Although the number of beneficiaries has increased rapidly, Dibao reached only 3.9 and 6.7% respectively of the urban and rural populations in 2008.21 In both urban and rural areas the benefit level is low at around 10% of average household income and there are considerable targeting problems. However, the system’s fragmentation and poor coverage reduce its effectiveness (OECD, 2011c). The largest programme is the Public Distribution Scheme.