Timor-Leste has made impressive progress over the past decade target pockets of extreme poverty and gender disparity across the in reducing national poverty levels. Geographically, however, country below the district level. this progress has been highly uneven across the country. In addition, concerns exist regarding gender gaps based on broader In addressing this gap, the World Bank, in close collaboration with socioeconomic dimensions, such as access to economic activities, the General Directorate of Statistics Timor-Leste, has generated education, health, and power and agency. a new set of gender-disaggregated poverty statistics at the village (suco) level. In so doing, a small-area estimation (SAE) approach In response, the Government of Timor-Leste has set a goal was employed to link the data of all households across the of eradicating extreme poverty by introducing more socially country available in the 2015 Population and Housing Census with inclusive and gender-sensitive policies and programs. However, the 2014 Survey of Living Standards and the 2016 Demographic the existing consumption-based poverty estimates resulting from and Health Survey. Complementing these exercises, some the 2014 Survey of Living Standards only provide district-level suco-level gender-disaggregated maps of indicators are directly disaggregation. This limits the Government’s ability to identify and created from the available variables in the 2015 Census. Population Distribution by Gender and Age Group Increasing Concerns on Gender Disparity MALE FEMALE Source: Timor-Leste Population and Housing Census 2015 4 A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 Methodology The SAE methodology is based on the Elbers, Lanjouw and The Population and Housing Census was conducted in 2015 and Lanjouw (2003)[1] approach, which has been widely tested and consisted of questions for individuals (some of which were age- validated around the world. and gender-specific) and households. The data on consumption expenditures come from the TLSLS, fielded in 2014/15. The Besides the ‘traditional’ poverty mapping approach, which survey is representative at district level and stratified by urban uses monetary measures of poverty, the analysis also employs and rural sector. Though the 2015 Census contains very limited the ‘non-traditional’ SAE techniques to spatially disaggregate variables on health, the 2014 TLSLS contains several. gender-related indicators from the 2014 Timor-Leste Survey of 1) Further details on the Elbers, Lanjouw and Lanjouw (ELL) methodology can be Living Standards (TLSLS) and from the 2016 Demographic and The 2016 DHS contains information relating to aspects of power found in the Timor-Leste Poverty Mapping Health Survey (DHS). and agency, which are important gender indicators that can Technical Report: Developing Timor-Leste Gender-Disaggregated Poverty Small Area usefully be disaggregated using the SAE approach. Estimates (available upon request from the World Bank Office, Dili) Poverty Headcount Ratio Share of Workers by Gender Beyond the POVERTY HEADCOUNT RATIO NATIONAL POVERTY HEADCOUNT FEMALE MALE TIMOR-LESTE Traditional Poverty Mapping Approach Source: Timor-Leste Surveys of Living Standards (TLSLS) 2014 Source: Timor-Leste Labor Force Survey (TL LFS) 2013 A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 5 Key Findings The suco-level poverty maps confirm an already known pattern On spatially disaggregated individual-level gender indicators, that poverty headcount rates are much higher in western areas two key patterns are revealed. First, it is in poorer areas of of Timor-Leste than in eastern areas. The maps also reveal Timor-Leste where there is more education-related female new findings that were not previously known, namely that disadvantage, and where there are higher levels of abuse and there is far more variation in poverty rates within districts than domestic violence against women. Second, there is an inverse between districts. pattern between gender-related labor force gaps and poverty rates. Uneven Progress in Reducing Poverty and Gender Disparity 6 A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 Poverty Headcount Rate POVERTY Poverty Headcount Rate 0.08 - 0.22 0.23 - 0.35 0.36 - 0.45 0.46 - 0.56 “Poverty maps 0.57 - 0.80 Suco provide more Municipality finely-grained information on suco-level Number of Poor Population DILI variation in poverty than was previously Number of Poor available.” 9 - 859 860 - 1751 1752 - 3792 3793 - 8123 8124 - 17143 Knowing the poverty headcount rate at the district level, as already A dense belt with high numbers of poor per suco runs from Dili through provided by the survey, gives no insight regarding the poverty rates of Liquiçá and Ermera, and also along the western boundary of Ainaro. suco that are within a district. For example, while the Dili district-level poverty rate is only 29 percent, its suco-level poverty rates range from 8 to 80 percent. A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 7 Literacy Rate, Gap between Female and Male Population (15-40 years old) EDUCATION Gender Gap 15 to 40 p.p. 1 to 15 p.p. -1 to 1 p.p. “The lower -15 to -1 p.p. -40 to -15 p.p. gender gap seen negative value, in red, in literacy among indicates female disadvantage the younger generation shows Literacy Rate, Gap between Female and Male Population (15-24 years old) improvements in education Gender Gap outcomes.” 15 to 40 p.p. 1 to 15 p.p. -1 to 1 p.p. -15 to -1 p.p. -40 to -15 p.p. negative value, in red, indicates female disadvantage In Timor-Leste, the literacy rate for the population aged 15 to 40 years years old). The findings suggest that the gender disparity in the literacy old is relatively high. However, it is highly gender-unequal, where the rate is narrower among the younger generation, as younger cohorts of male population is more likely to be literate than the female population. the female population catch up with the male population, emphasizing This gender gap in the literacy rate, however, is much narrower if we improving education outcomes in Timor-Leste. restrict the age group in our analysis to the youth population (15 to 24 8 A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 School Enrollment, Gap between Female and Male Population (7-18 years old) EDUCATION “The female student-aged population is more likely to be enrolled in education.” Gender Gap 15 to 40 p.p. 1 to 15 p.p. -1 to 1 p.p. -15 to -1 p.p. -40 to -15 p.p. <-40 p.p. negative value, in red, indicates female disadvantage Consistent with the findings on literacy rates among youth, school enrollment among the school-aged population (7 to 18 years old) is also relatively high, at around 70 percent. In most suco, the female population is more likely to be enrolled in education than the male population. A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 9 Index of Gender Gaps in Education EDUCATION “Female disadvantages in education are more profound in poorer areas.” Education Gap 0.29 - 0.36 0.37 - 0.41 0.42 - 0.43 0.44 - 0.46 0.47 - 0.56 The prevalence of female disadvantage in the education index is higher The index of gender gaps in education is measured by the difference in in poorer areas, while it is lowest in and around Dili. the proportion of female-male household members who are illiterate or unschooled. The map presents the proportion of households with female disadvantage in education. 10 A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 Index of Gender Gaps in Health HEALTH “There is no clear correlation between poverty and the index of gender gaps in health.” Health Gap 0.40 - 0.46 0.47 - 0.49 0.50 - 0.51 0.52 - 0.54 0 25 50 75 100 0.55 - 0.58 Kilometers There is a higher proportion of the population living in households The index of gender gaps in health is measured by the difference with a female health disadvantage in Oecusse, and there are also between female-male household members in the number of days spent concentrations in Baucau and Viqueque. being ill in the past 30 days, or hospitalized in the past 12 months. The map presents the proportion of households with a female disadvantage in health. A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 11 Employment Rate, Gap between Female and Male Population EMPLOYMENT Gender Gap 1 to 15 p.p. -1 to 1 p.p. -15 to -1 p.p. “The female -40 to -15 p.p. <-40 p.p. population is less likely negative value, in red, indicates female disadvantage to look for a job.” Rate of Unemployed Population Looking for a Job, Gap between Female and Male Population Gender Gap (no data) >40 p.p. 15 to 40 p.p. 1 to 15 p.p. -1 to 1 p.p. -15 to -1 p.p. -40 to -15 p.p. <-40 p.p. negative value, in red, indicates female disadvantage The employment rate in Timor-Leste is highly gender-unequal across The female population is also less likely to look for a job, although areas, with the employment rate of the male population significantly there are some suco with more unemployed females than unemployed higher than that of the female population. males looking for a job. 12 A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 Index of Gender Gaps in Labor Force LABOR FORCE “Richer areas tend to have higher gender gaps in the labor force.” Labor Force Gap 0.37 - 0.43 0.44 - 0.47 0.48 - 0.50 0.51 - 0.55 0.56 - 0.64 The index shows an inverse pattern between gender disadvantage in The index of gender gaps in the labor force is constructed from the the labor market and poverty rates. In other words, the gender-related difference in the proportion of female-male household members, aged labor force gaps are bigger in suco where, on average, households are 10 and above, having no economic activity in the past week, and the richer and where poverty rates are lower. In contrast, in poor areas, number of hours of wage labor in the past seven days, across all jobs. gender disparity in the labor market is less apparent. The map presents the proportion of households with female disadvantage in the labor force. A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 13 Index of Female Decision-Making (DM) Autonomy in Household POWER AND AGENCY “Lower female decision-making autonomy is scattered across Headcount Rate for DM Index 0.32 - 0.43 inland areas.” 0.44 - 0.49 0.50 - 0.55 0.56 - 0.63 0 25 50 75 100 0.64 - 0.77 Kilometers The index is calculated based on whether the adult females who were The map presents the proportion of households with female married or living with a man at the time of the survey makes decisions disadvantage in decision-making autonomy. There are no apparent regarding her own health care, major purchases, and visits to her patterns between female decision-making autonomy with respect family and relatives. to poverty. 14 A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 Index of Prevalence of Domestic Violence (DV) Against Females POWER AND AGENCY “Prevalence of abuse and domestic violence Headcount Rate for DV Index is higher 0.07 - 0.28 0.29 - 0.43 in poorer areas.” 0.44 - 0.51 0 25 50 75 100 0.52 - 0.58 0.58 - 0.72 Kilometers The index was created from a smaller sample of women, selected from The western areas, and especially Oecusse, appear to have a higher among the adult females in the households in the 2016 DHS sample prevalence of domestic violence. This geographic pattern is similar to who answered (confidentially) a module on domestic violence, which the pattern of poverty headcount rates, which are also higher in the consists of experiences in physical abuse, limiting autonomy, verbal west. Thus, interventions designed to deal with partner abuse and threats and fear of the male partner. domestic violence may usefully be targeted at poorer areas. A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 15 Concluding Remarks The poverty maps offer new insights into existing knowledge of poverty in Timor-Leste, with more finely grained detail of poverty variations at the suco level. Beyond the traditional approach of SAE, the maps also highlight gender-disaggregated deprivation hotspots in dimensions such as access to education, health, economic opportunities, and power and agency. The gender-sensitive poverty maps provided by this work can help in informing the design of policies and programs targeting the suco level, and potentially improve resource allocation aimed at raising living standards and balancing the targeting of poor areas and poor people, while also closing gender gaps in these dimensions. A further use of the results is for future analytic studies that aim to explore some of the driving forces behind the spatial variation in poverty and gender disparity in Timor-Leste. Furthermore, the work provides a cost-effective way of adding value to existing census and survey data collections, and can serve as an effective substitute for fielding expensive new censuses or surveys. 16 A Gender-Sensitive Insight of Poverty Mapping for Timor-Leste | 2019 TIMOR-LESTE TIMOR-LESTE THE WORLD BANK OFFICE MINISTRY OF FINANCE GENERAL DIRECTORATE OF STATISTICS DILI Building #5, Palaco do Governo Rua de Caicoli, Apartado 10/PO Box 10 Avenida Marginal, Lecidere Dili, Timor-Leste Dili, Timor-Leste Dili, Timor-Leste Tel. +670 333 9646 Tel. +670 3311348 / +670 333 9527 Tel. +670 3312367 www.mof.gov.tl www.statistics.gov.tl https://www.worldbank.org/en/country/timor-leste