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 Arif Mohammad Mojakkir Md. Tanjim Rubina Parvin Md. Mahmudul Hoque Tahura Jannat A-152 A-165 B-220 C-361 D-406 D-442

Bangladesh Public Administration Training Centre (BPATC) Savar, Dhaka th 4 September, 2013
The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction 1

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

The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction

Abbreviations
SSNP MDG PRSP UNO USWO GOB WHO ILO FGD UP DCGCI Social Safety Net Programme Millennium Development Goal Poverty Reduction Strategy Papers Upazila Nirbahi Officer Upazila Social Welfare Officer Government of Bangladesh World Health Organization International Labor Organization Focus Group Discussion Union Parishad Development Consultant and Global Compliance Initiative

The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction

Table of Contents
Sl No. 1 Abstract Chapter I: Introduction 2 1.1 Background 1.2 Statement of the Problem 1.3 Research Question 1.4 Key Concepts 1.5 Significance of the Study 1.6 Limitation of the research 1.7 Ethical Considerations 3 4 Chpater II: Literature Review Chapter III: Research Mthodology Methods of Data Collection 5 Chapter IV: Interpretations, Major Findings and Observations Are the Beneficiaries Rightly Selected? Are the Beneficiaries Really Poor? Is the Amount Given and Received Timely? Have the Allowances Been Best Utilized? How the Allowances are Contributing in Enhancing Their Capability? Determining the Degree of Effectiveness 6 7 8 Chapter V: Recommendations and Conclusion Reference Annexure
Certificate of Successful Completion of Village Study and Data Collection

Headings

Page No. 01 02-04 02 02 03 03 04 04 04 05-07 08 08 09-12 09 10 11 11 12

12 13 14

Tour Diary List of Interviewee Focus Group Discussion Report

The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction 4

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.

The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction

Chapter I: Introduction 1.1 Background

This 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 poor peoples 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 poor women 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 The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction 6

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 the effectiveness 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 answers of 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.

The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction

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 data collection and its interpretation have not been at their best. Due to lack of financial resource it hasnt been possible to collect data from different geographical locations. As there was little time to collect materials from secondary sources, the literature reviewed in this research may not be adequate. 1.7 Ethical 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 original and credible. ii. The participants had been properly informed about the purpose and methods of the research. iii. The data interpretation has not been influenced by any preoccupied knowledge and perception.

The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction

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, Such programmes 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 open enough. 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
1

Poverty 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 the government 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 key stakeholders (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 for social 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.

19%

Beneficiaries Government Representatives Stakeholders

19% 10%

52%

Selection Committee Member

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. ii. iii. iv. v. First or second pregnancy (in any area) Age must be equal or above 20 Monthly income should be below tk. 1500 She has to be the chief earning member Poor disable mother
13

The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction

vi. vii.

Only has a land for house or living on the land of other 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. Shahin Hossain, UNO of Kalia also admitted that there are some
Figure 1: Husband of Seema Rani a beneficiary is taking care of his own livestock

loopholes in the selection

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

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.
The effectiveness of Maternity Allowance for Poor Women in Poverty Reduction 15

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 fo llowing table: SL Questions/Considerations Findings Degree of Effectiveness (out of 10) 01 02 Are the beneficiaries rightly selected? Are the beneficiaries really poor? Moderately right Not among the poorest 03 Is the amount given or received timely? Have the allowance been best utilized? How the allowances are contributing in enhancing their capacity? No, rather very irregular Yes, in most cases Moderately contributing 23 (46%) 9 4 2 4 4

04 05

The effectiveness of maternity allowance for poor women in poverty reduction

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 are related 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 regarding the eligibility would really help to reduce the wrong selections. 3) The amount of money that is given is really small. The Government may allocate more budgets for it. 4) The concerned ministry should disburse the money timely and the bureaucracy related with this money disbursement should feel the immediacy. On the other hand, if any beneficiary doesnt receive money timely and regularly, his or her benefits should be cut off. 5) The allowance can be associated with some other material supports to the mothers, for instance, 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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