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Uruguay - The inclusion of independent workers in the Monotributo scheme
welders, and car washers, among others, favouring their coverage and inclusion. It is possible to infer that the incorporation of new operating conditions in this scheme
significantly contributed to achieving this result. Such new conditions include: i both family and non-family
―de facto‖ companies; ii the limitation to three dependents in the case of seasonal or fixed activities; iii small manual artisanal production; iv small
locations; v sales to private companies and the State; vi sales through credit cards; vii a greater limitation of annual income, viii the calculation basis for the Monotributo; ix the
development of more than one activity by rural workers, and x the profile of the retirees authorized to register in the Monotributo scheme.
In this sense, the main lesson of this scheme is that, in different contexts characterized by the diversity of socio-economic profiles, the designing of more flexible financing
mechanisms may be a valuable tool to achieve social inclusion. Furthermore, this scheme has demonstrated the potential for a strategic alliance between social security institutions
and the authorities in charge of tax collecting.
Since Uruguay was able to significantly increase the percentage of decent and protected work in sectors of society which had been previously excluded from social
security coverage, the country now faces the challenge to consolidate the large reforms implemented in the last years. These reforms must be carried out within the scope of the
new social protection system, enabling to extend the systems universal coverage.
Innovations in extending social insurance coverage to independent workers
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12. Conclusions
The advances made by the social security systems of the countries considered in this study demonstrate the importance of establishing a differentiation policy framework
specifically targeting independent workers. This study provides information which aims to help, from a practical rather than a theoretical perspective, the decision makers and the
social security administrations which must cope with practical design issues daily.
One of the study‘s main conclusions is that, in practice, countries choose different paths leading to specific and varied national practices, which we have called
―innovations‖, even within the same country or social security system. The search for such innovations is relevant, given the many facets or dimensions that are involved in defining
the complex characteristics and necessities of a highly heterogeneous group which is hard to provide coverage for, as is the case for independent workers.
A common element of the experiences considered in this study has to do with the practical difficulties of attaining coverage for a significant proportion of independent
workers. Despite the interesting innovations introduced by countries, it remains clear that developing countries still have a long way to go before achieving universal coverage. The
challenges are particularly huge for countries with a large share of independent workers in the informal economy.
It is undeniable that formalization policies are at the centre of the struggle for extending social security coverage to independent workers and therefore should be
incorporated into an integrated social security policy framework. For practical purposes, and without going into detail of the analysis of determining
factors of coverage or the success of interventions, the following is a list of elements which seem to affect, depending on the national context, the extension of social security to
independent workers.
a An important factor is the States participation in the subsidizing contributions by low income workers, which allows for the establishment of a progressive compliance
system in accordance with contributory capacity. This solidary framework is a stimulus for independent workers‘ registration in social insurance.
b Mandatory registration and social security contribution payments on the part of independent workers are also essential requirements in strengthening the framework
for universalization of social insurance. In the case of the social insurance systems recently created in the developing world, mandatory social contribution payments
must be followed by a series of reforms allowing for follow-up, improvement and adaptation of the management and granting of short term benefits.
c The creation of special schemes of differentiated benefits does not seem to be an essential requirement in increasing the coverage of independent workers, but it may
work in those countries where these workers have a much reduced contributory capacity, through allowing lower contribution payment levels to be associated with
lower differentiated benefits. However, such schemes would have to be transitory and inclined to be coordinated with or integrated into the general schemes as economic
and labour market conditions improve. Formalization should therefore translate into better social security coverage conditions.
d As regards the design of coverage extension strategies aimed at specific groups of workers such as independent workers, an important step is the identification of
territorial distribution, contributory capacity, and mechanisms for labour integration
