the effectiveness of maternity allowance for poor women in poverty reduction

7/27/2019 The Effectiveness of Maternity Allowance for Poor Women in Poverty Reduction

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The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction 1

Research Report

The Effectiveness of Maternity Allowance for Poor Women

in Poverty Reduction

Submitted To

Md. Siddiqur Rahman

Module Director

54th

FTC, BPATC

Submitted By

Md. Abu Raihan Dolan A-152

Arif Mohammad Mojakkir A-165

Md. Tanjim B-220

Rubina Parvin C-361

Md. Mahmudul Hoque D-406

Tahura Jannat D-442

Bangladesh Public Administration Training Centre (BPATC)

Savar, Dhaka

4th

September, 2013


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Acknowledgement

Members of team no. 22 of the village study program of the 54th

Foundation Training Course

are feeling honoured to express their hearitiest gratitude to the Bangladesh Public Administration

Training Centre to arrange such an auspicious program. The team specially extends its thanks to

the honourable Course Advisor and Course Director. Special gratitude with heartfelt thank goes

to Md Siddiqur Rahman, respected Module Director as he personally contacted, advised and

dictated the team members all the time.

Upazila Nirbahi Officer of Kalia arranged nice accomodation facilities for the team members and

provided all sort of logistic supports. His office supplied all technical supports to the team.

Under his coordination and close supervision the team could easily conducted all necessary

activities for the research work. Participants of the team 22 are highly grateful to him. Team 22

also acknoledge the role of his office staff.

Upazila Woman Affairs Officer helped the team all the time. He supplied the necessary

informations and the list of benefeciaries. The team 22 extends its gratitude to him and his office

staff also. The team also gratefully remembers the Upazila Agriculture Officer as he

accompanied the team and helped in some activities.

UP Chairmen and members of Salamabad, Hamidpur and Kolabaria unions are reallypraiseworthy as they spent their valuable time with the team members. They guided and

entertained participants all the time which helped tremendously for data collection. The team

members are gateful to them. Village elites, beneficiaries, officers and others who participated in

the focus group discussions are gratefully remembered for their kind cooperation.

Regional Manager and other Officers of Brac office in Kalia upazila are acknowledged for their

help. Meyor of the Kalia pourashava and the staff of the pourashava community centre are

gratefully remembered. The team also grateful to the owner and staff of Orunima eco park.

Team 22 gratefully remembers all those who helped the participants to perform their job

successfully.


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Abbreviations

SSNP Social Safety Net Programme

MDG Millennium Development Goal

PRSP Poverty Reduction Strategy Papers

UNO Upazila Nirbahi Officer

USWO Upazila Social Welfare Officer

GOB Government of Bangladesh

WHO World Health Organization

ILO International Labor Organization

FGD Focus Group Discussion

UP Union Parishad

DCGCI Development Consultant and Global Compliance Initiative


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Table of Contents

Sl No. Headings Page No.

1 Abstract 01

Chapter I: Introduction 02-04

2 1.1 Background 02

1.2 Statement of the Problem 02

1.3 Research Question 03

1.4 Key Concepts 03

1.5 Significance of the Study 04

1.6 Limitation of the research 04

1.7 Ethical Considerations 04

3 Chpater II: Literature Review 05-07

4 Chapter III: Research Mthodology 08

Methods of Data Collection 08

5 Chapter IV: Interpretations, Major Findings and Observations 09-12

Are the Beneficiaries Rightly Selected? 09

Are the Beneficiaries Really Poor? 10

Is the Amount Given and Received Timely? 11

Have the Allowances Been Best Utilized? 11

How the Allowances are Contributing in Enhancing Their

Capability?

12

Determining the Degree of Effectiveness 12

6 Chapter V: Recommendations and Conclusion 13

7 Reference 14

8 AnnexureCertificate of Successful Completion of Village Study and Data Collection

Tour Diary

List of Interviewee

Focus Group Discussion Report


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Abstract

This study is a social research work conducted in order to find the degree of effectiveness of

maternity allowance for poor women and poverty reduction in Bangladesh. Following qualitative

methods the findings of the research finds a negative correlation between poverty and maternity

allowances. Maternity allowances are moderately contributing to reduce poverty. This social

research work also finds some challenges and loopholes in the guidelines as well as in the

distribution policies. The recommendations provided should be very helpful to make the project

of maternity allowance for poor women more effective in poverty reduction.


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Chapter I: Introduction

1.1BackgroundThis research work has been conducted as a part of village study program under the curriculum

of 54th

Foundation Training Course. Social Safety Net Programmes (SSNPs) are major strategies

to combat poverty and to save poor people from sudden shocks and risks (Khuda, 2011). A

significant portion of budget every year is dedicated to create social safety net targeting

Millennium Development Goals (MDG) and Poverty Reduction Strategy Papers (PRSP). SSNPs

mainly create employment opportunities; reach marginalized poor people with allowances and

aids; enhances poorpeoples means to combat disasters and health hazards. These programmes

have earned noticeable visibility and attention from insiders and outsiders for their role in

poverty alleviation. Maternity allowance for poor women is one of those safety net programmes.

In the village study program, participants were asked to measure the role or the of various safety

net programmes in for poverty reduction in Bangladesh. We the members of Team 22 have

conducted this research work on maternity allowances for women.

1.2 Statement of the Problem

The programme Maternity allowance for poor women was introduced in 2007-2008 financial

year. Since then, these allowances have been being distributed among thousands of poor

women in order to ensure the fitness of child and mother during and after delivery. Those poorwomen have been provided with a monthly pay to increase their financial and physical fitness.

But, many have questioned the role of most safety net programmes in rural areas. Though most

people have agreed upon their significant roles in poverty reduction, they have also claimed that

the result is not even close to the expectation.

Besides those critiques we need to count on that these allowances have attracted the attention of

many including the journalists. A report published in the official website of BSS on June 8, 2013

says that, At present, some 1, 01,200 poor pregnant women all over the country are getting Taka

350 and the finance minister proposed to raise the number of beneficiaries by 15 percent in the

budget. (BSS, 2013) The report also quotes the finance minister as:

In the coming fiscal year, I propose to raise the rate of allowance by Taka 50 and the number of

beneficiaries by 10 percent. We have significantly expanded the scope and coverage of social

safety net programs to bring down poverty. Efforts are continuing to ensure regional parity. We


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have taken steps to ensure optimum utilization of public money by avoiding overlaps in safety net

programs.

This is how the policies from the top are relating the role of maternity allowance as a social

safety net programme with poverty reduction. But the question arises when we talk about theeffectiveness of the program, the management of the fund and the procedure of disbursement.

This research intends to create knowledge about those problem statements.

1.3 Research Question

The principal question of this research is: To what extent is the Maternity Allowance for Poor

Women effective for poverty reduction in Bangladesh?

In this research project we have tried to find the answer with the following specific questions:

a) Are the beneficiaries rightly selected?b) Are the beneficiaries really poor?c) Is the amount given or received timely?d) Have the allowance been best utilized?e) How the allowances are contributing in enhancing their capacity?

1.4 Key Concepts

There are a few key concepts need to clarify or to define before we consider finding the answersof the above questions.

Maternity: It refers the social and family state of a women while pregnancy as well as while

bearing child up to 2 years old. It encompasses the health of mother and child; the capability of

meeting optimum nutrition; medication and access to some entitled public rights.

Allowance: Allowance is a type of financial and technical incentive provided by the government

to the disadvantaged section of the society to ensure equitable distribution of public resources.

Poverty Reduction: Poverty reduction is a development strategy of Bangladesh. It is mainly

addressed through annual financial statement. MDGs have encompassed it as the top priority of

this decade. The government of Bangladesh has adopted and prepared many policies and

programmes to achieve significant rate of poverty reduction each year.


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1.5 Significance of the Study

This research is quite significant due to a several reasons. Firstly, this study is based on real time

data collected from remotest areas of Bangladesh. Secondly, the studies we find regarding the

social safety net programmes in Bangladesh are all integrated and do look at the role of safety

net programmes altogether in poverty reduction. But, this very study picks specifically the

maternity allowances for poor women which makes it very specific and focused one. Thirdly,

government of Bangladesh is willing to increase the number of beneficiaries as well as the

budget allocation for this allowance in the coming years. This study outcome shall significantly

help to decide over that issue scientifically. Fourthly, this study shall reveal the loopholes of

policies regarding maternity allowance and its distribution procedure. And, finally this research

shall help us understand the importance of maternity allowance in poverty reduction which

should be original knowledge in this field.

1.6 Limitations of the Research

This research has been undertaken within a very short and limited time for which the datacollection and its interpretation have not been at their best.

Due to lack of financial resource it hasnt been possible to collect data from differentgeographical locations.

As there was little time to collect materials from secondary sources, the literaturereviewed in this research may not be adequate.

1.7Ethical Considerations

Despite the abovementioned limitations, this research project has followed a set of ethical

guidelines. They may be stated as:

i. The data and information collected from primary and secondary sources are all originaland credible.

ii. The participants had been properly informed about the purpose and methods of theresearch.

iii. The data interpretation has not been influenced by any preoccupied knowledge andperception.


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Chapter II: Literature Review

Thirty different ministries of Bangladesh are operating different programmes and projects under

safety net programmes. And, those ministries have their own perspectives to implement few or

more Millennium Development Goals (MDGs), Poverty Reduction Strategic Papers (PRSP),

Sixth Five Year Plan and Perspective Plan. For instance, the grant paper of the Ministry of

Women Affairs basically addresses two issues- (i) poverty reduction and (ii) womens

participation and empowerment (www.miwa.gov.bd). And, these programmes have been claimed

to be undertaken within an integrated approach to poverty reduction.

World Health Organization along with International Labour Organization published a report on

the utilization of social safety net programmes in Bangladesh. According to the report, Suchprogrammes consist of two main elements which help to realize respective human rights, also

referred to as social protection floor. These include: (i) access to essential services such as

health, water and sanitation, education and adequate nutrition; and (ii) social transfers, in cash or

kind or both, paid to the poor and vulnerable population groups to provide them with a minimum

income security and access to various essential services (ILO and WHO, 2009).

In his recent paper Mr. Barkat-E-khuda (2011) cited the budget allocation:

The present government has placed elimination of poverty and inequity at the forefront of its

development strategy. The aim is to bring down the poverty rate from 40 per cent in 2005 to 15

per cent by 2021. Investment in infrastructure, creation of employment opportunities during slack

seasons, and increased coverage of social safety net programmes will lead to improvement in

poverty situation; and priority will be given to activities targeting the extreme poor, women in

poverty, landless poor and other disadvantaged groups. A strong and expanded social safety net is

the main emphasis of the present governments vision to protect the poor from all types of social,

economic and natural shocks (GoB 2009b). In the FY2010-11 budget, the government allocated

14.8 per cent of the total budget (compared to 15.2 per cent in the previous budget) and 2.5 per

cent of the total GDP (compared to 2.25 per cent in the previous budget) for social security and

social empowerment (GoB 2010, 2009c).

This very statistics suggest that the present government is giving prior importance to the

effectiveness of social safety net programmes especially on those that are directly addressing

health and poverty issues. Significantly, in his study Mr. Khuda (cited above) found that the


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allowances given to the poor mother have been substantively useful under the safety net

programmes.

To be more specific we need to comprehend the policy literature of Maternity Allowance for

Poor Women policy implementation guidelines prepared by the Ministry of Women and

Children Affairs (GOB, 2008). In the preface of the guidelines it has been mentioned that the

prime objectives of the project is women development and empowerment. And, those two can be

ensured only if we can ensure the health of mother and child in parallel. That will help poor

mothers to survive as well as to drive for more income.

More importantly the distributions of budget for the allowance are made according to the Poverty

Map1 of Bangladesh. According to that altogether more than 3000 poor unions are receiving

these allowances for poor women.

DCGCI for Social Protection Group in Bangladesh prepared a report on the study conducted by

Dr. Rafique Uddin Ahmed and Professor Sheikh Shafiul Islam titled, People's Perception on

Safety Net Programmes: A Qualitative Analysis of Social Protection in Bangladesh states:

Most of the respondents had no information on the quantity and coverage of SSNP in their areas.

However, all the beneficiaries (100%) who took part in the discussion perceived coverage and

amount of different SSNPs too insufficient to meet the demands of the huge number extreme poor

and address their poverty. A widow from Tetulia Union receiving widow-pension stated, "An

ordinary Sari costs Taka 300 now-a-days, so you can perceive how many things are needed for a

family and which of those can be met with this small amount of aid". (Ahmed & Islam, 2011)

The study thus reveals the underlying policy weaknesses and the implementation challenges of

different allowance including those of maternities. The prime findings include that the selection

procedures are not properly followed and the information about the allowances are not openenough.

The Daily Star on October 27, 2009 published a report with a headline 'Maternity allowance

scheme plays major role in poverty cut' which was mainly based on the study conducted by

1Poverty Map shows different geographical segments of Bangladesh on the basis of different degrees of poverty

(i.e poor area, extreme poor area and ultra poor area)


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Development Organization of the Rural Poor (DORP). Conducted on a random sample of 104

extremely poor pregnant women both under the government social safety net of maternity

allowance and mothers not receiving the allowance, the study concluded that the maternity

allowance scheme would play a major role in eliminating poverty. The Secretary General of

DORP while presenting the outcomes of the research stated, We need to put more focus on

Public Poor Partnership to mobilize the resources and establish a discrimination-free society and

bring required changes to the lives of the mothers and the newborns. This is how the correlation

between maternity allowance and poverty cut was established. (Correspondent, October 27,

2009)

Thus, there are a several studies that have this way or that way measured the effectiveness of

maternity allowances. But those studies have pointed out the degree of what this study aims to.


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Chapter III: Research Methodology

This research has been conducted applying the qualitative method as the demands of analysis are

perspective and qualitative aspects. The effectiveness is hereby intended to be measured by a

qualitative scale. However, for the detailed data collection we followed the following qualitative

methods.

Methods of Data Collection

A. Review of Document: To get the primary data/information about the policies of thegovernment and the guidelines to implement them we have reviewed a several documents

which include the policy papers, official documents of local governmental agencies and

poverty map of Bangladesh.

B. In-depth Interviews: We have interviewed a number of beneficiaries, concerned keystakeholders (i.e. UP Chairman and members) as well as central government

representatives who are responsible to implement the policies (i.e. UNO, USWO). To

serve the purpose we the members of Team 22 got divided into three sub-teams and then

went to 3 different unions to interview the beneficiaries and stakeholders. We prepared

different schedule for different participants.

C. Observation: This qualitative method was also used to collect relevant but critical data.As we were there for 5 days among which we passed 3 days with the beneficiaries and

the stakeholders we had the opportunity to observe different situation closely. And, we

did not miss the opportunity.

D. Focus Group Discussion: This is a popular method of acquiring cross sectional data forsocial research. We have conducted 3 FGDs in three different unions comprising the

presence of beneficiaries, potential beneficiaries, stakeholders and local representatives.

The data and information were recorded initially to make the procedure easy and smooth. Later

the data and information were decoded from the recorder and were noted down in fresh papers in

a usable manner.


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Chapter IV: Interpretations, Major Findings and Observations

The data that we have collected through the methods mentioned earlier were quite resourceful,

diversified and useful. To apprehend the outcome of the research we need to understand from

where the data and information have come. Therefore, let us show the participation of different

stakeholders in the field study under this research project. There were in total 52 participants in

interviews and FGDs. We took individual interviews of 18 people and rest 34 people participated

in FGDs.

Fig 1: The above chart shows ratio of the participation in the interviews and FGDs

As stated before, we shall measure the degree of effectiveness depending on a several questions.

Before analyzing the data and information collected we here need to understand the objectives

and selection procedures of maternity allowances in accordance to the policy.

I. Are the Beneficiaries Rightly Selected?According to the policy guidelines, a person if can fulfill any 4 (four) including the first 2

(two) of the following conditions can be declared eligible and thereby can be a beneficiary of

maternity allowance:

i. First or second pregnancy (in any area)ii. Age must be equal or above 20

iii. Monthly income should be below tk. 1500iv. She has to be the chief earning memberv. Poor disable mother

52%

10%

19%

19% Beneficiaries

Government

Representatives

Stakeholders

Selection Committee

Member


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vi. Only has a land for house or living on the land of othervii. She or none of her family has a cultivable land or pond or any livestock

Here it has to be mentioned that the poorest are to give priority. But, none shall receive the

allowance more than twice. (GOB, 2008)

It was found that in most cases the conditions were not fulfilled, nor even the mandatory ones.

For instance, at least 7 out of 18 beneficiaries were found receiving the allowance having ages

less than 20 years. It was also observed that many beneficiaries have their own lands to cultivate

and the livestock. And, more significantly some of them were dependent to their husbands. So,

while talking about the rightness of the selection procedure of the beneficiaries, the findings

suggest being not very effective for poverty reduction.

II. Are the Beneficiaries Really Poor?The guidelines instruct to select poor women from the community in order to contribute in

poverty reduction, or to enhance the social and economic capacity of a poor family. In a few

cases we have found the implications. But, unfortunately in most cases the beneficiaries have

well built houses, own lands and other properties. They may be among the poor communities but

there are poorer people who could be more benefitted from the allowances.

While conducting the FGDs,

we found that poor people are

not aware of the allowances.

In most cases poor people

who have close relations with

UP members and chairmen,

have found to be the

beneficiaries. Mr. Md. ShahinHossain, UNO of Kalia also

admitted that there are some

loopholes in the selectionFigure 1: Husband of Seema Rani a beneficiary is taking care of his own livestock


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process, especially the guidelines are weak enough to check and balance the role of UP. So, the

selection procedure is no way an equitable one. It is not pro people as well.

III. Is the amount given or received timely?The amount of tk. 300 is not a big thing for many of the beneficiaries we have talked with. Even

while talking with the stakeholders, we found that most of them found the amount insignificant

and small. Thats why; the beneficiaries use to receive the money in a total of six months or even

of a year. On the other hand, an official of the office of upazila social welfare officer informed us

that they also receive the budget allocation neither regularly nor timely. The problem lies at the

both ends.

As the concept of poverty reduction and SSNPs are to meet the sudden risk factors and building

sustainable capacity or meeting regular as well as emergency needs, this irregularity of money

disbursement is a big threat. Consequently, this disbursement of allocation caused by both the

beneficiaries and the providers is making the effectiveness of the allowance in poverty reduction

not noteworthy.

IV. Have the allowances been best utilized?A number of questions were asked

regarding the utilization of the

allowances to the beneficiaries. All of

them confirmed that they have bought

special nutritious food, medicine and

other necessary equipments for

mothers and children with the money.

We also observed that the health of the

mothers and their children were good.

That proves the validity of their

statements. Also while taking part in the

FGDs and talking with the local representatives we found that the money was rarely wasted. Ms.

Nilima, Family Planning and Welfare Assistant also confirmed that she has seen the beneficiaries

to utilize the money in a very proper way.

Figure 2: FGD is being conducted by one of the researchers


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So, we can say that the objective is fulfilled here. Whenever they get the money they use it to

make sure the consumption of nutrition and to meet the emergency basic requirements of mother

and child. So it is highly effective to poverty reduction.

V. How the allowances are contributing in enhancing their capacity?Overall it was observed that the allowance had contributed to enhance their health capacity. But

as mentioned before tk. 300 is neither a big amount nor have been given timely. The

beneficiaries are not extremely poor. It gets difficult to say that these allowances have enhanced

their capacity to a great extent. On the contrary, the rightful utilization of the allowances should

lead to enhance their capacity. So, we can assume that it has to a significant extent contributed to

their capacity building and thereby in poverty reduction.

Determining the Degree of Effectiveness

The above interpretations of the findings of the research suggest that there are mixed relations

among the five parameters and poverty reduction. To make a concrete and final decision, we

must take a coherent and holistic approach to it. Lets consider the following table:

SL Questions/Considerations Findings Degree of Effectiveness

(out of 10)

01 Are the beneficiaries rightly selected? Moderately right 4

02 Are the beneficiaries really poor? Not among thepoorest

4

03 Is the amount given or received

timely?

No, rather very

irregular

2

04 Have the allowance been best utilized? Yes, in most cases 9

05 How the allowances are contributing

in enhancing their capacity?

Moderately

contributing

4

The effectiveness of maternity allowance for poor women in

poverty reduction

23

(46%)

Table 1: The measurement of effectiveness of maternity allowance

The above table concludes that the relation between the maternity allowance for poor women

and poverty has a negative relation. It means the effectiveness of maternity allowance for poor

women in poverty reduction is significantly moderate.


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Chapter V: Recommendations and Conclusion

Recommendations

1) The policies regarding the roles of different committees especially those which arerelated to selection and monitoring procedure need to be given certain authority to review

the selection procedure.

2) While selecting the beneficiaries a set of guidelines to collect enough evidences regardingthe eligibility would really help to reduce the wrong selections.

3) The amount of money that is given is really small. The Government may allocate morebudgets for it.

4) The concerned ministry should disburse the money timely and the bureaucracy relatedwith this money disbursement should feel the immediacy. On the other hand, if any

beneficiary doesnt receive money t imely and regularly, his or her benefits should be cut

off.

5) The allowance can be associated with some other material supports to the mothers, forinstance, the medicine and equipments.

Conclusion

Despite some limitations this research work finds a significant correlation between the maternity

allowances and poverty reduction in Bangladesh especially in rural areas. Most of the studies in

this area of study deal with the role of SSNP in poverty reduction holistically. But the

significance of this study is that it specifies the effectiveness of a particular program in SSNPs. It

also comes up with a set of suggestions to fill up the loopholes in the policies and also in the

implementation. Those recommendations will also be helpful to make the programme more

effective in reducing poverty and addressing ultra poor mothers maternal health.


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References

_______________________________________________

Ahmed, R. U., & Islam, S. S. (2011).People's Perception on Safety Net Programmes: A

Qualitative Analysis of Social Protection in Bangladesh. Dhaka: Development Consultant and

Global Compliance Initiative (DCGCI) for Social Protection Group in Bangladesh.

BSS. (2013, June 8). Maternity Allowance Fixed up to Tk. 350. Dhaka.

Correspondent, S. (October 27, 2009).Maternity allowance scheme plays major role in poverty

cut. Dhaka: The Daily Star.

Government of Bangladesh.(2008).Report of the Labor Force Survey, 2005-2006. Dhaka:

Bangladesh Bureau of Statistics.

Government of Bangladesh.(2009a). Statistical Yearbook of Bangladesh 2008. Dhaka:

Bangladesh Bureau of Statistics.

Government of Bangladesh.(2009b). Steps Toward Change, National Strategy for Accelerated

Poverty Reduction 11 (Revised), FY 2009-11. General Economics Division, Planning

Commission, Dhaka.

GOB. (2008).Implementation Guidelines of Maternity Allowance for Poor Women. Dhaka:Ministry of Women and Chidren Affairs.

ILO and WHO. (2009). The Social Protection Floor. Geneva: ILO and WHO.

Khuda, B. E. (2011). Social Safety Net Programmes in Bangladesh: A Review.Bangladesh

Development Studies, XXXIV, 87-108.

www.miwa.gov.bd. (n.d.). Retrieved August 28, 2013, from Ministry of Women Affairs:

www.miwa.gov.bd

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