1. Introduction
The 2023 World Social Report identified the irreversible global trend of population ageing and Sub-Saharan Africa is among the regions that are expected to experience the fastest growth in the number of older people over the next three decades (The UN Department of Economic and Social Affairs). According to this Report, “ageing societies may face fiscal challenges due to rising healthcare, long-term care, retirement and other old-age support costs, combined with a potential reduction in Government revenue from fewer working-age taxpayers” (Ibid). This policy brief explores the current social protection landscape in Ethiopia, identifies gaps in service provision, and proposes actionable recommendations to build a more inclusive and resilient system for older persons.
2. Background
According to United Nations Population Fund (UNFPA) Country Summary Report of Ethiopia 2022, Ethiopia has the largest population in East and Southern Africa, with a total projected population of almost 115 million in 2020. Of this, approximately 5.3 per cent or around 6.1 million people are over the age of 60 years.
The 1993 National Population Policy of Ethiopia, which stated that older persons constitute 5% of the total population, considered them as dependency burden. The same policy, on the other hand, recognized their potential to contribute to the economy, but failed to provide adequate protection for their labor rights. Although Ethiopia has taken commendable steps to ensure the labor rights of older persons by ratifying the Protocol to the African Charter on Human and Peoples’ Rights on the Rights of Older Persons in Africa in June 2020, it has not yet taken meaningful measures, such as enactment of national laws, and/or change in policies and practices to ensure the employability of older persons. This situation exacerbates the challenges that many older persons face like, not having a stable income to meet their daily needs, such as putting adequate food on the table, access to health services and decent shelter.
Both the Public Servant and Private Employees’ Pension Proclamations in Ethiopia are based on the contributory pension system. According to studies conducted by HelpAge International (2019) and the International Labor Organization (ILO) (2020-2022), the pension system in Ethiopia has a limited scope, with only a small percentage of the population above the statutory retirement age of 60 receiving old-age pension. Specifically, HelpAge International (2019, the recent data EHRC could find as there are no more recent studies and disaggregated data in this aspect) reported that in 2017/18, there were only 317,189 old-age pensioners in Ethiopia. This is approximately 7.4% of the 4.3 million estimated population of persons of 60 years and above, at the time. HelpAge International further reported that 90% of the total old-age pensioners were men. In other words, only 1 in 10 pensioners is female. This is a clear manifestation of the gender gap in the labour market of the country. In addition, practically most in-need older persons in Ethiopia are not covered by any social protection intervention (Ibid).
Although it was not included in the National Social Protection Policy adopted in November 2014, the Final Draft of the Policy had proposed to expand the coverage of Ethiopia’s pension system and introduce a non-contributory universal social pension for all men and women over the age of 70 years. As a result, the Policy failed to provide social protection coverage to the great majority of in-need older persons who do not have reliable income to lead a decent life. On the other hand, the National Social Protection Policy had envisaged the establishment of a social safety net system for the benefit of older persons with no care and support, and prioritized vulnerable older women, especially those with disabilities or who are displaced.
Establishing a social protection system that provides income security for older persons is crucial to ensure their well-being and dignity. It serves as a safety net against poverty, facilitates access to healthcare, and fosters social inclusion. However, in Ethiopia, not only is there a legal lacuna, but also a significant disparity between the existing legislation and actual implementation. Hence, the Ethiopian Human Rights Commission (EHRC) recommends the below policy options, strategies and approaches for the Government to consider for the full enjoyment of the rights of older persons.
3. Policy Options, Strategies and Approaches
- Legal and policy reform: The Ethiopian Government should prioritize strengthening legal protection through comprehensive legal and policy reform, as well as the adoption of relevant instruments, which in effect safeguard the rights and well-being of older persons in Ethiopia. Measures to be taken include:
- Ratifying the Protocol to the African Charter on Human and Peoples’ Rights on the Rights of Citizens to Social Protection and Social Security: The ratification of this Protocol not only signifies the Government’s commitment, but also guarantees a human rights-based approach to safeguarding its citizens’ social and economic rights. Moreover, as the ratification of the Protocol would require Ethiopia to review and align its existing social protection policies and programs based on the fundamental rights of older persons, it would enhance policy coherence and ensure a more comprehensive and effective approach to social protection.
- Amending the policy and enacting legislations that expand the coverage of the formal pension system: Due to policy gap, a significant number of older people remain uncovered by any kind of social protection schemes in Ethiopia. To address this, a prudent Government strategy would involve amending the policy and enacting legislation that formalizes the non-contributory pension scheme.
- Recognizing the employability rights of older persons: By acknowledging their skills, knowledge and experience, the Government can create gender sensitive and intergenerational opportunities for older persons to contribute meaningfully to the workforce and enhance the capabilities of the youth. This approach not only benefits older persons, but also enriches society by tapping into their valuable knowledge, experience and skills. Through mentorship, part-time employment and/or volunteer service, integrating older persons into the workforce ensures a more inclusive and sustainable development landscape.
- Promoting independent living by adopting and strengthening a holistic approach that combines institutional care with community-based support and home-based services: A holistic approach that integrates these elements is essential for comprehensive elder care. By adopting a holistic approach, it is possible to create a continuum of support that addresses diverse needs. Institutional care provides professional support, safety, and social interaction. Community-based support fosters social inclusion, promotes well-being, and prevents isolation. Meanwhile, home-based services allow older persons to age in familiar surroundings, maintaining autonomy. This synergy ensures a balanced, person-centered approach that respects dignity, choice, and quality of life for older persons.
- Recognizing and promoting gender mainstreaming and disability inclusion as a cross-cutting strategy: By integrating these principles into all levels of planning, policymaking, and implementation, the Government can ensure that the needs and perspectives of older women and older persons with disabilities are considered. Extending the principle of equality to all members of society will enable older women and older persons with disabilities to thrive and contribute meaningfully to their communities. This approach involves creating inclusive policies and programs that recognize their contributions and cater to their specific needs and aspirations. Hence, it also enhances the effectiveness of programs by addressing the specific challenges of older women and persons with disabilities and furthers the cause of equality and empowerment across various sectors.
4. Steps to be Followed in Adopting the Proposed Policy Options and Approaches
- Assessment and Analysis: Conduct a comprehensive assessment of existing legal and policy frameworks related to social protection to identify gaps, inconsistencies, and areas of improvement.
- Stakeholder Engagement: Engage with relevant stakeholders, including policymakers, legal experts, service providers, advocacy groups, but most importantly associations of older persons. Seek and consider their inputs on proposed reform.
- Monitoring and Follow-up of the Implementation: Establish mechanisms for regular monitoring and follow up of the effective implementation of legal and policy reform and make changes as necessary.
5. Conclusion
Older persons in Ethiopia encounter various challenges. Existing legislation and policies fail to address the social protection needs of older persons. The existing pension system does not provide adequate coverage, especially for women, resulting in many older persons having an unreliable income that meet their daily needs.
To address this situation, several actions must be taken, including ratification of relevant regional and international instruments; and legal and policy reform that establish a social protection system providing income security for older persons, thereby ensuring their well-being and dignity. By implementing these measures, the Ethiopian Government can effectively tackle the pressing issues affecting the country’s aging population, ensuring they live with dignity in their later years.
