Established in 2008, the Vision Umurenge Programme (VUP) is Rwanda's flagship social protection programme, designed to accelerate socio-economic transformation and reduce extreme poverty. Aligned with the National Strategy for Transformation (NST 1), the VUP's implementation pivots around three major components: (i) the Safety Net Component (which includes the “Direct Support” cash transfers, the “classic” and “expanded” public works programmes, and the early childhood development intervention), (ii) the Livelihoods Development Component, and (iii) the Sensitisation and Community Mobilisation Component.
The Sustainable Livelihoods Enhancement Scheme (SLES) is the Livelihoods Development Component, functioning as the graduation or enhancement layer of the VUP. It targets extremely poor households already enrolled in the Safety Net component who are assessed as having the potential to move out of poverty. This potential is defined as being a "labour endowed household" (i.e., containing individuals aged 18-64 who are able to work) but currently lacking the opportunities or assets to sustain a livelihood. The assessment process, often conducted by para-social workers during home visits, considers several key variables to determine this capacity, including the education level of the household head, less caring responsibilities, access to land and basic tools, and the household's proximity to the poverty line.
The SLES provides a holistic and sequenced package to address the multi-dimensional constraints of poverty, recognising that a single intervention (like cash alone) is insufficient to address the multiple constraints that keep households in poverty. The package includes two main interventions:
- The Skills Development Scheme, which typically lasts 6 to 12 months and covers all fees and materials, is delivered via group sessions, vocational centres, and linkages with private/CSO providers. It seeks to build human capital through three main categories of support:
- Agricultural and livestock training (including financial literacy) for asset recipients
- Off-farm or agro-processing training for those starting micro-enterprises like tailoring, carpentry, or others
- Off-farm training for employment seekers
- The Productive Asset Transfer Scheme, which is designed to enhance livelihoods, accelerate sustainable graduation from poverty, and provide a coping mechanism against shocks using different categories of assets:
- Small livestock (e.g. goats, sheep, or pigs)
- Agricultural inputs (e.g. seeds, fertilisers, or farm equipment)
- Agricultural processing equipment
- Small equipment for off-farm micro-enterprises (like masonry)
These interventions are underpinned by a robust case management framework relying on Para-Social Workers (PSWs). PSWs provide one-to-one and small-group support, coaching, household progress monitoring, and referrals to complementary services. They also develop "graduation plans" with households, defining a pathway to "sustainable graduation," a state where the household can sustain itself "without the need for social transfers". The SLES explicitly prioritises vulnerable subgroups—including female-headed households, youth (18–30), and persons with disabilities—for asset transfers and vocational training. Furthermore, SLES integrates financial inclusion, climate change adaptation, and behaviour change communication to address social norms that hinder productive capacity.
The definitive measure for assessing graduation is household consumption, with a "Resilience Line" set at 50% above the poverty line to indicate sustainability. In addition to this primary measure, the programme uses a system of ongoing monitoring conducted by PSWs. During regular household visits, PSWs utilize a set of proxy indicators to track progress toward graduation. These indicators, reported by PSWs every six months, include the number of meals consumed per day, school enrolment and attendance, household enrolment in the Community Based Health Insurance (CBHI, also known as Mutuelle de Santé), involvement in savings schemes like Ejo Heza (a voluntary, defined-contribution long-term savings scheme that extends pension and social insurance coverage to the informal sector), access to productive assets, and engagement in Income Generating Activities (IGAs).
The programme maintains nationwide coverage across both urban and rural areas. In 2023, it supported an active caseload of 141,539 direct participants, extending to a total reach of 636,926 direct and indirect beneficiaries (defined as individuals who live in a household where at least one member receives the transfer). This total reach represents approximately 4.73% of the national population and 12.39% of all individuals living below the national poverty line. Cumulatively, the scheme has served 447,247 direct participants since its inception in 2017.
Financing is primarily provided by the World Bank’s International Development Association (IDA) under the Social Protection Transformation Project (SPTP). While the project allocates a total loan of USD 100 million to strengthen the broader Vision Umurenge Programme (VUP), USD 19.29 million is specifically dedicated to Component 2: Support to Economic Inclusion.
International partners are critical for financing, technical assistance, and implementation. The World Bank serves as the primary financial partner, while major NGOs like BRAC assist with policy design. For frontline delivery, the government partners with international service providers (such as World Vision and Care International) to implement interventions including livelihood training and coaching.
At the national level, the Ministry of Local Government (MINALOC) sets the overarching social protection policies. The Local Administrative Entities Development Agency (LODA) acts as the lead coordinating body responsible for programme oversight, funds mobilisation, national planning, M&E, and disseminating operational guidelines to local entities. Implementation is highly decentralised, with Districts serving as the primary authority for local planning, budgeting, and asset procurement. This structure extends to the frontline, where Sectors, Cells, and Villages manage the detailed selection of beneficiaries, ensure gender balance, and conduct local monitoring of asset productivity.
The governance model formally integrates local communities and CSOs into programme delivery. A cadre of PSWs functions as frontline case managers, providing proximity advisory services and linking beneficiaries to complementary services. Additionally, CSOs operate through formal Memorandums of Understanding (MoUs) to deliver supplementary capacity building and conduct independent monitoring of programme targeting.
The SLES utilizes Monitoring and Evaluation Information System (MEIS) for its data management and reporting. As part of the broader Social Protection Transformation Project (SPTP), the programme benefits from significant investment in digital infrastructure under the "Transformative Delivery Systems" component. This initiative focuses on digitising payments and operationalising a dynamic Social Registry, effectively transitioning the VUP and the SLES into a fully technology-based delivery model.
Implementation Status & Results Report for the Social Protection Transformation Project (The World Bank, 2025).
Between September 2023 (based on the May 2024 report) and the September 2025 (based on the November 2025 report), the percentage of eligible Vision Umurenge Programme (VUP) households benefiting from the SLE package expanded dramatically from 1.90% to 44.10%. This represents an increase in households receiving the package from 21,333 to 138,947. This scale-up included a parallel increase in female-headed households receiving the package, from 7,587 to 43,015. To manage this growth, the case management capacity was expanded, with the number of para-social workers receiving refresher training increasing from 4,167 to 14,583. Financial inclusion linkages also strengthened, as the share of VUP beneficiaries registered in the Ejo Heza savings scheme rose from 73% to 84%.
Audit Report and Audited Financial Statements for the Social Protection Transformation Project (SPTP-LODA) (Office of the Auditor General of Rwanda, 2024).
The case management and proximity advisory system was substantially operationalized, with 14,719 para-social workers receiving support, including communication and incentives. For the Skills Development component, 6,263 individuals (disaggregated into 3,067 females and 3,196 males) were supported in various training trades such as masonry, welding, tailoring, and mechanics. In parallel, the Productive Asset component reached 12,194 beneficiaries, of which: 7,874 recipients were provided with start-up toolkits for off-farm enterprises, while 4,320 received small livestock for on-farm agricultural livelihoods.
Implementation Completion Report Review for the Strengthening Social Protection Project (Independent Evaluation Group (IEG), 2023).
The Strengthening Social Protection Project in Rwanda (P162646), financed by the IBRD/IDA, supported the operationalisation of the government-approved Sustainable Livelihoods Enhancement (SLE) scheme and its corresponding para-social worker system. This cadre was designed to provide regular proximity case management, mentoring, and coaching to the poorest households and to facilitate referrals to livelihood enhancement opportunities. By project completion, 14,752 para-social workers (9,997 of whom were in 20 project-supported districts) were recruited, trained, and operational. This intervention was structured to complement the Nutrition-Sensitive Direct Support (NSDS) and Civil Registration and Vital Statistics (CRVS) components, thereby enhancing the human capital contribution of the Vision 2020 Umurenge Program (VUP). However, the SLE intervention's outcomes were not tracked in the project's Results Framework (RF).
Based on the Ministry of Local Government's National Strategy for Sustainable Graduation (2022):
- A "graduation" model fails if its design fidelity is poor; a narrow, top-down focus on asset transfers proved ineffective without the full, sequenced package of support.
- Productive asset transfers, especially livestock, are not sustainable unless bundled with essential support, including veterinary services and compensation mechanisms to mitigate asset loss.
- Para-Social Workers require manageable caseloads and reliable financial incentives to provide effective coaching and systematic referrals.
- Multi-sectoral delivery requires formal, horizontal coordination at the local level, as institutional disconnects between departments were a primary barrier.
- Measuring graduation by short-term asset acquisition rather than sustainable income led to households losing support prematurely and falling back into poverty.
- Household-level success is highly dependent on the wider enabling environment, including access to functional markets and resilience against economic and environmental shocks.
- The programme was operationally challenged, with implementation of the SLE/PSWs scheme progressing slower than planned and lacking a system to gather participant feedback on the quality of support received.
In Rwanda:
PEI’s website on the SLES: https://www.peiglobal.org/node/1623
SDG 1 - No poverty
- Target 1.1 - By 2030, eradicate extreme poverty for all people everywhere, currently measured as people living on less than $1.25 a day.
- Indicator 1.1.1 - Proportion of the population living below the international poverty line by sex, age, employment status and geographical location (urban/rural)
- Target 1.2 - By 2030, reduce at least by half the proportion of men, women and children of all ages living in poverty in all its dimensions according to national definitions.
- Indicator 1.2.1 - Proportion of population living below the national poverty line, by sex and age
- Indicator 1.2.2 - Proportion of men, women and children of all ages living in poverty in all its dimensions according to national definitions
- Target 1.3 - Implement nationally appropriate social protection systems and measures for all, including floors, and by 2030 achieve substantial coverage of the poor and the vulnerable.
- Indicator 1.3.1 - Proportion of population covered by social protection floors/systems, by sex, distinguishing children, unemployed persons, older persons, persons with disabilities, pregnant women, newborns, work-injury victims and the poor and the vulnerable
SDG 2 - Zero hunger
- Target 2.1 - By 2030, end hunger and ensure access by all people, in particular the poor and people in vulnerable situations, including infants, to safe, nutritious and sufficient food all year round.
- Indicator 2.1.1 - Prevalence of undernourishment
- Indicator 2.1.2 - Prevalence of moderate or severe food insecurity in the population, based on the Food Insecurity Experience Scale (FIES)
- Target 2.3 - By 2030, double the agricultural productivity and incomes of small-scale food producers, in particular women, indigenous peoples, family farmers, pastoralists and fishers, including through secure and equal access to land, other productive resources and inputs, knowledge, financial services, markets and opportunities for value addition and non-farm employment
- Indicator 2.3.1 - Volume of production per labour unit by classes of farming/pastoral/forestry enterprise size
- Indicator 2.3.2 - Average income of small-scale food producers, by sex and indigenous status
- Target 2.4 - By 2030, ensure sustainable food production systems and implement resilient agricultural practices that increase productivity and production, that help maintain ecosystems, that strengthen capacity for adaptation to climate change, extreme weather, drought, flooding and other disasters and that progressively improve land and soil quality
- Indicator 2.4.1 - Proportion of agricultural area under productive and sustainable agriculture
SDG 5 – Gender equality
- Target 5.a - Undertake reforms to give women equal rights to economic resources, as well as access to ownership and control over land and other forms of property, financial services, inheritance and natural resources, in accordance with national laws
- Indicator 5.a.1 - (a) Proportion of total agricultural population with ownership or secure rights over agricultural land, by sex; and (b) share of women among owners or rights-bearers of agricultural land, by type of tenure
SDG 8 – Decent work and economic growth
- Target 8.2 - Achieve higher levels of economic productivity through diversification, technological upgrading and innovation, including through a focus on high-value added and labour-intensive sectors
- Indicator 8.2.1 - Annual growth rate of real GDP per employed person
- Target 8.3 - Promote development-oriented policies that support productive activities, decent job creation, entrepreneurship, creativity and innovation, and encourage the formalization and growth of micro-, small- and medium-sized enterprises, including through access to financial services
- Indicator 8.3.1 - Proportion of informal employment in total employment, by sector and sex
- Target 8.5 - By 2030, achieve full and productive employment and decent work for all women and men, including for young people and persons with disabilities, and equal pay for work of equal value
- Indicator 8.5.1 - Average hourly earnings of employees, by sex, age, occupation and persons with disabilities
- Indicator 8.5.2 - Unemployment rate, by sex, age and persons with disabilities
- Target 8.6 - By 2020, substantially reduce the proportion of youth not in employment, education or training
- Indicator 8.6.1 - Proportion of youth (aged 15–24 years) not in education, employment or training
SDG 10 – Reduced inequalities
- Target 10.1 - By 2030, progressively achieve and sustain income growth of the bottom 40 per cent of the population at a rate higher than the national average
- Indicator 10.1.1 - Growth rates of household expenditure or income per capita among the bottom 40 per cent of the population and the total population
- Target 10.2 - By 2030, empower and promote the social, economic and political inclusion of all, irrespective of age, sex, disability, race, ethnicity, origin, religion or economic or other status
- Indicator 10.2.1 - Proportion of people living below 50 per cent of median income, by sex, age and persons with disabilities
Support to livelihood diversification;
Training (vocational, life skills, cash for training, entrepreneurship);
Unconditional cash transfer;
Inclusive value addition and processing;
Pro-poor access to agricultural inputs, technology and knowledge;
Multilevel governance
SDG 1 – No poverty
- Target 1.1 - By 2030, eradicate extreme poverty for all people everywhere, currently measured as people living on less than $1.25 a day.
- Indicator 1.1.1 – Proportion of the population living below the international poverty line by sex, age, employment status and geographical location (urban/rural)
- Target 1.2 – By 2030, reduce at least by half the proportion of men, women and children of all ages living in poverty in all its dimensions according to national definitions.
- Indicator 1.2.1 – Proportion of population living below the national poverty line, by sex and age
- Indicator 1.2.2 – Proportion of men, women and children of all ages living in poverty in all its dimensions according to national definitions
- Target 1.3 – Implement nationally appropriate social protection systems and measures for all, including floors, and by 2030 achieve substantial coverage of the poor and the vulnerable.
- Indicator 1.3.1 – Proportion of population covered by social protection floors/systems, by sex, distinguishing children, unemployed persons, older persons, persons with disabilities, pregnant women, newborns, work-injury victims and the poor and the vulnerable
SDG 2 – Zero hunger
- Target 2.1 – By 2030, end hunger and ensure access by all people, in particular the poor and people in vulnerable situations, including infants, to safe, nutritious and sufficient food all year round.
- Indicator 2.1.1 – Prevalence of undernourishment
- Indicator 2.1.2 – Prevalence of moderate or severe food insecurity in the population, based on the Food Insecurity Experience Scale (FIES)
- Target 2.3 – By 2030, double the agricultural productivity and incomes of small-scale food producers, in particular women, indigenous peoples, family farmers, pastoralists and fishers, including through secure and equal access to land, other productive resources and inputs, knowledge, financial services, markets and opportunities for value addition and non-farm employment
- Indicator 2.3.1 – Volume of production per labour unit by classes of farming/pastoral/forestry enterprise size
- Indicator 2.3.2 – Average income of small-scale food producers, by sex and indigenous status
- Target 2.4 – By 2030, ensure sustainable food production systems and implement resilient agricultural practices that increase productivity and production, that help maintain ecosystems, that strengthen capacity for adaptation to climate change, extreme weather, drought, flooding and other disasters and that progressively improve land and soil quality
- Indicator 2.4.1 – Proportion of agricultural area under productive and sustainable agriculture
SDG 5 – Gender equality
- Target 5.a – Undertake reforms to give women equal rights to economic resources, as well as access to ownership and control over land and other forms of property, financial services, inheritance and natural resources, in accordance with national laws
- Indicator 5.a.1 – (a) Proportion of total agricultural population with ownership or secure rights over agricultural land, by sex; and (b) share of women among owners or rights-bearers of agricultural land, by type of tenure
SDG 8 – Decent work and economic growth
- Target 8.2 – Achieve higher levels of economic productivity through diversification, technological upgrading and innovation, including through a focus on high-value added and labour-intensive sectors
- Indicator 8.2.1 – Annual growth rate of real GDP per employed person
- Target 8.3 – Promote development-oriented policies that support productive activities, decent job creation, entrepreneurship, creativity and innovation, and encourage the formalization and growth of micro-, small- and medium-sized enterprises, including through access to financial services
- Indicator 8.3.1 – Proportion of informal employment in total employment, by sector and sex
- Target 8.5 – By 2030, achieve full and productive employment and decent work for all women and men, including for young people and persons with disabilities, and equal pay for work of equal value
- Indicator 8.5.1 – Average hourly earnings of employees, by sex, age, occupation and persons with disabilities
- Indicator 8.5.2 – Unemployment rate, by sex, age and persons with disabilities
- Target 8.6 – By 2020, substantially reduce the proportion of youth not in employment, education or training
- Indicator 8.6.1 – Proportion of youth (aged 15–24 years) not in education, employment or training
SDG 10 – Reduced inequalities
- Target 10.1 – By 2030, progressively achieve and sustain income growth of the bottom 40 per cent of the population at a rate higher than the national average
- Indicator 10.1.1 – Growth rates of household expenditure or income per capita among the bottom 40 per cent of the population and the total population
- Target 10.2 – By 2030, empower and promote the social, economic and political inclusion of all, irrespective of age, sex, disability, race, ethnicity, origin, religion or economic or other status
- Indicator 10.2.1 – Proportion of people living below 50 per cent of median income, by sex, age and persons with disabilities
Established in 2008, the Vision Umurenge Programme (VUP) is Rwanda’s flagship social protection programme, designed to accelerate socio-economic transformation and reduce extreme poverty. Aligned with the National Strategy for Transformation (NST 1), the VUP’s implementation pivots around three major components: (i) the Safety Net Component (which includes the “Direct Support” cash transfers, the “classic” and “expanded” public works programmes, and the early childhood development intervention), (ii) the Livelihoods Development Component, and (iii) the Sensitisation and Community Mobilisation Component.
The Sustainable Livelihoods Enhancement Scheme (SLES) is the Livelihoods Development Component, functioning as the graduation or enhancement layer of the VUP. It targets extremely poor households already enrolled in the Safety Net component who are assessed as having the potential to move out of poverty. This potential is defined as being a “labour endowed household” (i.e., containing individuals aged 18-64 who are able to work) but currently lacking the opportunities or assets to sustain a livelihood. The assessment process, often conducted by para-social workers during home visits, considers several key variables to determine this capacity, including the education level of the household head, less caring responsibilities, access to land and basic tools, and the household’s proximity to the poverty line.
The SLES provides a holistic and sequenced package to address the multi-dimensional constraints of poverty, recognising that a single intervention (like cash alone) is insufficient to address the multiple constraints that keep households in poverty. The package includes two main interventions:
- The Skills Development Scheme, which typically lasts 6 to 12 months and covers all fees and materials, is delivered via group sessions, vocational centres, and linkages with private/CSO providers. It seeks to build human capital through three main categories of support:
- Agricultural and livestock training (including financial literacy) for asset recipients
- Off-farm or agro-processing training for those starting micro-enterprises like tailoring, carpentry, or others
- Off-farm training for employment seekers
- The Productive Asset Transfer Scheme, which is designed to enhance livelihoods, accelerate sustainable graduation from poverty, and provide a coping mechanism against shocks using different categories of assets:
- Small livestock (e.g. goats, sheep, or pigs)
- Agricultural inputs (e.g. seeds, fertilisers, or farm equipment)
- Agricultural processing equipment
- Small equipment for off-farm micro-enterprises (like masonry)
These interventions are underpinned by a robust case management framework relying on Para-Social Workers (PSWs). PSWs provide one-to-one and small-group support, coaching, household progress monitoring, and referrals to complementary services. They also develop “graduation plans” with households, defining a pathway to “sustainable graduation,” a state where the household can sustain itself “without the need for social transfers”. The SLES explicitly prioritises vulnerable subgroups—including female-headed households, youth (18–30), and persons with disabilities—for asset transfers and vocational training. Furthermore, SLES integrates financial inclusion, climate change adaptation, and behaviour change communication to address social norms that hinder productive capacity.
The definitive measure for assessing graduation is household consumption, with a “Resilience Line” set at 50% above the poverty line to indicate sustainability. In addition to this primary measure, the programme uses a system of ongoing monitoring conducted by PSWs. During regular household visits, PSWs utilize a set of proxy indicators to track progress toward graduation. These indicators, reported by PSWs every six months, include the number of meals consumed per day, school enrolment and attendance, household enrolment in the Community Based Health Insurance (CBHI, also known as Mutuelle de Santé), involvement in savings schemes like Ejo Heza (a voluntary, defined-contribution long-term savings scheme that extends pension and social insurance coverage to the informal sector), access to productive assets, and engagement in Income Generating Activities (IGAs).
Based on the Ministry of Local Government’s National Strategy for Sustainable Graduation (2022):
- A “graduation” model fails if its design fidelity is poor; a narrow, top-down focus on asset transfers proved ineffective without the full, sequenced package of support.
- Productive asset transfers, especially livestock, are not sustainable unless bundled with essential support, including veterinary services and compensation mechanisms to mitigate asset loss.
- Para-Social Workers require manageable caseloads and reliable financial incentives to provide effective coaching and systematic referrals.
- Multi-sectoral delivery requires formal, horizontal coordination at the local level, as institutional disconnects between departments were a primary barrier.
- Measuring graduation by short-term asset acquisition rather than sustainable income led to households losing support prematurely and falling back into poverty.
- Household-level success is highly dependent on the wider enabling environment, including access to functional markets and resilience against economic and environmental shocks.
- The programme was operationally challenged, with implementation of the SLE/PSWs scheme progressing slower than planned and lacking a system to gather participant feedback on the quality of support received.
Public works, employment guarantee schemes and direct job creation including community development programmes; Support to livelihood diversification; Training (vocational, life skills, cash for training, entrepreneurship); Unconditional cash transfer; Inclusive value addition and processing; Pro-poor access to agricultural inputs, technology and knowledge; Multilevel governance
In Rwanda:
International partners are critical for financing, technical assistance, and implementation. The World Bank serves as the primary financial partner, while major NGOs like BRAC assist with policy design. For frontline delivery, the government partners with international service providers (such as World Vision and Care International) to implement interventions including livelihood training and coaching.
At the national level, the Ministry of Local Government (MINALOC) sets the overarching social protection policies. The Local Administrative Entities Development Agency (LODA) acts as the lead coordinating body responsible for programme oversight, funds mobilisation, national planning, M&E, and disseminating operational guidelines to local entities. Implementation is highly decentralised, with Districts serving as the primary authority for local planning, budgeting, and asset procurement. This structure extends to the frontline, where Sectors, Cells, and Villages manage the detailed selection of beneficiaries, ensure gender balance, and conduct local monitoring of asset productivity.
The governance model formally integrates local communities and CSOs into programme delivery. A cadre of PSWs functions as frontline case managers, providing proximity advisory services and linking beneficiaries to complementary services. Additionally, CSOs operate through formal Memorandums of Understanding (MoUs) to deliver supplementary capacity building and conduct independent monitoring of programme targeting.
The programme maintains nationwide coverage across both urban and rural areas. In 2023, it supported an active caseload of 141,539 direct participants, extending to a total reach of 636,926 direct and indirect beneficiaries (defined as individuals who live in a household where at least one member receives the transfer). This total reach represents approximately 4.73% of the national population and 12.39% of all individuals living below the national poverty line. Cumulatively, the scheme has served 447,247 direct participants since its inception in 2017.
Financing is primarily provided by the World Bank’s International Development Association (IDA) under the Social Protection Transformation Project (SPTP). While the project allocates a total loan of USD 100 million to strengthen the broader Vision Umurenge Programme (VUP), USD 19.29 million is specifically dedicated to Component 2: Support to Economic Inclusion.
The SLES utilizes Monitoring and Evaluation Information System (MEIS) for its data management and reporting. As part of the broader Social Protection Transformation Project (SPTP), the programme benefits from significant investment in digital infrastructure under the “Transformative Delivery Systems” component. This initiative focuses on digitising payments and operationalising a dynamic Social Registry, effectively transitioning the VUP and the SLES into a fully technology-based delivery model.
PEI’s website on the SLES: https://www.peiglobal.org/node/1623