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A Compendium of Social Protection Researches

Copyright © General Economics Division (GED), Bangladesh Planning Commission, January 2020.

All rights are reserved. Though we encourage use of these research papers by any interested person, but no part
of this publication may be reproduced, stored in a retrieval system or transmitted, in any form or by means of
electronic, mechanical, photocopying, recording or otherwise without prior permission.

Disclaimer: This document was prepared by the eminent researchers/scholars. However, Cabinet Division, and
General Economics Division (GED) of Bangladesh Planning Commission in no way bear any responsibility for any
statement, figure/data that contained in the research papers where onus lies to author(s) only. The document
has been produced with technical assistance from Social Security Policy Support (SSPS) Programme, a joint
Project of Cabinet Division and General Economics Division (GED) of Bangladesh Planning Commission,
Government of the People's Republic of Bangladesh under TA support of UNDP, Bangladesh with DFAT fund.
The contents or any statement, figure/data that contained in the publication can in no way be taken to reflect
the views of DFAT and UNDP.

Technical Working Group: The overall technical supports, including compilation, editing, framework designing,
and directing researches were provided by the following technical working team:
Dr. Shamsul Alam, Member (Senior Secretary), General Economics Division (GED), Editor
Md. Faizul Islam, Joint Chief, and National Project Director, SSPS Programme, Associate Editor
Aminul Arifeen, National Project Manager, SSPS Programme, Associate Editor

Published by:
Social Security Policy Support (SSPS) Programme
Cabinet Division, and General Economics Division (GED) of Bangladesh Planning Commission
Government of the People’s Republic of Bangladesh
[Link]

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

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LIST OF STUDIES

1. Barriers of Accessing Social Protection Programmes for the Poor and Marginalised
2. Cost-Benefit Ratio Study on Effects of Social Protection Cash Transfer
3. Implication of Changing Demographics and Effects on Social Protection in Bangladesh
4. Long-Term Effect of Livelihood Promotion Types of Social Security Programmes
5. Workfare Programmes and Skill Development in Bangladesh: Evidence and Policy Implications
6. Harmonisation of Small Social Security Programmes: Issues and Policy Options
7. Diagnostics for Urban Poverty and the Social Security Needs of the Urban Poor in Bangladesh
8. Situation Analysis: A Perception Study on Persons with Disabilities in Bangladesh

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 337

Chapter 6. HARMONISATION OF SMALL SOCIAL SECURITY PROGRAMMES:

ISSUES AND POLICY OPTIONS1

1Authors of the study: A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

Dr Abdur Razzaque (Team Leader), Chairman, Research and Policy Integration for Development (RAPID) & Research Director,
Policy Research Institute of Bangladesh (PRI)
Mahtab Uddin, Lecturer, Department of Economics, University of Dhaka, & Research Fellow, Research and Policy Integration for
Development (RAPID)
Dr Syed Mortuza Ehsan, Assistant Professor, Department of Economics, North South University
Dr Shubhasish Barua, Assistant Professor, Department of Development Studies, University of Dhaka
Harmonisation of Small Social Security Programmes: Issues and Policy Options 338

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 339

Introduction
The National Social Security Strategy, adopted in 2015, stipulated seven key programmatic reforms.
Consolidation of ‘small’ social security programmes, which, at that time, numbered around a hundred, was
one of them. 2 The NSSS viewed small programme consolidation as an effective means for reducing
administrative costs and increasing coordination in programme implementation. As such, the strategy
prescribed for harmonization of small SSPs in conformity with lifecycle risk-based major programmes. The
NSSS stipulated 2016-21 as the phase-I for implementing all reforms including small programme
consolidation.

The progress made on programme consolidation has, however, not been much.3 One of the major underlying
reasons for this, is the lack of clarity in defining ‘small programmes’. Neither the NSSS nor the NSSS
Implementation Action Plan provided any clear indication of what should be considered as small. Lack of
coordination among line-ministries is another reason for slow progress. The NSSS suggests the ministries to
prepare a ‘business case’ for their small programmes, justifying their continuation. However, this has not
been achieved. Moreover, as specified in the NSSS Midterm Implementation Review, the ministries did not
have a clear understanding of the concept of programme consolidation, its processes or objectives. The
widespread lack of clarity and guidance in navigating the concerned ministries through a process for
achieving the goal of programme harmonisation has also contributed to very limited progress.

Currently, there are as many as 84 social security programmes (SSPs) each with an individual share less than
0.5 per cent of the total SSP budget. The combined share of these programmes is less than 10 per cent of
the total budget. As has already been noted in the NSSS, harmonisation of these programmes has had
important implications for improving efficiency and achieving programmes goals of the social security
system. If similar social security programmes are managed and operated by a few numbers of authorities
instead of many, at each stage of service provision, starting from identification of beneficiaries to distribution
of benefits, the administrative, operational, and delivery costs will reduce substantially. In addition,
harmonisation might have a significant impact on the reduction of existing targeting errors in the beneficiary
selection and can help better planning.

Against the backdrop, this report aims at profiling small social security programmes, identifying their salient
features, and proposing a framework for effective and efficient harmonisation. Since the NSSS does not
provide any working definition for the small SSPs, this report proposes a working definition based on
consultations with social security experts and relevant other stakeholders. Following the agreed definition,
this report maps out all the SSPs by broad categories, as such the programmes on life-cycle risks, covariate
risks, or region-specific special small programmes, etc. The lifecycle risks programmes are further narrowed
down to different sub-categories (such as – programmes for children, working-age, persons with disabilities,
etc.). A close analytical observation of the small SSPs based on budget, number of beneficiaries, objectives,
eligibility, etc. have also been incorporated. The report incorporates a review of the international
experiences of social security programme harmonisation and proposes a harmonisation strategy under the
ideal scenario. Nonetheless, noting the challenges that such an ideal programme harmonisation may face,
this report devises a pragmatic framework in the context of Bangladesh for small SSP harmonisation. Finally,
several broad and programme specific recommendations are provided for the effective and efficient
harmonisation of small programmes.

2 A COMPENDIUM
The other key reforms stipulated in the NSSS are: 1) strengthening social security for the children (1-18); OF SOCIALPROTECTION RESEARCHES
2) Strenthening
programmes for working age, and vulnerable women; 3) Comprehensive pension systems for the elderly; 4) Strengthening the
system of social security for people with disabilities; 5) Strengthening the social security system for the urban poor; 6) Consolidation
and reform of food security type programmes;
3 This information is based on a draft report prepared by the UNDP for the GED “NSSS Midterm Implementation Review”, and

interviews with key stakeholders.

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 340

The report is organized as follows: after this introduction, section II presents a review of literature on
harmonisation. Cross country experiences in harmonizing social security programmes are also discussed in
that section. Section III provides a methodological pathway to address the research questions mentioned
above, which is followed by an in-depth analysis of the current scenario of small social security in Bangladesh.
Based on observed programme objectives and other information obtained from KIIs and desk research, this
section proposes a feasible framework in the context of Bangladesh of small programme harmonisation.
Finally, section IV discusses some way forward how to advance the NSSS envisaged objective of small SSPs’
harmonisation incorporating some programme specific and across-the-board recommendations.

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 341

Review of Literature, International Experiences in Programme Consolidation and

Methodology
The concept of programme harmonisation is quite new in the context of Bangladesh’s SSPs. Therefore,
looking for lessons from other countries could provide valuable insights – such as key success factors, major
challenges, and institutional issues, etc. Several studies in relevant literature often suggests an ideal
framework for any consolidation exercise. This section aims at reviewing the literature and international
experiences in consolidation of social security programme. It discusses practical relevance of any
methodological framework and considers the minimum required information for carrying out such an
exercise. Based on the review, a pragmatic and implementable framework for Bangladesh is proposed.

2.1. Programme Consolidation: An Overview of Global Practice

There is no clear consensus on the definition of programme consolidation or harmonisation. Harmonisation
of programmes includes but is not limited to the unification of interventions under one broad scheme.
According to Sustainable Integrated Multi-sector Planning (SIMPLA)4, “harmonisation means working on
those areas which are complementary in order to have the plans working together for the achievement of
an overall strategic objective.” In terms of operation, the harmonisation process can be summarized into
four main steps namely – planning, implementation, monitoring, and updating (Figure 6.1).

The planning phase includes initial assessment, the involvement of the stakeholders, and harmonisation plan
of the programmes. In the implementation of phase consolidation activities, a well-defined time horizon is
required to achieve harmonisation objectives, and monitoring plans are undertaken. Information on
efficiency and effectiveness indicators of harmonisation are collected, and the plan is then reviewed during
the monitoring phase with stakeholders. Finally, with the updates of the monitoring phase, the initial plan
of harmonisation is reviewed and updated.

As noted in the literature, harmonisation and consolidation usually occur with a view to saving resources
and improving efficiency. Sometimes in the private or public sectors, departments that are similar and have
a common purpose merge together, to reduce the administrative costs and achieve economies of scale.
Another objective of consolidation is to better achieve the objectives of separate departments by
streamlining management responsibilities. Nevertheless, attaining these objectives would require a clear
focus on the goal and follow a systematic framework.

Figure 6.1: Steps in Programme Harmonisation

Planning Implement
ation

Updating Monitoring

4 A COMPENDIUM
Sustainable Integrated Multi-sector Planning (SIMPLA) supports local authorities in harmonizing OF SOCIALPROTECTION
their Sustainable Energy Action RESEARCHES
Plans (SEAPs) in Europe.
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 342

Several studies explore the harmonisation and consolidation practices for different types of programmes
across many countries. Neve et al. (2017) discusses the harmonisation of community-based health worker
programmes for HIV across several countries. Based on their work, harmonisation for our case of small
programmes can be defined as initiatives of improving collaboration among involved stakeholders to
contribute together to a comprehensive, sustainable, and efficient social security system. This initiative
requires advocacy, programming, funding, implementation, monitoring, and building a knowledge base for
existing small programmes.

According to Neve et al. (2017), harmonisation can be conducted along with a number of dimensions, all of
which can be grouped into three broad objectives. First, is the coordination among the stakeholders, i.e.
development partners, ministries, and local authorities. This objective is one of the preconditions of a
successful harmonisation initiative. Coordination among the stakeholders should focus on reducing
duplication, fragmentation, and an overlap of objectives. The second crucial dimension of a successful
harmonisation approach is integration. Integration is defined as the assimilation of social interventions into
prime targets of the social security system. Integration plays an important role in clarifying the
responsibilities of ministries in charge. Integration also standardises small SSPs and improves efficiency by
addressing objectives while reducing both administrative costs and targeting errors. The third dimension to
consider while pursuing harmonisation is the sustainability of programmes. Sustainability ensures the
continuation of programmes aligned with the long-term goals of NSSS.

Jaccound et al. (2010) discussed the development of social assistance policy in Brazil and considered the
efforts involved in consolidating social assistance services. Brazil's initiative required substantial
management reforms to strengthen the distribution of benefits. It also introduced the National Social
Assistance Plan (2004) which laid the groundwork for the consolidation of social assistance services based
on territories and by complexity. This plan made it mandatory to establish public infrastructures at
municipality level to organise social services by regions. This intervention significantly improved the delivery
of social assistance benefits. Besides, that, for achieving the programme objectives, the National Social
Assistance Plan (2004) arranged a unified system based on two goals. The basic social protection services
were formed to prevent people from entering poverty and vulnerability. The second group of services are
for more specific scenarios or needs. Jaccound et al. (2010) also analyses major challenges in social assistance
policies in Brazil after the enactment of the constitution that consolidated benefits. Another paper, Fox and
Gurley (2006) explores and attempts to identify several issues involved in deciding whether consolidation of
local governments yields economic benefits. Their findings suggest that net benefits from consolidation
depends on both benefits or efficiency gained and administrative as well as management costs incurred in
consolidating the programmes.

Cecchini and Martinez (2013) talk about the harmonisation of co-responsibility transfer programmes (CTP)
to address heterogeneous demands for social protection. The target population of social protection generally
is far from homogeneous in terms of their needs, deprivations, and other situations exacerbating their living
standards. They stem from a vast assortment of cultural, age, spatial, economic, gender, and other factors.
In Chile and Columbia, the co-responsibility transfer programmes aimed at overcoming extreme poverty are
incorporated into the family support programme. Complementary strategies have also been established in
many Latin-American countries (El Salvador’s Solidarity in Rural Communities programme, Mexico’s
Oportunidades programme, to address particular characteristics, Colombia’s Families in Action programme,
etc.). One concern in the case of harmonising social security schemes is the lack of coordination in the supply
of social protection policies and programmes. Two types of integration improve the supply-side coordination
of SSPs, one being the horizontal integration, and another is vertical integration. Horizontal integration
implies the cross-sector integration and collaboration at and between the different administrative levels.
Horizontal integration includes harmonisation of activities between central and local level, among the
different sectors and actors operating at the local level and improves contact with beneficiaries. On the other
hand, vertical integration indicates the strengthening of coordination between management levels. In this

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 343

type of integration, the budgetary procedures, rules for resources transfer, shared responsibilities, functions,
and powers should be clearly specified among different management levels of the government.

Nelson (2011) discusses different measures that are practised in European countries to increase the
efficiency of social protection. It also explores the potential trade-off between efficiency and effectiveness
in the re-organization of social protection. The European Union Social Protection Committee in their ‘Europe
2020 Strategy’ has advocated improving the efficiency of social protection for member states by reducing
the complexity of programme regulations at the scale of administrative costs. One crucial policy response
mentioned in this paper is to improve the effectiveness of benefits by targeting the beneficiaries more
restrictively at the very bottom of the income distribution. Miroelli (2017) discusses the consolidation of
conditional cash transfer programmes (CCTP) that have been used as a core policy programme to address
poverty in Latin America. Consolidation and redefined targets of CCTPs in Chile and Ecuador led to an
increase in the number of beneficiaries and the budget size.

2.2. An Ideal Framework for Programme Consolidation:

There is no denying that consolidation of any set of programmes must be based on objectives and goals
following a well-structured framework. There is a wide array of literature suggesting different criterion for
programme consolidations. Based on a vivid review, the study identifies four major criteria for a systematic
harmonization process of small SSPs that can achieve the long-term vision and goals of the NSSS, namely

i. Inclusiveness: The harmonization should be consistent with the principle of inclusiveness

ii. Efficiency: The harmonization should result in an efficient use of resources.
iii. Lifecycle risks: The framework should be consistent with an inclusive social protection system that
addresses the life cycle risks of the people.
iv. Coherence: The harmonization should be an adjustment towards a more coherent social security
system that strengthens the delivery channel.

Figure 6.2: Ideal components for programme consolidation

Inclusiveness

Efficiency
Coherence Harmonisation

Lifecycle
risks

Inclusiveness ensures the right to social security benefits of the eligible population that is particularly
vulnerable and marginalized groups during their difficult times. To ensure maximum efficiency and
effectiveness, a harmonised social protection system must be provided on a non-discriminatory basis, even
though both the channels and modes of financing such programmes and transferring the benefits may differ.
Any social security programme will ensure the availability, accessibility, and adequacy of schemes distributed
to the target group population.

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 344

Another important criterion for a systematic harmonisation process is “Efficiency”. In the context of the
social protection scheme, efficiency can be considered at two different levels, the system level and the
programme level. Efficiency at the system level measures the conversion of inputs into system outputs, such
as transfers, and services delivered to beneficiaries. On the other hand, at the programme level, operational
efficiency of delivering social protection programmes can be understood as delivering social protection
‘outputs’ (resource transfers and services) at the lowest possible cost without adversely affecting the quality
of individual programmes (White, Hodges, & Greenslade, 2013). A coordinated approach should be
undertaken to serve a social protection system instead of developing numerous programmes in an isolated
manner and on an ad-hoc basis. In a well-coordinated social security system, redundancy, delicacy, coverage
gaps, and administrative costs can be mitigated. Cost efficiency at the beneficiary level can also be better
achieved through a well-coordinated system. The degree of institutional efficiency also plays a vital role in
building a well-coordinated social protection system.

Another key determinant of the harmonised social protection system is the performance and coherence of
its delivery mechanism. In many cases, it is seen that the delivery mechanism of social security involves
multiple ministries, non-governmental organizations, and other administrative agencies. An effective
mechanism of coordination among the implementing agencies should be in place for successful
implementation of these programmes. One of the main problems with the existing portfolio of small social
security programmes is that there are multiple programmes with similar objectives and target population
(fragmentation) leading to higher delivery and administrative costs. For the purpose of assessing a small SSP,
on the basis of the coherence criterion, we first need to identify its target population, objectives, and the
type of risk for which it is designed. In the next stage, it should be identified as to whether the programme
violates the consistency criterion or not. In the final stage, a small programme can be restructured or merged
with a similar programme to meet this criterion.

Lastly, as is evident from the literature, the harmonisation of social security programmes should be aligned
with the core lifecycle risk programmes. The lifecycle approach is particularly important as it puts special
focus on socially excluded groups facing social discrimination. Indeed, the present NSSS adopts a lifecycle
risk approach of social security system classifying the programmes into four categories: programmes for
children (0-18), programmes for working-age people (18-59), programmes for elderly (60+), and people with
disabilities. By disaggregating the social security budget allocation into lifecycle risks, the action plan shows
that the highest 45 per cent of the total allocation went to old age people, while the pregnancy and childhood
component shared only 3 per cent of the total allocation. This result suggests that there are significant gaps
in present allocation that needs to be adjusted considerably for implementing a lifecycle-risk centric social
security system.

It is noteworthy that strengthening the delivery system is one of the main objectives of NSSS. The delivery
system of social security involves multiple ministries, non-governmental organizations, and other
administrative agencies. An effective mechanism of coordination among implementing agencies should be
in place for successful implementation of social security programmes. One of the main problems with the
existing portfolio of small social security programmes is that there are multiple programmes with similar
objectives and target population (fragmentation) leading to higher delivery and administrative costs. For the
purpose of assessing a small SSP, on the basis of the coherence criterion, we first need to identify its target
population, objectives, and the type of risk for which it is designed. In the next stage, it should be identified
whether the programme violates the consistency criterion or not. In the final stage, a small programme can
be restructured or merged with a similar programme to meet the coherence criterion.

It must be noted that having a criterion for programme harmonisation is not sufficient to carry out the
exercise. This is primarily because, a tool is required to accompany the framework so that progress can be

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 345

monitored from time to time, and assessment can be carried out when and where it is required. There are a
couple of tools for assessing social security programmes.

One such assessment tool is the Core Diagnostic Instrument (CODI) developed by Inter-Agency Social
Protection Assessments (ISPA). The ISPA has developed a number of tools at the system level, programme
level, and delivery level. The objectives of such tools include solving the problem of inclusivity, effectiveness,
and efficiency of national social protection systems. At the national level, the CODI framework helps a
country assess its overall social protection system through a consistent set of outcome matrices in a coherent
manner (ISPA, 2012). CODI provides a comprehensive implementation guideline including data collection
framework and templates for preparing social security system assessment. In an ideal framework for
harmonisation, programme level assessment criteria in line with the system-level assessment framework of
CODI needs to be developed.

Another key tool for the analysis of efficiency and effectiveness of social protection system is the Value for
Money (VfM) exercise developed by the DFID. This method takes into consideration of both costs and
benefits of social transfer programmes in different stages of the programme: ex-ante design and appraisal
stage, implementation stage, and in ex-post evaluation. The VfM focuses on maximization of the impact of
social transfers for poverty alleviation programmes as well as minimization of the cost of the programmes.
VfM is comprised of three components: economy, efficiency, and effectiveness. The Economy component
focuses on the economy in the procurement of necessary inputs for the programmes. The Efficiency
component measures the performance of the programme in terms of the conversion of inputs into output
(value of transfers received by beneficiaries). The main component of VfM analysis is Effectiveness. This
analyses the relationship between the cost of social transfer and the value of the transfers delivered to
beneficiaries. Effectiveness highlights how the outputs are converted to outcomes and impacts of the
programme.

The discussion to this point entails some key elements essential for an ideal framework for small programme
harmonisation. As has been mentioned, for programme harmonisation it should include four key features –
namely inclusiveness, efficiency, coherence, and alignment with lifecycle risks. However, as noted, some
tools are essential for gauging the progress on particular indicators. Both CODI and VfM framework can be
considered an effective tool. But before adopting such tools as a component of the framework – a further
close inspection is required identifying to what extent the information is available essential for these
analyses.

A close inspection of the tools reveals that the proper application of CODI or VfM analysis would not be
possible in the case of Bangladesh as far as small programme consolidation is concerned. This is because
most of the information required for conducting the ex-ante analysis of the small programme harmonisation
is not readily available. For instance, for the ‘Economy’ analysis of the VfM tool, one would need to have
procurement documents for each and every small programme in consideration. After assessing the cost
breakdown, it will be needed to compare with the cost of procurement of a newly proposed combined
programme. Since such cost breakdown are not available for all the small programmes, an ex-ante ‘Economy’
analysis is not feasible. With regard to the CODI analysis, many of the indicators (such as inclusivity) follows
a subjective analysis. Suppose we would like to harmonise three small programmes with a larger existing
programme, for carrying out the inclusivity analysis – we would require a detailed breakdown of
beneficiaries, such as – how many beneficiaries were female, or had a disability, or from a marginalised
group, etc. Such details are not available for carrying out a proper CODI analysis of ‘inclusivity’. Such a lack
of information will not make it possible to analyse whether, or to what extent, the new programme would
be better off than the current programme. As such, the lack of data or programme information would limit

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 346

the application of an ideal harmonisation framework. Recognising this limitation, this study proposes an
alternative pragmatic programme harmonisation strategy. The proposed pragmatic harmonisation strategy
is constructed upon the following assumptions:

(i) Inclusivity is better ensured in a single harmonised programme compared to similar multiple
programmes: ensuring inclusivity in social security programmes requires a detailed mapping of
the beneficiaries as well as regular monitoring of the programmes. Since monitoring of a single
programme is much easier than a couple of similar smaller programmes, in this respect,
inclusivity could be better ensured through a single harmonised programme.

(ii) a single harmonised programme is more efficient than a couple of smaller programmes:
holding all other things constant, a higher number of programmes with similar objectives would
mean a more inefficient allocation of resources. This would also mean higher transaction costs.
This is because, there is always some fixed cost in operating any programme, whether large or
small. It includes costs in procurement processes such as advertising for a particular service
delivery. When a couple of programmes advertise separately for the delivery of the same service
– it means nothing but multiplication in the cost of an advertisement. Such other costs can be –
hiring and firing costs, rents, litigation charges, and other administrative costs. With the
amalgamation of all smaller programmes into an existing large programme – such a service
delivery costs can be minimised. Thereby, a single large programme would be more efficient
than a couple of smaller programmes.

(iii) Consolidated programmes are more effective in terms of achieving service goals: as has already
been mentioned, typically any social security programme service delivery has multiple layers of
administrative procedures. If multiple similar programmes are in operation by different
ministries, it would mean nothing but duplicities in delivering similar output through more
complex administrative procedures. Moreover, not all ministries/ government agencies have a
uniform efficiency in rendering services. Such procedural complexities coupled with
administrative inefficiencies can delay the service delivery attenuating the programme efficacy.
In this regard, a unified and simplified harmonised programme delivered by the most efficient
service provider would be more effective in terms of achieving the programme goals.

2.3. Methodology for Small Programme Consolidation in the Context of Bangladesh:

2.3.1. Small Programme Harmonisation Strategy:
As already mentioned, even though the NSSS suggested small programme harmonization, it does not provide
any clear attribute for distinguishing small SSPs. One of the major methodological question faced by the
study team was ‘how to define small social security programmes in the context of Bangladesh’. For defining
a social security programme as small, the present study undertook an in-depth review of existing literature
and consulted with social security experts, government officials and SSPS project officials. Based on this
detailed exercise, a threshold share in the total SSP budget was identified for separating out the small SSPs
as the first step. The programmes listed in the Ministry of Finance prepared by the Social Safety Net budget
was considered as the ‘pool of all social security programmes. After careful analysis, from that list,
programmes that were allocated less than 0.5% of the total SSP budget are distinguished as small SSPs.
However, for harmonizing small SSPs, another round of filtering is applied. As such, programmes that will
face natural death or programmes which are mostly construction-types are separated out in the second

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 347

stage (Figure 6.3).5 Moreover, programmes related to the delivery of essential supplies related to health
(such as contraceptives), nutrition, or delivery of other utilities are not considered for harmonisation.

Small SSPs considered for harmonisation in this study have components of life-cycle risks, covariate risks,
and social empowerment such as training, microcredits, gender-related issues, disability, marginalised
groups, and special groups of population. If the selected small programme is unique in terms of objectives,
no consolidation will be required for the programme. Such a programme should continue or expand if
deemed necessary. However, if the small SSP is being run with similar or overlapping objectives of some
other SSP, the programme should be considered for harmonization. Finally, if the programme selected by
utilizing the above procedure ends before 2021, it is assumed to be inappropriate for this study as such a
scheme will phase itself out.

Following this above-mentioned procedure, 42 small programmes (out of 85) are finally selected for
harmonization.6 In order to consolidate small SSPs, once selected, the study follows a step-by-step strategic
approach illustrated in Figure 6.4. The process starts at the node where the small programme selection
procedure ended in Figure 6.3.

Based on a detailed desk research, a profile of these programmes has been prepared. In many cases, where
up-to-date information was not available, the team cross-validated it from KIIs with relevant government
officials. Gathering this information, all the programme objectives were observed in detail and categorised
into three broad classes: (i) lifecycle programmes; (ii) covariate risks; and (iii) special programmes. Once
categorised, these programme objectives are then cross-tabulated against the NSSS objectives. In the cases
where NSSS stipulated similar large programmes (for instance the National Nutrition Services (NNS)), the
small programme is suggested to be consolidated with such a programme. The research team realized for
some of the small SSPs, no large programme with similar goals is stipulated in the NSSS (as such the case for
microcredits or skill development programmes). In such scenarios, this research provides suggestions on the
structure of a few large programmes consolidating small SSPs with similar objectives.

2.3.2. Data and Sources of Information:

With a view to obtaining the research objectives of this study, both qualitative and quantitative approaches
are applied. The qualitative approaches include undertaking a comprehensive review of literature, key
informant interviews (KIIs) with government officials involved in the implementation and administration of
small SSPs, and case studies on the beneficiaries of small SSPs. The empirical method in this report involves
an analysis of studies and data on small social security programmes’ budget allocation, number of
beneficiaries, target groups of population, area of coverage, and objectives that were collected from various
sources including the NSSS report, the drafted NSSS midterm implementation review, corresponding
ministries’ websites, interviews with programme officials.

5 A COMPENDIUM
For small SSPs of Bangladesh, one important constraint of applying the ideal harmonization OF SOCIALPROTECTION
framework mentioned in the literature, RESEARCHES
is the unavailability of adequate information. In order to gather information, the research team had to put enormous amount of effort
interviewing a number of social security officials. Respective websites of the ministries and several divisions provide only a limited
amount of information on the small SSPs. In addition, at times even the concerned ministries were not able to provide sufficient
information regarding many of the small social security programmes in our analysis.
6 However, for a broader analysis of the programmes, several additional programmes have been considered and added in Table 6.2

which have overlapping objectives as with the selected small SSPs.

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 348

Figure 6.3: Identification procedure of the small SSPs

Budget less than 0.5%

Yes No

Small programme Medium/Large programme

Outside of the sphere of this study

Related to construction/delivery of
service equipment?
Yes
No

Life cycle, covariate risks, social

empowerment elements, social security
support programmes? No
Yes

Overlapping objectives with other The programme is unique

large/small programmes? No
Yes

Potential programme for harmonisation No harmonisation required

Source: Prepared by RAPID based on consultations with SSPS project office and Social Security Experts

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 349

Figure 6.4: Consolidation of the small programmes: A pragmatic process

Programme
Outside the sphere
selected for
No of this study
harmonisation

Yes
Categorisation of the programme Analysis of the objectives of the small
programme

Life cycle Covariate Special

programmes risks programm
es
Or Or

Any existing large programme (as

Cross tabulation with the NSSS
specified in the NSSS) with similar
objectives
objectives?
Yes

No

Objective Justification: Shall the

programme continue?
No

Yes

Consolidate the small programme

Identifying how it will be operated Phase out the programme
with the existing large programme

Source: RAPID Assessment

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 350

Portfolio Analysis of the Small Programmes and A Pragmatic Harmonisation

Strategy
Having defined the small social security programme in the above section, it is of interest to know their salient
features, if any. In this section, a detailed mapping exercise has been carried out to gather some relevant
information on small SSPs (e.g. the number of beneficiaries, type of social protection and any other features).
The programmes are then grouped in clusters (such as programmes for children, working-age, or special
programmes, etc.) to ascertain an optimal harmonisation strategy.

The SSPs in Bangladesh are commonly classified into four broad categories: programmes for lifecycle risks,
programmes for covariate shocks, special scheme programmes, and other/miscellaneous programmes.
According to the MoF, 125 programmes have been classified as Social Security Programmes for the 2019-20
fiscal year. Among these, the top six SSP programmes constitute more than half of the total budgetary
allocation. A major share of the budget (more than 30%) is spent on pension schemes of the government
officials. Amongst others, Grameen Infrastructure Development, Honorarium for Freedom Fighters, Old Age
Allowance, Food Friendly Programme, Vulnerable Group Feeding (VGF), Vulnerable Group Development
(VGD), Employment Generation for the Poorest (EGPP), and Test Relief (TR Cash) are the major large
programmes. According to the most recent data including the government service pension schemes,
provided by the SSPS team, the most significant 20 SSPs comprise of more than 70% of the total SSP budget,
while the selected 42 small programmes have an allocation of only 4.13% of the SSP budget. Most of these
small programmes are initiated and financed by development partners.

As it has already been discussed, managing and streamlining the vast array of programmes is a rather
challenging task and requires a well-coordinated execution. To consolidate major and special programmes,
the NSSS provides some specific suggestions. As per the NSSS recommendation, schemes that are similar in
nature should be consolidated as one scheme. It suggests that programmes should be combined into some
broad categories, such as Vulnerable Women’s Benefit (VWB) programme, Child Benefit Programme,
Workfare Programme, Disability Benefits Programme. Special programmes that are targeted at a specific
group of the population should be combined under broad schemes of specialized interventions. For example,
currently, there are four programmes for the freedom fighters and their families, which are very similar and
can be consolidated into one scheme called the Freedom Fighters' Benefits Programme.

The NSSS also asks the concerned ministries to manage and determine the usefulness of their small schemes.
Redesigning and consolidating small programmes and special schemes are also envisaged by the
Government of Bangladesh in the Action Plan. In accordance with the lifecycle framework, the NSSS suggests
that small SSPs should be reshaped or modified as per one of the following procedures:

(a) Merging with similar types of major lifecycle programmes

(b) Will be continued, but should be excluded from the domain of social security
(c) Will be discontinued after the programme expiration date or will be terminated
(d) Scaling up nationwide depending on the impacts and coverage of the programme

The first question that arises while discussing the ‘small social security programmes’ is defining the
magnitude of ‘small’. As stated in Section II, based on the discussions with relevant government officials,
social security experts, and academicians, two propelling ideas are afloat. First, all SSPs having less than 0.5
per cent of the total budget (equivalent to or less than Tk. 372 crore) can be considered as small. 7 , 8
Alternatively, programmes at the bottom decile (in terms of budgetary allocation) can be considered as small
programmes. The data reveals that following 0.5 per cent cut-off value, 85 social security programmes can

7 1 crore = 10 million. A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

8 As of October 2019, USD 1 = Tk. 84.9
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 351

be identified as small (Figure 6.5). Coincidentally, these 85 programmes also rank in the bottom decile in
terms of budgetary allocation (Figure 6.6).

Figure 6.5: Distribution of SSPs by size

25000 100.00%
90.00%
20000 80.00%
70.00%
15000 60.00%
50.00%
10000 40.00%
30.00%
5000 20.00%
10.00%
0 0.00%

76
1
6
11
16
21
26
31
36
41
46
51
56
61
66
71

81
86
91
96
101
106
111
116
121
Budget (Crore BDT) Cumulative (%)

Source: RAPID analysis based on SSPS provided data

Figure 6.6: Distribution of SSPs by size

Source: RAPID analysis based on SSPS provided data

Figure 6.7: SSP programme distribution by budgetary size

# of programmes
0 6.0%
% of total SSP budget

1000 5.0%
4.0%
Budget

2000
3.0%
3000
2.0%
4000 1.0%
5000 0.0%

Budget (Crore BDT) Threshold (Crore Tk.)

% of Budget Threshold (%)

Source: RAPID analysis based on SSPS provided data 9

9 A COMPENDIUM
This graph excludes pensions for the Government service holders since that programme alone covers moreOF SOCIALPROTECTION
than 30 percent of the RESEARCHES
total SSP budget.
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 352

It should be noted that neither all these 85 programmes are social security programmes, nor all of these can
be consolidated. Furthermore, some programmes will not require consolidation at all due to their natural
phase out within the project deadline. All GoB-approved projects or programmes are categorised in two
categories based on their source of funds: (i) Revenue budget programmes, and (ii) Development budget
programmes.10 Table 6.1 shows the distribution of programmes by the source of funding. Revenue budget
programmes do not have any deadline and continue until the government decides to end them. 58 out of
the total 125 SSP listed programmes fall under this category. However, nearly two-thirds of these
programmes, 37 to be exact, can be categorised as small following the 0.5 per cent cut off criterion. The
Development Budget programmes primarily consist of projects undertaken by the GoB. In many cases, these
projects are devised and funded in collaboration with the development partners. Examples of such
programmes include ‘Reaching Out-of-School Children’ (co-funded by the World Bank), SWAPNO (co-funded
by the UNDP), Support to the Urban Health and Nutrition to the Urban Bangladesh (funded by the EU),
amongst others.11 Such programmes vary in duration and are omitted from the SSP list once phased out. The
number of programmes in development budget thus varies from year to year. From Table 6.1 we can see,
SSP Budget for FY2019-20 lists 54 such ongoing programmes out of which 38 are small. In addition, in the
2019-20 fiscal year, 13 new programmes/projects have been included in the development expenditure
where 10 programmes are small.

Table 6.1: Programmes by the source of funding

Item Revenue Development New Row
Budget Budget Development total
(ongoing Projects
programmes)
Programmes # of small programmes 37 38 10 85
Total # of programmes 58 54 13 125
Small programmes (% of total 64% 70% 77% 68%
programmes
Budget Total Sectoral Budget 53435 18540 2392 74367
Total SSP budget 74364
Sectoral Budget (as % of total) 72% 25% 3% 100%
Source: RAPID Assessment based on MoF data

Following the selection procedure mentioned in the methodology section, we performed another round of
mapping (Annex Tables 6.13-6.15) of small SSPs for two reasons. First, not all the identified 85 programmes
were able to be harmonised. A close inspection of the programmes reveals that some of the programmes
are purely for construction, the supply of essential health and nutrition materials or utilities, etc. Essentially,
these programmes do not fit in the definition of the ‘social security programmes’ iconised in the NSSS. Nor
do these programmes require harmonisation. For instance, it is not required to bring ‘construction of colony
for the cleaners of Dhaka City Corporation’ and ‘construction of flood shelter in the flood and river erosion-
prone areas’ under a common umbrella. Furthermore, as has already been mentioned, most of the
development expenditure programmes are supposed to end at some point. Some of these programmes are
scheduled to end before 2021.12 Such programmes, which are mostly donor devised and funded, are less

10 Revenue expenditure and development expenditures have been relabeled as ‘Operating A COMPENDIUM
expenditures’ andOF SOCIALPROTECTION RESEARCHES
‘Development
expenditures’ from 2019-20.
11 All the names mentioned in this report follows as specified in the SSP list of the MoF. However, in some cases, discrepancies have

been noticed between the reported name on the project website and the MoF document. As such, the name of the programme
‘Support to the Urban Health and Nutrition to the Urban Bangladesh’ has been mentioned as ‘Support to health and nutrition to the
poor in Urban Bangladesh’ in the EU website ([Link]
accessed on 12 September 2019).
12 For instance, the EU ‘Support to the Urban Health and Nutrition to the Urban Bangladesh’ is scheduled to end in November 2019.

However, the programme is likely to be continued for another phase.

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 353

likely candidates for harmonisation. Pragmatically, if not extended further, these programmes will
automatically phase out by the time a finalised strategy for small SSP consolidation is adopted.

Table 6.2 provides an overview of important social security programmes in Bangladesh. Information
presented in the Table 6.2 include budgetary allocation per programme for FY2019-20 (in TK. crore), number
of beneficiaries (in Lakh), categorisation of the programme by size (large if the budget is more than 1% of
the total SSP allocation; medium if it is between 0.5% and 1%; and small if less than 0.5%), programme type:
whether the programme falls under lifecycle category (L), covariate risks (C), and special programme (S).
Based on the discussion and observation of the programme objectives, further analysis is performed on
whether the programmes had overlapping objectives. Finally, a remark has been made whether the
programme is an SSP, a Social Security Support Programme (SSSP), or neither of it (N). Out of the total of 42
selected small programmes, 19 are lifecycle support programmes, 20 are special programmes, and 3 are
covariate risk programmes. Even though small programmes comprise less than 5% of the total SSP budget,
harmonising these programmes will have important coordinated impacts on addressing risks and challenges
associated with different stages of the lifecycle. According to the NSSS 2015 report, both the number and
budget (in Tk.) of small social security programmes have been steadily increasing over the years. However,
we observed a declining trend in the percentage of GDP allocated for small programmes. A review of the
small SSPs also indicates that there is severe overlap among programmes in terms of programme goals, and
some are too small to have any meaningful impact on the targeted groups of the population. Due to the
duplicity, programmes that are similar in nature can be consolidated to make programme administration
more manageable and reduce the administrative cost of operation.

Box 6.1: Categorising social security programmes

In this study (Table 6.2), programmes are classified into the following four categories: (i) Lifecycle Risk
programmes; (ii) Covariate risks programmes; (iii) Special programmes; (iv) Social Security Support
programmes. The definition we followed is as follows:
- Lifecycle risk programmes (‘L’): These are the programmes with such components that can
effectively help tackle lifecycle risks. For instance, maternity allowances and nutrition programmes
reduce the risks for infant mortalities or child undernourishment. Training and skill upgradations
can reduce the risks of unemployment and underemployment for youth and women, and thus
contributing to reducing poverty.13
- Covariate risks (‘C’): A programme has been classified as ‘C’ if its objective is to tackle idiosyncratic
or covariate shocks. An idiosyncratic shock affects individuals or households, whereas covariate
shocks affect groups of households, communities, regions or even the entire country (PEP, 2011).
Following this definition, the ‘Fund for the Welfare of Acid Burnt Women and Disabled’ is a
programme targeted for tackling idiosyncratic shock. On the other hand, the ‘Fund for Assistance to
the Small Farmer and Poultry Farms’ can be categorised as a programme for covariate shocks. 14 For
the ease of discussion, all such programmes have been simply classified under covariate risks - C.
- Special programmes (‘S): All other programmes which cannot be categorised either as L or C have
been classified as Special Programmes (S). However, as easily understood, special programmes
widely vary in types. For instance, some of the special programmes are related to constructions (such
as Grameen Infrastructure Development, or Agricultural Infrastructure Development, etc.). Although
these programmes do not directly fall under the definition of the Social Security/Protection/Safety
Net, they have some components which indirectly help attain the broader objective of social
protection. Thus, such programmes have been classified as Social Security Support Programme,
meaning they might not be SSPs themselves, but they help attain/avail broader objectives of an SSPs.

13 A COMPENDIUM
Unemployment and underemployment are considered as the major contributors to poverty. OFare
Both these rates SOCIALPROTECTION
substantially RESEARCHES
higher (almost double) for youth (aged 15-24) and women.
14 ‘Fund for Assistance to the Small Farmer and Poultry Farms’ is provided to the poultry farmers affected by the outbreak of bird

flu.
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 354

Moreover, some of the special programmes are entirely region-specific (such as for Haor areas, or
for coastal areas, etc.) and hence been labelled as ‘Region Specific Special Programme’.
- Based on the discussion and observation of the programme objectives, further analysis is done
whether the programmes had overlapping objectives.
- Finally, some comments have been made if the programme in question is SSP, Social Security Support
Programme (SSSP), or Neither of it (N).

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 355

Table 6.2: A brief overview of the selected Social Security Programmes

Ministry / Name of Programme Benefi. Budget % of Large Programme Programme Overlappin Program
Division (2019- (2019- Budget /Mid/ Type: Lifecycle category: g of me Type:
20) 20) Small -L; Covariate Children – C; objectives SSP/
(Lakh) (Crore risks - C; Working age within SSSP/
TK.) Special - W; Disabled Lifecycle: Neither
programmes- S - D; Yes/No (N)
LGD, Grameen Infrastructure Development 0.00 4,126 5.55% L S Y SSSP
MoLGRDC
MoF Food Friendly Programme 0.50 2,624 3.53% L C N Y
MoDMR Vulnerable Group Feeding (VGF) 83.41 1,957 2.63% L L W Y Y
MoWCA Vulnerable Group Development (VGD) 142.47 1,699 2.28% L L W Y Y
MoDMR Employment Generation Programme for the 8.27 1,650 2.22% L L W Y Y
Poor
MoDMR Test Relief (TR) Cash 20.98 1,530 2.06% L C Y Y
MoDMR Food for Work (FFW) 17.14 1,204 1.62% L C Y Y
MoHFW Maternal, Neo-natal, Child and Adolescent 697.95 929 1.25% L L C Y Y
Health
LGD, Haor Infrastructure and livelihood Development 1.85 868 1.17% L Region Specific Y Y
MoLGRDC SP
LGD, Income Support Program for the Poorest 10.81 778 1.05% L L W Y Y
MoLGRDC
MoHFW T.B., Leprosy, Communicable Non- 3,029.2 753 1.01% L C Y Y
communicable Disease 5
MoDMR Work For Money (WFM) 15.81 750 1.01% L L W Y Y
Flood Management and Livelihood 0.00 552 0.74% M Region Specific Y N
Improvement Project in Haor Area SP
MoDMR Gratuitous Relief (GR) 56.82 544 0.73% M C N Y
MoF / FinDiv Skills for Employment Investment Programme 2.34 433 0.58% M L W Y Y
LGD, Rural Infrastructure Development 0.00 420 0.56% M S Y SSSP
MoLGRDC
Mo Education Skill and Employment Programme in 0.00 372 0.50% S L W Y Y
Bangladesh
MoF / BFID Social Development Foundation 0.00 235 0.32% S Region Specific N/A N
SP
MoHFW Maternal, Child, Reproductive and Adolescent 746.09 235 0.32% S L C Y Y
Health

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 356

LGD, Char Development and Settlement 10.18 227 0.31% S Region Specific Y N
MoLGRDC SP
Child protection and child welfare 0.00 189 0.25% S L C Y Y
Development of the Living Standard of the 0.00 183 0.25% S S N Y
Marginal People of Bangladesh
MoLand Gucchagram (Climate Victims Rehabilitation) 1.28 165 0.22% S Region Specific Y N
SP
MoPMEdu Reaching Out of School 5.60 156 0.21% S L C N Y
LGD, Coastal Climate Resilient Infrastructure 0.27 156 0.21% S Region Specific N N
MoLGRDC Improvement SP
MoSW Assistance for Cancer, Kidney and Liver Cirrhosis 0.30 150 0.20% S C Y Y
Patients
MoWCA Special Fund for Assistance to women 0.00 125 0.17% S L W Y Y
development & entrepreneurs
Child and Maternal Health & Health 0.00 108 0.15% S L C Y Y
Management Development
LGD, Urban Public Environmental Health Care (Devt. 0.00 104 0.14% S S N Y
MoLGRDC Programme)
MoF / FinDiv Fund for Assistance to the Small Farmer and 1.00 100 0.13% S C N Y
Poultry Farms
MoSW Stipend for Disabled Students 100.00 96 0.13% S L D N/A Y
MoWCA Income Generating Activities for Women at 0.30 91 0.12% S L W Y Y
Upazila Level
MoSW Programme for Improving the Livelihood of 0.81 67 0.09% S S Y Y
Harijan, Dalit, Bade community (Bede and
disadvantage community 2017-18)
MoSW Service and Assistance Centre for Disabled 3.76 65 0.09% S SSSP N/A N
Interest free Micro Credit Programme 0.21 58 0.08% S L W Y N
MoHFW Support to the Urban Health and Nutrition to 1.14 56 0.08% S L C Y Y
Bangladesh
Special Assistance for the development of Char, 0.23 50 0.07% S Region Specific Y N
Haor and development area SP
MoWCA Oppressed Women and Children Welfare Fund 0.00 50 0.07% S S Y N
PMO Lump Sum Provision for Development of Special 0.21 50 0.07% S Region Specific N/A N
Areas (Except Hill Tracts) SP
LGD, Strengthening Women’s Ability for Productive 0.00 43 0.06% S L W Y Y
MoLGRDC New Opportunities (SWAPNO)
Improved life Standard for low-income people 0.00 42 0.06% S L W Y Y

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 357

LGD, Agriculture Infrastructure Improvement 0.85 41 0.05% S S N N

MoLGRDC (Bangladesh Agriculture Infrastructure
Development Project)
MoSW Grants for the Schools for the Disabled 0.35 28 0.04% S SSSP Y SPSP
MoSW Trust for the protection of the persons with 0.00 28 0.04% S SSSP D N SPSP
neurodevelopmental disabilities
RDCD, Rural Settlement Construction for improvement 0.01 25 0.03% S S Y N
MoLGRDC of Rural Livelihood
MoSW Programme for Livelihood Improvement of tea- 0.50 25 0.03% S S Y Y
garden labourers
MoWCA Urban Based Marginal Women Development 0.53 21 0.03% S L W Y Y
(Urban Based Women Development Project
Phase-2_2017-18)
Providing Primary Health, Reproductive Health 20 0.03% S L C Y Y
and Nutrition Services to Underprivileged
Woman and Children in
MoWCA Early Learning for Child Development 0.50 20 0.03% S L C Y Y
RDCD, Employment of Ultra Poor in Northern Areas 0.06 19 0.03% S L W Y Y
MoLGRDC
MoSW Welfare Trust for Physical disabilities 0.00 15 0.02% S SSSP N/A Y
MoWCA Women's Skill Based Training For Livelihood 0.00 7 0.01% S L W Y Y
MoWCA Micro-credit for Women Self- employment 0.34 6 0.01% S L W Y N
MoSW Programme for Improving the Livelihood of 0.06 6 0.01% S S Y Y
Trans-Gender (Hijra)
MoWCA Street Children Rehabilitation Programme 0.02 4 0.01% S L C N/A Y
MoSW Rehabilitation and Creation of Alternative 0.08 4 0.01% S S N/A Y
Employment for Beggars Profession
The sustainable socio-economic development 2 0.00% S S N/A N
and rehabilitation programs of underprivileged
and poor disabled and autistic people through
special education, health care and various
training programs
MoSW Fund for the Welfare of Acid Burnt Women and 0.33 2 0.00% S C N/A N
Disabled
Source: RAPID Assessment based on data provided by the SSPS project office, and KIIs with the relevant government officials

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 358

One interesting feature of the identified small SSPs is that most of them are operated by only a few ministries
(Figure 6.8). As such, out of 42 small programmes, 29 programmes are run by three ministries namely –
MoSW, MoLGRDC, and MoWCA. The largest number of small SSPs are administered by MoSW which runs 14
small SSP programmes worth of Tk. 736 crore. The MoLGRDC runs 8 programmes worth of Tk 797 crore,
followed by the MoWCA running 7 programmes worth of Tk 319 crore.

Figure 6.8: Small programmes by various ministries

18 MoSW, 736

16

14 MoLGRDC, 854
Small programmes, #

12
MoWCA, 338
10 MoLand, 165
8
Others, 95
6
PMO, 50
4 MoHFW, 343
MoPMEd, 156 MoF, 335
2

0
-2 0 2 4 6 8 10 12
-2
In order of total small SSP allocation by ministries: from low to high

Source: RAPID Assessment based on MoF data provided by the SSPS office

Figure 6.9: Distribution of the selected programmes by Ministries/Divisions

Source: RAPID Assessment based on MoF data provided by the SSPS office

However, within the ministries, different bodies are sometimes undertaking different programmes, with
similar objectives. From Figure 6.9, it is observed that 14 small programmes identified for the MoSW are
implemented by three different bodies, namely – Department of Social Services (DSS), Neuro-Developmental
Disability Protection Trust (NDDPT), and the Sharirik Protibondhi Suroksha Trust (SPST). In the case of
MoWCA, the programmes are implemented by Jatiya Mohila Samity (JMS), Department of Women Affairs
(DWA), Bangladesh Shishu Academy (BSA), and the ministry itself. All the programmes from the MoLGRDC

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 359

are implemented by Local Government Division (LGD), and the Rural Development and Co-operatives
Division (RDCD).

3.1. Strategies of Small SSPs Harmonization in the Context of Bangladesh

In the context of Bangladesh, consolidation of small programmes was one of the founding recommendations
put forward by the NSSS. It suggested the programme implementing ministries to prepare business cases for
the small programmes (Box 3.1). Based on the business cases, GED had the role to propose the business
cases to the Cabinet Division on which of the schemes should continue. However, as the NSSS Midterm
Implementation Review (for phase I) has pointed out, none of the ministries reported a business cases to the
GED.15 As a result, the consolidation of the small programme did not mark any practical progress as envisaged
in the NSSS. While the NSSS focused on programme consolidation, the ideas regarding programme
harmonisation of small programmes have evolved over time. Harmonisation of programmes includes but is
not limited to the unification of interventions under one broad scheme. It also requires streamlining of
benefits delivery to the target group population in order to improve both the administrative and economic
efficiency.

Box 6.2: The NSSS on the consolidation of the small programme

“In recent years, there has been a rapid expansion in the number of small schemes. Much of this has
been led by development partners, usually well intentioned, as new approaches have been piloted
and specific challenges addressed. However, with the formulation of core programmes of the NSSS,
it is important that these schemes are adding value in terms of innovative ideas with prospects for
scaling up and joining up. It is also critical that the governance arrangements to be put in place
anticipate coordination of the development partners’ support to allow the vision of consolidated
social security programming to function fully. Under the leadership of the GED of the Planning
Commission, each sponsoring Ministry of these small schemes e.g. schemes of Ministry of Fisheries
and Livestock, Ministry of Cultural Affairs, Ministry of Youth and Sports, Ministry of Expatriate
Welfare and Overseas Employment etc. will be responsible for determining the value of these
schemes and, present a business case if they believe that the programme should continue. Under the
leadership of GED, the Planning Commission will, on the basis of the business cases, make proposals
to Cabinet Division on which schemes should continue.”
- NSSS (pp. 60-61)

This section proposes a pragmatic approach in consolidating the small SSPs. It undertakes the core NSSS
theme, i.e., ‘programme consolidation along with the life cycle risks’ (NSSS, pp. XXII), as the departing point
for framework preparation. All the programmes are clustered around the lifecycle risks, covariate risks, or
special programmes based on their observed objectives. Finally, based on the analysis of the objectives of
the programmes, this section proposes an optimal strategic framework for programme consolidation.

The NSSS provides a systematic framework for revising the overall social security structure. It divides the
implementation time into two phases. In phase I (2015-2025), it aims to shift from discretionary to a targeted
universal approach. In this regard, it emphasises on consolidating all programmes along with lifecycle risks.
One of the major strengths of the NSSS is its provision of a detailed outline of the programmes to be
considered for each stage of the lifecycle (Table 6.3). For instance, it suggested that two core programmes
for children, one for ensuring early child development (0-4) and the other for enhancing the access and
integration to education for all children (5-18). For the working age population (19-59), it suggests
strengthening the education, training programmes, and workfare programmes. Noting the need for more
emphasised vision for vulnerable women, it suggested for developing the Vulnerable Women’s Benefit

15 A COMPENDIUM
The NSSS Midterm Implementation Review was still in the draft phase when this report OF SOCIALPROTECTION RESEARCHES
was being prepared..
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 360

programme. In addition, it also emphasised for maternal health care, provision of day-care centres, etc. For
the elderly, the NSSS suggests a universal old age allowance programme (age 60+) along with new pension
schemes such as Private Voluntary Pensions and National Social Insurance Schemes. Lastly, the NSSS suggests
for initiating Child Dependency Benefit programme and Working Age Dependency Benefit Programme for
the PWDs.

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 361

Table 6.3: An overview of the NSSS suggestions on aligning the SSPs along the lifecycle
Programme name/ Core programmes stipulated by the NSSS Specific suggestions
category
Programmes for Children • A child grant for children of the poor and vulnerable family up to age 4. The child grant will be • Child Benefit Programme
(0-18) limited to a maximum of two children per family to avoid any adverse implications on the • Primary and Secondary School Stipends
population policy. • Continuing Orphan’s and
• A school stipend for all primary and secondary school-going children and adolescents from the School Meals Programmes
poor and vulnerable households. • Ensuring Child Maintenance
• Child disability benefit programme; school meals programme; Programme for the orphans Payment for Abandoned Children
abandoned children. • Strengthen Immunization, Child Healthcare,
• Strengthening supply-side interventions relating to immunization, childcare health and nutrition, Nutrition and Water and Sanitation
water supply, sanitation, and nutrition outreach. Programmes.
Programmes for the • Strengthening education and training programmes to motivate the adolescents and youth to • Strengthen Education and Training for the
Working Age complete education; enabling the workforce to acquire required skills. youth
• Strengthening workfare programmes for the unemployed poor. Convert food-based workfare • Consolidate Workfare
programmes into cash-based programmes and consolidate fragmented schemes. Programmes
• Exploring possibilities of providing unemployment, sickness, maternity and accidental insurance • Implement MHVS.
as a part of a National Social Insurance Scheme (NSIS). • Consolidate VGD and Programme for Destitute
• Implementing a programme of financial support to vulnerable women (widows, divorced, Women into one VWB
destitute, single mother, and unemployed women including adolescent girls) and facilitate their programme.
participation in the labour force. The strategy advocates for a consolidated income transfer • Provision of Childcare across all Formal &
under Vulnerable Women’s Benefit (VWB) programme. Informal job places.
• The strategy provides for expansion of the Maternal Health Voucher Scheme (MHVS)
administered by the HSD and MEFWD of the Ministry of Health and Family Welfare.
Comprehensive Pension • The Old Age Allowance for senior citizens who are aged 60 years and above and belong to the • Old Age Allowance (age 60 +) should be
System for Elderly poor and vulnerable population. continued; the benefits should be revised from
• Explore possibilities to establish a National Social Insurance Scheme (NSIS), to be managed under time to time to adjust for the inflation
the Insurance Development & Regulatory Authority (IDRA) under the provision of the Insurance • Introducing National Social Insurance Scheme
Act-2010, based on the principle of employers and employees jointly paying contribution. The (NSIS)
NSIS would provide pensions as well as address other contingencies (such as disability, sickness, • Private Voluntary Pensions scheme should be in
unemployment and maternity). place
• Review options to facilitate the development of Private Voluntary Pension (PVP), which would
be open to all citizens irrespective of occupation or formality of employment.
Programmes for People • A comprehensive disability benefits programme should be initiated incorporating lifecycle risks. • A disability benefit for children with disabilities
with Disabilities • 60+ persons with disabilities should receive old allowances along with an additional amount • A disability benefit for working-age population
with disabilities
Source: NSSS (2015), NSSS Implementation Action Plan

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 362

3.2. Profile of the Small Social Security Programmes

Based on the review, the selected small programmes can be strategically classified into three categories
(Table 6.4). Out of the 42 programmes, 19 falls in the lifecycle, 3 in the covariate risks, and 20 in the special
programme category. Furthermore, all the lifecycle risk programmes have been divided into three categories
- programmes for children, programmes for working-age, and programmes for PWDs.

Table 6.4: Classifications of the selected small SSPs

Programmes by Broad classifications
Programme Number of programmes Amount of budget (crore Taka, 2019-20)
Lifecycle 19 1668
Covariate risk 3 252
Special programme 20 1526

Programmes by lifecycle categories

Programme Number of programmes Amount of budget (crore Taka, 2019-20)
Programmes for children 8 788
Programmes for working age 10 784
Programmes for PWDs 7 236
Programmes for women 11 708
Note: Some of the programmes are repetitive in this list as they have multiple components. For instance,
the programme “Maternal, Child, Reproductive and Adolescent Health” can be considered for both
children and women. 4 of the programmes for the PWDs are categorised as special programmes.

These different types of small SSPs are discussed in detail in the following sections of this chapter.

3.2.1. Small SSPs for Children:

Out of the selected 42 programmes, eight programmes can be categorised for children.16 These programmes
can be further grouped into three broad headings, namely

a. Programmes on health and nutrition

b. Programmes on education
c. Programmes on child protection

a. Programmes on children’s health and nutrition:

There are four small programmes currently being implemented, namely ‘Maternal, Child, Reproductive and
Adolescent Health Care’, ‘Child and Maternal Health & Health Management Development’, ‘Support to the
Urban Health and Nutrition to Bangladesh’, and ‘Providing Primary Health, Reproductive Health and
Nutrition Services to Underprivileged Women and Children’.

The Maternal, Child, Reproductive, and Adolescent Health Programme (MCRAHP) came into operation in
FY2011-12. As per the operation plan, the project was initially scheduled to be completed by June 2016,
which was later extended.17 The project is being implemented by the Directorate General of Family Planning
(DGFP). The programme is intended to “ensure healthy reproductive life of women and adolescent during
pregnancy and childbirth and throughout the whole span of reproductive life by skilled service providers”
(DGHS, 2019). The specific objectives of the programmes are as follows:

16 A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

Table 6.5 provides an analytical as well as comparative synopsis of these programmes.
17The project document is obtained from: [Link]
16%20writup%[Link]; accessed on 6 October 2019.
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 363

• To ensure safe delivery at home and facility

• To provide services to adolescent boys and girls
• To provide services to community people on nutritional aspects of health
• To train service providers for ensuring the quality of care
• To ensure logistic supplies to service delivery point and the community
• To introduce new evidence-based best practices in the program
• To monitor and supervise the program activities to ensure the quality of care
Two major components of the programme are – (1) Service delivery: including (i) Maternal Health Services,
(ii) Reproduction Health Care Services, (iii) Adolescent Health Care Services, and (iv) New-born and Child
Healthcare Services, and (v) Nutrition Services; and (2) Training of the service providers, midwives, etc. With
a budget of over Tk. 200 crores the project aims to reach 746 lac beneficiaries per month.18

The programme objectives are quite overlapping with another large programme being implemented by the
Directorate General of Health Services, under the Health Service Division of the MoHFW.19 The Programme,
named ‘Maternal Neonatal Child and Adolescent Health’ (MNCAH), is a large programme as per the
definition followed in this study (Table 6.15). The programme is being continued since 2011 and will be
completed in June 2022. This programme has five major components, namely – (i) Maternal Health, (ii)
Expanded Programme on Immunisation, (iii) National New-born Health Programme (NNHP)) and Integrated
Management of Childhood Illness ((IMCI), (iv) Adolescent Health, and (v) School Health. Along with training
of the service providers, it incorporates awareness-raising activities, workshops, etc. The programme has a
budget of Tk 929 crore and aims to reach 698 lac persons per month.

It must be noted that both the programmes have several unique features. For example, the DGFP run
‘MCRAHP’ programme is more focused on family planning, and reproductive health. On the other hand, the
programme run by DGHS (MNCAC) has a major focus on immunisation, neonatal care, childhood illness,
school health programme, etc. However, both the programmes have similar training components (such as
midwifery and training of the doctors, nurses and other medical service providers), reproductive healthcare
plans, service delivery mechanism, etc. If the programmes are combined into a single programme, a more
enhanced operational outcome can be achieved.

As for the Child and Maternal Health and Health Management Development Programme, the study team
could not retrieve any operational manual/project documents. However, based on interviews with SSP
experts the programme was identified as a project on strengthening the health management system.
Moreover, given that the programme does not have any beneficiaries but yearly expenditures, it is assumed
that the programme is a delivery programme for service equipment, training, or capacity building.

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

18 As reported by the MoF. The beneficiary number is such high as it counts a beneficiary as many times as
she receives the service.
19 The project document is available at: [Link]

accessed on 6 October 2019.

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 364

Figure 6.10: Maternal, Child, Reproductive and Figure 6.11: Child and Maternal Health & Health
Adolescent Health Management Development
250 800 Revised Budget*

Beneficiary number
700
200
Budget (crore)

600 Number of beneficiary (revised, in lacs)

107.9
150 500
400
100 300
50 200
100
0 0

44.95

6.95
Revised Budget*

0
0

0
Number of beneficiary (revised, in lacs) FY2017-18 FY2018-19 FY2019-20

Figure 6.12: Support to the Urban Health and Figure 6.13: Providing Primary Health,
Nutrition to Bangladesh Reproductive Health and Nutrition Services to
Underprivileged Woman and Children
60 1.2 35
50 1
Budget (crore)

30
Beneficiaries

40 0.8 25
30 0.6
20
20 0.4
15
10 0.2
10
0 0
5
0
FY2018-19 FY2019-20

Revised Budget* Revised Budget*

Number of beneficiary (revised, in lacs) Number of beneficiary (revised, in lacs)

Source: RAPID Assessment based on MoF data

One other programme - Urban Health and Nutrition to Bangladesh - is a European Union (EU) funded project
being implemented by the LGD of the MoLGRDC. The project aims to “support NGOs to work with
municipalities to deliver primary healthcare and nutrition to the poor residents of urban slums while building
institutions for long-term sustainable service delivery and coordination”.20 It also aims at strengthening the
MoLGRDC and LGD in addressing the urban heath responsibilities and ensure the provision of urban health
services. As mentioned in the project website, the main objectives of this programme are:

• Facilitate the establishment of a coordination mechanism between the different stakeholders of

urban health especially the MoHFW, MoLGRDC, LGD and Municipalities / City Corporations
• Strengthening the capacity of MoLGRDC to manage the delivery of healthcare services to the urban
poor through Public-Private Partnerships (PPPs)
• Strengthening the capacities of the municipalities to manage PPP contracts for the delivery of
healthcare services

20 A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

The information was obtained from [Link]
accessed on 20 September 2019
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 365

• Strengthening the capacity of MoHFW to coordinate, develop and enforce essential health, nutrition
and population service quality standards, monitoring system and accreditation as the centralized
and decentralized levels

The programme is conducted in Dhaka South and North City Corporations, Chattogram City Corporation,
Mymensingh City Corporation, and 11 Pouroshovas. With a budget of Tk. 57 crores, its target is to reach 1.14
lac beneficiaries. The project is expected to be completed by November 2019, meaning that the programme
will face a natural consolidation if it is not extended further. 21 However, given that programmes with similar
nature have previously received extensions after the project deadline, this programme is also picked for
harmonisation.

Another small programme focusing on maternal health, child health and nutrition is “Primary Health,
Reproductive Health and Nutrition Services to underprivileged Women and Children”.22 The programme is
currently being implemented by the MoWCA and Bangladesh Family Planning Association (BFPA) in 21
districts. The three-year-long project starting since July 2018, aims to provide family planning, reproductive
health services, health and nutrition services to pregnant mother, and children. The project also aims to
modernise the medical equipment available in the project area. The total budget for the project is 98.3 crore
where 19 crores have been allocated for 2019-20.

A number of components of both of the aforementioned programmes overlap with the objective of the
National Nutrition Services (NNS), one of the large SSP programmes. The NNS aims to increase demand and
utilisation of services, develop the capacity of the community to understand and address the malnutrition
problems, develop capacity through training, advocacy etc. As per the operational manual, some of the NNS
objectives are as follows: 23

- Implementing a mainstreamed, comprehensive package of nutrition services to reduce maternal and

child malnutrition and ensure universal access.
- Developing and strengthening coordination mechanisms with key relevant sectors (particularly,
Ministry Food, Ministry of Disaster Management and Relief, Ministry of Agriculture, Ministry of
Women and Children Affairs, Ministry of Livestock and Fisheries, Ministry of Local Government and
Rural Development and Cooperatives, etc.).
- Strengthening the human resource capacity to manage, supervise and deliver nutrition services at
the different levels of the health and family planning services.

b. Programmes related to child education:

Early Learning for Child Development (ELCD) – Phase III: The Early Learning for Child Development (Phase
III) is a programme being implemented by the Bangladesh Shishu Academy (BSA), under MoWCA.24 The
phase I of this programme started in 2001 in collaboration with the UNICEF Bangladesh. It consists of several
components of the Early Childhood Care and Development (ECCD) interventions such as parenting and
caregiving education, ECCD Advocacy and Training, Child Development Centres, and Pre-primary schools.
The programme is currently being implemented in 16 Upazilas in 15 districts.25 It targets children in the age
bracket of 3-8 years. In FY2019-20 the programme targets to reach 50,000 children with a budget of Tk 19.6

21 A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

However, the LGD website reports the project deadline as December 2020: [Link]
71f688a8c73c/-; accessed on 20 September 2019.
22 [Link] accessed on 2 October 2019
23 Obtained from [Link] Accessed on 20 September 2019
24 The project information has been obtained from website of the Ministry of Women and Children Affairs:

[Link] accessed on 27 August 2019.

25 The districts are – Banderban, Borguna, Bhola, Chapai Nawabganj, Cox’s Bazar, Gaibandha, Jamalpur, Kurigram, Khulna,

Maulivi Bajar, Netrokona, Rangamati, Satkhira, Sirajganj, Sunamganj.

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 366

crore. Based on earlier documents on this project it is observed that under the ELCD project, MoWCA
operated nearly 1400 pre-primary centres for more than 41,000 children aged 5+, more than 500 Child
Development Centres for 16050 children aged 4+, and 20 day-care centres for 400 children aged 3-5 years.
As an important part of the project, it integrates autism and other disabilities (MoWCA, 2017).

Figure 6.14: Early Learning for Child Development Figure 6.15: Reaching Out of School
30 1.2 250 6

Beneficiary, Lacs
25 1 5
Budget (Crore)

Budget (crore)
200

Benediciary
20 0.8 4
150
15 0.6 3
100
10 0.4 2
5 0.2 50 1
0 0 0 0

Revised Budget* Revised Budget*

Number of beneficiary (revised, in lacs) Number of beneficiary (revised, in lacs)

Source: RAPID Assessment based on MoF data

There are several other large programmes which have similar components as the ELCD. For instance, within
the MoWCA, Jatiaya Mohila Samity, and the MoWCA runs several other day-care centres on top of the ELCD
programme. In addition, the MoSW also runs several day-care centres. It is also noteworthy that the GoB
has already officially mandated pre-primary education in its education policy. The programmes being carried
out for children with a disability under this programme is similar in nature to the programmes being carried
on by DSS.

It is noteworthy that, even if all these small programmes of different ministries are combined together, the
number is too small to meet the actual requirement under an ideal scenario. Therefore, an outright
consolidation of these programmes might not be the appropriate approach. Rather, the GoB can adopt a
gradual approach in harmonising these programmes.

Reaching Out of School (Phase II): 26

The Reaching Out-of-School (ROSC) is an endeavour of the Government of Bangladesh to provide a second
chance to education for disadvantaged children aged 8-14 years who never had the chance to enrol in the
primary schools or had to drop out due to other necessities. The project is currently being implemented by
the Directorate of the Primary Education, under the Ministry of Primary and Mass Education with assistance
from the World Bank. The broad objective of the project is “to improve equitable access, retention and
completion in quality primary education for out-of-school children in selected under-served areas”. In
principle, ROSC has four components, namely: 27

(i) Increasing equitable access to primary education

(ii) Improving retention in and completion of the primary education cycle

26 A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

[Link] accessed on 15 September 2019; [Link]
detail/P131394?lang=en&tab=overview; accessed on 15 September 2019
27Very recently a fifth component of this programme has been added: “Provide safe and equitable learning opportunities to children
and adolescents of DRP in Cox’s Bazar District, which aims to support the response to the immediate education needs of the crisis-
affected DRP children and adolescents while helping to strengthen the service delivery system of GoB in Cox’s Bazar” (Source
ibid).
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 367

(iii) Enhancing project implementation capacity through the mobilization of communities and
partner agencies
(iv) Establishing an effective monitoring and evaluation system.

The programme beneficiaries are provided with free books, education materials, exam fees, uniforms, and
education allowances. As a part of this programme learning centres (also known as ‘Ananda Schools’) are
established where teachers are appointed from the respective catchment areas. The project area includes
148 Upazilas and slums from the 11 city corporations. It has also undertaken a pre-vocational training
program targeting 25,000 ROSC graduates, students from the Shishu Kallyan Trust, as well as graduates from
the Government Primary schools aged 15+. With an average annual budget of Tk. 200 crore, the programme
has been targeted to 5.6 lac out-of-school students across the country.

The programme is unique in the sense that it targets children aged 8-15 who have dropped out of school.
However, it is noteworthy that, the GoB has undertaken several programmes to reduce dropout rates in
primary and secondary education. Attempts such as the universal primary education stipend programme,
universal midday meal programme28, free books programme, etc. are portraits of these efforts. Hence, some
of the programme’s unique features (such as exam fees, uniforms) can be introduced in the regular
primary/secondary education programmes. Moreover, the pre-vocational training programme of this project
can be incorporated in the regular curricula of the vocational training centres.

c. Programmes related to Child protection:

There are two small programmes which are directed for child protection, namely – ‘Child protection and
Child Welfare’ and ‘Street Children Rehabilitation Programme’. During the desk research, the study could not
trace any operation manual or project documents for the two programmes. However, based on the
consultation with the MoSW, it was identified that there are several programmes being implemented that
are related to child protection and welfare.29 The DSS implements ‘Child Sensitive Social Protection in
Bangladesh’. The project includes safe shelters, psychosocial services, primary healthcare, vocational
training through ‘Drop-in-Centres’ (DIC), Emergency Night Shelters (ENS), Child-Friendly Spaces (CFS), and
Open-Air Street Schools (OAS). It also includes components such as toll-free Child Helpline where telephonic
counselling is provided along with emergency supports. Another component, ‘Child Protection Network’
provides capacity building training to social workers, caregivers, trainers, amongst others. Although the
number of beneficiaries of this programme is not available, the total budget allocated for this programme
has been doubled to Tk. 190 crore in FY2019-20.

28 A COMPENDIUM
All primary schools will be brought under midday meal by 2023. Now it will be covered in theOF SOCIALPROTECTION
Haor, Char and other RESEARCHES
underdeveloped areas. [Link]
approves-national-school-meal-policy-draft
29
[Link]
01036a0d2c35/%E0%A6%B8%E0%A6%BF%E0%A6%8F%E0%A6%B8%E0%A6%AA%E0%A6%BF%E0%A6%AC%E0%A6%
BF-%E0%A6%AA%E0%A7%8D%E0%A6%B0%E0%A6%95%E0%A6%B2%E0%A7%8D%E0%A6%AA
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 368

Figure 6.16: Child protection and child welfare Figure 6.17: Street Children Rehabilitation
Programme
200.00 5 0.025

Budget (crore)

Beneficiary
4 0.02
150.00 3 0.015
2 0.01
100.00 1 0.005
0 0
50.00

-
FY2017-18 FY2018-19 FY2019-20

Number of beneficiary (revised, in lacs) Revised Budget*

Revised Budget* Number of beneficiary (revised, in lacs)

Source: RAPID Assessment based on the MoF data

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 369

Table 6.5: Selected Small SSPs for children

Programme Name Ministry/ Programme objective Similar major programme envisaged in the Remarks
Division NSSS/already existing large programmes
Maternal, Child, MoHFW (1) Service delivery: including (i) Maternal The programme overlaps with the Maternal All programmes related to pregnancy and
Reproductive and Health Services; (ii) Reproduction Health Neonatal Child and Adolescent Health’ children aged less than four (including
Adolescent Health Care Services; (iii) Adolescent Health Care (MNCAH), which aims to provide services conceive, ante-natal, post-natal, neo-natal,
Services; and (iv) New-born and Child such as (i) Maternal Health; (ii) National and child benefits) should be consolidated into
Healthcare Services; and (v) Nutrition New-born Health Programme (NNHP) and a single package. A potential programme in
Services; Integrated Management of Childhood this respect could be the programme called
(2) and Training of service providers, Midwives, Illness ((IMCI); (iii) Adolescent Health; Agamir Shishu – which is still in the drafting
etc. The programme has a similar training phase.
component.
The Nutrition component is overlapping Adolescent health care programme should be
with the NNS. integrated into the NSSS envisaged Child
Benefit programme.

All Nutrition-related programmes should be

harmonised with NNS.
Child and Maternal Health MoHFW Based on interviews with relevant officials it was - The programme should not be considered as a
& Health Management identified that this project is driven for social security programme.
Development strengthening the health management system.
Support to the Urban MoHFW - Supporting CSOs/NGOs to work with Several components of this programme Lessons from this programme can be
Health and Nutrition to municipalities to deliver primary healthcare and overlap with the objectives of the NNS, incorporated in the NNS.
Bangladesh (SUHNB) nutrition to the poor residents of urban slums such as
while building institutions for long term Developing and strengthening coordination The project is scheduled to end in 2020. If not
sustainable service delivery and coordination. mechanisms with key relevant sectors; continued further, the programme will thus
strengthening the human resource capacity have natural consolidation.
Strengthening the capacity of the relevant to manage, supervise and deliver nutrition
government bodies (including MoLGRDC, LGD, services at the different levels of the health
MoHFW, Municipalities, City Corporations, etc.). and family planning services; etc.

Providing Primary Health, MoWCA and Capacity building of the government medical The programme objectives are overlapping The programme components completely align
Reproductive Health and Family Planning centres in 21 districts. The programme aims to with the MCRAH and MNCAH. with the NSSS stipulated ‘Child Benefit’ (or,
Nutrition Services to Association of provide healthcare services to pregnant mother recently drafted ‘Agamir Shishu’ programme).
Underprivileged Woman Bangladesh and young children.
and Children

Early Learning for Child Bangladesh Ensuring a coherent implementation strategy for Day-care centres are being run by MoSW, All the day-care centres and child
Development Shishu early childcare and development. MoWCA, JMS, as well as BSA. development centres should be operated
Academy, through a single organisation.
MoWCA

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 370

Programme Name Ministry/ Programme objective Similar major programme envisaged in the Remarks
Division NSSS/already existing large programmes
The programme consists of interventions such as The pre-primary education has already The pre-primary education programme should
Parenting and Caregiving Education, Child been incorporated in the government plan. be harmonised with the MoPME drafted pre-
Development Centres, Pre-School, and ECCD primary education programme
Advocacy and Training.

More than 1400 pre-primary centres, 535 CDC,

and 20 day-care centres are in operation as part
of the programme.
Reaching Out of School MoPME Improve equitable access, retention and The government has already rolled out Elements from ROSC can be integrated into
completion in quality primary education for out- universal primary education stipend the regular primary school programme.
of-school children in selected under-served areas. programme. The midday meal programme
It provides exam fees, uniforms, free books, and will roll out nationwide by 2023. The The pre-vocational training programme of the
education allowances. objective of these two programmes, which ROSC can be integrated into the TVET
Provides pre-vocational training programme to are NSSS stipulated is to reduce the curricula.
ROSC graduates. dropout rates in primary school.
Child protection and child MoSW The project is a part of the ‘Child Sensitive Social - Although the shelter names are different, the
welfare Protection in Bangladesh’ which aims to provide objectives of these shelters remain very
safe shelters, psychosocial services, primary similar. A consolidated approach is required
healthcare, vocational training through ‘Drop-in- with regard to child protection and child
Centres’ (DIC), Emergency Night Shelters (ENS), welfare.
Child-Friendly Spaces (CFS), and Open-Air Street
Schools (OAS)

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 371

3.2.2. Programmes for the Working-age

Out of the selected 42 programmes, 11 can be classified for the working-age population. Based on the
programme objectives these programmes can be clustered in the following broad headings:

a. Financial assistance/fund/credit programmes for encouraging self-employment

b. Skill enhancement programmes
c. Skill enhancement programmes for women
d. Other programmes

Small SSPs and their administering authorities, programme objectives, and similar programmes that are
envisaged in the NSSS for the working-age population are discussed in Table 6.7.

a. Financial Assistance/fund/credit programmes for encouraging self-employment

There are three small SSPs which can be clustered in this group, namely: (i) Interest-free Microcredit
Programme; (ii) Microcredit for women self-employment; and (iii) Special Fund for Assistance to Women
Development and Entrepreneurs. The primary component of all these programmes is ‘Microcredit’ and does
not incorporate any training/skill enhancement components is mandatory.

i) Interest-free Microcredit Programme:

The Interest-free Microcredit Programme is operated by the Department of Social Services, MoSW.30 The
targeted programme beneficiaries include poor but active persons and persons with disabilities from rural
and urban areas throughout the country. The beneficiaries are provided with training and interest-free credit
to help enhance their abilities. A beneficiary can borrow between Tk. 5,000 to Tk. 30,000 as loan for
entrepreneurial ventures. The programme has a special provision to disburse at least 50 per cent of its loans
to women. In the FY2019-20, the programme has an endowment budget of 60 crores and aims to serve
29,000 potential beneficiaries.

ii) Microcredit for women self-employment: 31

There are two programmes being implemented by the Ministry of Women and Children Affairs (MoWCA) on
microcredit for women self-employment. The first one is being operated by the Jatiya Mohila Samity (JMS)
under the MoWCA. The programme started in 2003-04 with a view to fostering the self-employment of the
poor and distressed women through microcredits. The programme is operated through 108 Upazila JMS
branches. As part of the programme, women receive microcredits between Tk. 5000 to Tk. 15,000. For the
FY2019-20, the programme has an allocation of Tk. 6 crore and targets to cover 34,000 beneficiaries.

Another programme with exactly the same name is being implemented by the Department of Women Affairs
(DWA) (Bangladesh Economic Review, 2019).32 With a similar programme objective, this programme is
currently in operation in 64 districts at 473 Upazilas. The loan is provided for IGA Income Generating
Activities) such as purchasing sewing machines, livestock and poultry farming, small business, aquacultures,
etc. In addition, the programme contains awareness raising components on the use of sanitary latrines,
contraceptive use, primary health check-up, dowry, child marriages, etc. It is noteworthy that this
programme is not separately enlisted in the MoF prepared Social Safety Net budget.

30 No operational manual or other documents were found for this programme during theAreview.
COMPENDIUM OF information
Source of this SOCIALPROTECTION
is the RESEARCHES
Budget document (FY2019-20) for the MoSW available at:
[Link]
[Link]; accessed on 20 September 2019.
31 The project information is obtained from: [Link] ; and

[Link]
13%20%28English-2019%[Link] accessed on 20 September 2019
32 The project information is available at (however, not updated): [Link]

d7f296796807/-; accessed on 20 September 2019.

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 372

Figure 6.18: Interest free Micro Credit Programme Figure 6.19: Micro-credit for Women Self-
employment
0.35 70 0.4 7
0.35 6
0.3 60
0.3 5
Beneficiary, lacs

0.25 50 0.25

Budget, crore
4
0.2
0.2 40 3
0.15
0.15 30 0.1 2
0.05 1
0.1 20
0 0
0.05 10

0 0
FY2017-18 FY2018-19 FY2019-20

Beneficiary Budget Beneficiary Budget

Source: RAPID Assessment based on MoF data

All the aforementioned programmes overlap quite well with microcredit programmes operated by the Palli
Karma Sahayak Foundation (PKSF). The Government of Bangladesh established the PKSF in 1990 with a view
to reducing poverty through employment generation. One of the major objectives of the PKSF is to provide
financial assistance and institutional development support for creating productive employment
opportunities for poor, small and marginal farmers, and micro-entrepreneurs. It executes its operations
through 278 partner organisations (POs). There are several major large microcredit programmes being
conducted by the PKSF. A close observation on the operations of its units (for instance, Environment and
Climate Change Unit, Fisheries and Livestock Unit, Agriculture Unit, etc.), or its flagship programmes (such
‘Enhancing Resources and Increasing Capacities of Poor Household towards Elimination of their Poverty
(ENRICH)’) reveal that all the components of the ‘interest-free microcredit programme’, or ‘microcredit for
women self-employment’ are overlapping.. As per the MoF data, microcredit operations through the PKSF
has received an allocation of Tk. 785 crore in FY 2019-20. Through its POs, PKSF aims to reach 268 lac persons
per month in this fiscal year.33 During the interview with the government officials, it was identified that the
Cabinet Division has already agreed to implement a ‘Somonnito Microcredit Programme’.

Skill enhancement programmes

There are two programmes which are aimed at skill enhancement: (i) Skill for Employment Investment
Programme (SEIP) and; (ii) Skill and Employment Programme in Bangladesh (SEP-B). Among these two
programmes, SEIP can be classified as a medium programme (with a budget slightly higher than 0.5% of the
SSPs).

Skill and employment programme in Bangladesh, also known as ‘Sudokkho’, is a five-year skills training and
employment programme being implemented by the Directorate of Technical Education, Government of
Bangladesh with funding supports from the Department for International Development (DFID) and Swiss
Agency for Development and Cooperation (SDC).34 The objective of the programme is to reduce poverty
through better training and job opportunities for the poor. It aims to ensure employment to 65,000 poor
people, including women and disadvantaged population, upon completion of training through its
partnerships with private training service providers (PTPs), and industry-based training initiatives. Although

33 A COMPENDIUM
As specified in the MoF data. A person is counted four times a month if he receives the benefit four timesOF SOCIALPROTECTION RESEARCHES
a month.
34 Source: [Link] and [Link]
finder/project/-/show/[Link] ; both accessed on 18
September 2019
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 373

the MoF data does not provide the number of beneficiaries, as per the project website, since the beginning
of the programme in 2015, 1,735 men and 15,324 women graduated from Sudokkho supported industry-led
training system. The training is provided in the Readymade Garments and Construction Sectors.

Figure 6.20: Skill and Employment Programme Figure 6.21: Skills for Employment Investment
in Bangladesh Programme
400 3 500
350 450
2.5 400
300 350
2
250 300
200 1.5 250
150 200
1 150
100 100
0.5
50 50
0 0 0

Beneficiary Budget Beneficiary Budget

Source: RAPID Assessment based on MoF data

A similar, however, a broader version of SEP-B is observed in the MoF led ‘Skills for Employment Investment
Programme’.35 The project has been drawn up by the GoB for boosting up the supply of skilled labour force
while reducing the existing skill mismatch/shortage in the industry. The programme has selected six priority
sectors, which are as follows:

- Readymade Garments and Textile

- Construction
- Information and Communication Technology
- Light Engineering/Manufacturing
- Leather and Footwear
- Shipbuilding

The total project cost is estimated to be $1,070 million (equivalent to more than Tk. 9,000 crores) for the
period of 2014-21. The programme aims to align its curriculum and training modules in line with the training
programmes from reputed overseas institutions. The programme targets 1.5 million beneficiaries in the
labour force including the new entrants. The training is provided through both public and private sector
institutions including some NGOs as showed in Table 6.6.

Table 6.6: Number of training beneficiaries by partner institutions for SEIP

Partner Institutions Total number of trainees (‘000)
Public Training Institutions (DTE, BMET, BITAC) 325
Sector Associations/Sectors (BGMEA, BKMEA, BTMA, Leather and Footwear, BACI, 1,060
BEIOA, BASIS, BACCO, Shipbuidling)
Bangladesh Bank SME Department 40
PKSF/NGOs 75
Total 1,500
Evidently, SEP-B components are integrated in SEIP. Therefore, upon completion of the SEP-B project, its
unique components can be reintegrated in the SEIP project.

35 Programme details are obtained from: [Link] A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 374

b. Skill enhancement programmes for women

There are four specific programmes that target the skill enhancement of women and these are

i. Income Generating Activities for Women at the Upazila Level,

ii. Women’s Skill-Based Training for Livelihood,
iii. Urban based marginal women development programme, and
iv. Strengthening Women’s Ability for Productive New Opportunities (SWAPNO).

i. Income Generating Activities for Women at Upazila Level: 35

IGA for Women at Upazila Level is currently being implemented by the Department of Women Affairs (DWA).
The objective of the programme is to provide training on income-generating activities to the poor,
disadvantaged, and destitute women so that they can become self-reliant. The programme is being
implemented in 426 Upazilas across the country. Under IGA, beneficiaries are provided training on several
occupations, including – embroidery and block-boutique/tailoring, beautification, computer training, fashion
design, mobile phone servicing and repairing, motor driving, etc. With a budget of 90 crores, the programme
aims to reach 30,000 participants and within the programme lifetime (from January 2017 December 2020)
it aims to train 217,440 women.

Figure 6.22: Income Generating Activities for Figure 6.23: Women's Skill Based Training For
Women at Upazila Level Livelihood
0.35 100 8
90 7
0.3
80 6
()Beneficiary, lac)

0.25
Budget (crore)

70 5
0.2 60 4
50
0.15 3
40
2
0.1 30
1
20
0.05 0
10
0 0
FY2017- FY2018- FY2019-
18 19 20

Beneficiary Budget Beneficiary Budget

Source: RAPID Assessment based on MoF data

ii. Women’s skill-based training for livelihood:

The study team could not trace any programmes/operational manuals with this exact programme name.
However, the team identified a similar programme in operation by the JMS Jatiya Mahila Samity titled
‘Women’s Skill Development Training’.37 (JMS) has been implementing this programme aiming at the poor
unemployed women. Women are provided training on tailoring, embroidery, block boutique, tie-dye
printing, leather crafts, food preparations and preservation, etc. All these training courses include awareness
components on health and hygiene education, childcare, women rights, violence against women, child
marriage, etc. The programme is being implemented in 64 districts and 50 Upazila branches.

36 A COMPENDIUM
Source: [Link] accessed on OF SOCIALPROTECTION
20 August 2019. RESEARCHES
37 For details, see: [Link] accessed 9 September 2019
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 375

iii. Urban based marginal women development:38

The urban-based marginal women development programme is operated by the Jatiya Mahila Songstha. The
primary objective of the project is to provide appropriate training to the poor, destitute, and asset-less
women from urban areas and transform them into self-reliant, productive and employed women. Specific
objectives of the programme are as follows:

- Poverty alleviation and economic self-reliance for the poor, destitute, and asset-less women to make
them equal partners in national development along with men.
- Induce the growth in the production and provide the marketing facilities of home-made products by
training women in productive and demand-driven income-generating activities.
- Prepare women to undertake active and entrepreneurial role by providing training on skill
development, and provide awareness on empowerment, rights, duties, and leadership to them.
The programme provides training on ten different vocational trades, namely sewing and embroidery, block-
boutique and skin print, production of soaps, candles and showpieces, food processing and storage, binding
and packaging, Nakshi Kantha and cutting, manufacture of leather goods, poultry farming, beautification,
and mobile phone servicing. The training programmes are being offered through 75 training centres across
the country (10 in Dhaka city and the other 65 in 63 districts). It also has provisions for sales and display
centres in Dhaka city. At present, the second phase of the programme is ongoing (from July 2016 – June
2020) with a total budget of Tk. 86 crore. The project aims to reach 45,000 marginal women within the
stipulated time.

Figure 6.24: Urban Based Marginal Women Figure 6.25: Strengthening Women’s Ability for
Development Productive New Opportunities (SWAPNO
0.6 25 0.045 60
0.04
0.5 20 50
0.035
0.4 0.03 40
15 0.025
0.3 30
10 0.02
0.2 0.015 20
5 0.01
0.1 10
0.005
0 0 0 0

Beneficiary Budget Beneficiary Budget

Source: RAPID Assessment based on MoF data

iv. Strengthening Women’s Ability for Productive New Opportunities (SWAPNO): 39

SWAPNO is a social transfer project devised for ultra-poor women implemented by the Local Government
Division (LGD) with assistance from SDG-F, UNDP, ILO, amongst others. The objective of the programme is
to promote employment and enhance the future employability of the participant – the extreme poor rural
women. It starts with ‘cash-for-work’ and building the human capital of women engaged in public works. It
incorporates a ‘graduation strategy’ for the beneficiaries where they receive vocational skills training as well
as job placement facilities. In addition to assisting women to start and operate self-employment, micro-
enterprises, the programme also focuses on facilitating linkages with Small and Medium Enterprises (SMEs)
and Public-Private Partnerships (PPPs). The project is an extension of earlier Rural Employment
Opportunities for Public Assets (REOPA) programme which was implemented by the Local Government

38 A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

Source: [Link] and [Link]
4c05-a63b-abf5fac932fd/-; both accessed on 20 September 2019
39 Source: [Link] accessed on 9 August 2019
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 376

Division with assistance from the UNDP. At present, the programme is being implemented in 1030 unions in
106 Upazilas of 22 districts with 65,000 primary beneficiaries. The project is scheduled to end in 2019.
However, it is noteworthy to remember that the NSSS particularly emphasised on expanding the coverage
of SWAPNO project.

During the desk research, the study identified several other programmes which have similar objectives but
were not part of the MoF list of SSPs. One such programme not listed in the MoF list of SSPs is the ‘Promotion
of Women Entrepreneurs of Economic Empowerment Project (Phase 3)’ which is currently being operated
by the JMS.40 The project started in 2015 and is scheduled to end in June 2020. Under this project, the JMS
will provide training in 30 Upazilas from 26 districts on 6 trades, namely business management,
beautification, fashion designing, catering, interior design, and event management (only in Dhaka), and bee
and mushroom cultivation (areas excluding Dhaka). The programme aims to reach 82,500 women within the
project deadline. As a part of the programme, it also aims to assist the women entrepreneurs in marketing
their produce. Amongst plans, it also envisages establishing 10 parlours and 30 display and distribution
centres. Between April 2016 and July 2019, 77,950 unemployed and destitute women have been trained
under this scheme.

In addition to other programmes, a training programme is currently being provided by the JMS titled
“District-based women computer training project (64 districts)”. 41 The project has been in place since July
2013 and will continue till June 2021. With a budget of Tk. 87 crore, the project aims to provide computer
and ICT training to 42,206 unemployed women. Since the inception of the project, in total 29,406 women
have been trained (till July 2019).

The brief overview of the programmes being run by the DWA and JMS show an overlapping number of
programme items. For instance, Income Generating Activities for Women at Upazila Level, Women's Skill-
Based Training for Livelihood, and urban-based marginal women benefit programme – all offer training on
similar trades. In some cases, similar training programmes are being offered by the JMS and DWA under two
different projects in the same district.

SWAPNO transformed the life of Beli Begum

Beli Begum, a 32-year-old woman, has been living with her parents ever since her husband left her 10 years
ago after the birth of their first child. For livelihood, she sometimes worked as a day labourer, sometimes as
domestic help, and sometimes at small factories. Currently, she works as a clothes packer at a showroom in
the city of Kurigram that earns her Tk. 2,000 per month to support her family.
She participated in a SWAPNO program for 18 months. During the program, she received training from an
NGO. They received training on livestock breeding, tailoring, producing courtyard vegetable, accounting etc.
The SWAPNO program also gave awareness training about women’s rights along with other issues.
As a part of the program, she received training on business and trade for 5 days. The instructors were very
helpful and answered all questions. They also taught with the aid of banners, festoons, and placards. No
financial assistance was provided to the program beneficiaries except for transportation allowance of Tk. 50
per day. She got her current job because of her training. As a result, she earns a salary of Tk. 4,500 per month,
and also managed to saved Tk. 21,622.
Though she appreciated the program, she cited a few drawbacks such as not being paid in a timely manner
and being paid partial wages. She called for an extension of the duration of the training and the SWAPNO
program itself, and for provision of one-time loans or loans with easier terms after the end of the program.

41Source: [Link] and A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

[Link]
p64_20190820_0002.pdf; both accessed on 20 September 2019
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 377

e. Other small SSPs for working-age: Employment of Ultra poor in Northern Areas: 42
This programme is being implemented by the Bangladesh Rural Development Board (BRDB). The second
phase of the project ran during April 2014-March 2019 which has been later extended till June 2020. The
project area covers Rangpur, Gaibandha, Nilphamari, and Lalmonirhat. The objectives of the programme
include:
- Providing training on income-generating activities to the poor men and women from 35 Upazilas of
this project
- Strengthening social as well as food security through self-employment
- Creating supply linkages for the beneficiaries of this project so that their product is well supplied to
the market
- Enhancing market linkages and easing the access to raw materials for the programme beneficiaries
- Providing microcredits to the beneficiaries (at 6% annual interest rate)
On average, the programme has served 7,000 poor and marginalised people each year.

Figure 6.26: Employment of Ultra Poor in Northern Areas

0.072 35
0.07 30
0.068
Beneficiary, lac

25

Budget, crore
0.066
0.064 20
0.062 15
0.06
10
0.058
0.056 5
0.054 0
FY2014-15 FY2015-16 FY2016-17 FY2017-18 FY2018-19 FY2019-20

Beneficiary Budget

Source: RAPID Assessment based on MoF data

Two other small SSPs that can be classified as programmes for the working-age are “Special Fund for
Assistance to Women Development & Entrepreneurs” and “Improved Life Standard for Low-Income People”.
However, for these two programmes, no document or information was available for discussion.

42 A COMPENDIUM
Source: [Link] OF SOCIALPROTECTION
accessed on 11 September RESEARCHES
2019.
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 378

Table 6.7: Overview of the small programmes for working-age

Programme Name Ministry/ Programme objective Similar major programme envisaged in the NSSS Remarks
Division
Interest free Micro-Credit MoSW The programme aims to provide interest-free microcredits Although the NSSS does not provide any specific All microcredit
Programme to poor and persons with disabilities. indication on a major programme with microcredits, the programmes should be
Amount: Tk. 5000 to Tk, 30,000 government already runs some microcredit programmes harmonised with PKSF.
in large scales through the PKSF.
Micro-credit for Women DWA; JMS Both the DWA and JMS has this programme which is Although the NSSS does not provide any specific All microcredit
Self- employment operated separately. indication on a major programme with microcredits, the programmes should be
Objective: Providing microcredit loans to poor and government already runs some microcredit programmes harmonised with PKSF.
destitute women. in large scales through the PKSF.
The microcredit is provided for sewing machines, livestock
and poultry, fisheries, nurseries, etc.
Amount provided: Tk. 5000 – Tk 15,000.
Income Generating DWA Providing training to poor and disadvantaged women so There are several other programmes with similar The programmes can be
Activities for Women at that they can be self-reliant and self-employed. The objectives such as: imparted to the NSSS
Upazila Level programme is being implemented in 426 Upazilas across Urban based marginal women development, women’s stipulated Vulnerable
the country and aims to train 217,440 women during skill-based training for livelihood, etc. Women Benefit (VWB)
2017-2020. The objective of these programmes goes in line with the programme.
Vulnerable Group Development (VGD) programme.
Strengthening Women’s LGD Promoting employment, and future employability, of The NSSS stipulates to expand SWAPNO project Some of the programme
Ability for Productive New extremely poor rural women. nationwide. objectives of SWAPNO is
Opportunities (SWAPNO) similar to some other
programmes such as –
NJLIP, Employment of Ultra
poor in Northern Areas. An
extended version of the
SWAPNO can integrate
those programme
components and emerge as
a unified programme.
Urban Based Marginal JMS, MoWCA Poverty alleviation and economic self-reliance for poor, There are several other programmes with similar The programmes can be
Women Development destitute and asset-less women objectives such as: imparted to the NSSS
(Urban Based Women Increase home-made product by engaging women in Income-generating activities at the Upazila Level, stipulated Vulnerable
Development Project productive and need-based income-generating activities women’s skill-based training for livelihood, etc. Women Benefit (VWB)
Phase-2) and create marketing facilities for the products produced programme.
by the trained women. The objective of these programmes goes in line with the
Make women active, initiative through providing skill Vulnerable Group Development (VGD) programme.
development training and create a sense of
empowerment, rights and duties and leadership among
women.
Skill and Employment MoEducation The Skills and Employment Programme Bangladesh (SEP- All the objectives of SEP-B are well reflected in the SEIP SEIP should be extended
Programme in Bangladesh B) known as Sudokkho stimulates the private sector to project being implemented by the MoF. further to incorporate a

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 379

deliver skills training sustainably and at scale by broader array of training

supporting: (i) private training service-providers to train SEP-B programme can be consolidated with the SEIP . programmes.
skills that match industry-demand and facilitate job
placement; and (ii) private sector firms to deliver
innovative training systems and provide employment SEIP’s objective includes identification of the skill gaps in
TVET (Technical and Vocational Education and Training) different industrial sectors, identify the future trends,
reform agenda of Bangladesh through the development of and coordinate existing skill development and training
policies and training packages programmes in a holistic way. Initially, it targets six
major sectors for skill enhancement.
Women's Skill-Based JMS, MoWCA Providing training on tailoring, embroidery, block There are several other programmes with similar The programmes can be
Training For Livelihood boutique, tie-die printing, leather crafts, food objectives such as Income generating activities at the imparted to the NSSS
preparations and preservation, etc. Upazila level. stipulated Vulnerable
Women Benefit (VWB)
The objective of these programmes goes in line with the programme.
Vulnerable Group Development (VGD) programme.
Employment of Ultra Poor RDCD, The objective of the programme includes: Programmes such as Notun Jibon Livelihood This programme will end in
in Northern Areas MoLGRDC Creating opportunities for self-employment through Improvement Programme (NJLIP) and SWAPNO has 2020. However, some
training; some similar objectives. components of this
Enhancing income-generating activities for tackling programme can be
seasonal unemployment; NSSS stipulates to expand SWAPNO. integrated into the
Improvement of the local livelihood; SWAPNO programme while
Enhancing social and food security through self- replicating nationwide.
employment;
Creating new employment opportunities in the locality;

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 380

3.2.3. Small Programmes for Mitigating Covariate Risks

Among the 42 selected small programmes, three can be classified as programmes for covariate risks:

i. Fund for Assistance to the Small Farmer and Poultry Farms

ii. Fund for the Welfare of Acid Burnt Women and Disabled
iii. Assistance for Cancer, Kidney and Liver Cirrhosis Patients

i. Fund for Assistance to the Small Farmer and Poultry Farms: 43

Since 2007-08, several outbreaks of avian influenza, also known as ‘Bird Flu’, has been observed in
Bangladesh. During each outbreak, all affected poultry birds, which numbers to hundreds of thousands, were
culled. Losses to the poultry farmers, even the unaffected ones, further soared as market prices for poultry
items plummeted. As a safeguard to such crisis, the GoB allocates a block amount of Tk. 100 crore each fiscal
year from its revenue expenditure since the first outbreak. The exact number of beneficiaries receiving this
benefit per year was not available. However, the MoF data shows that each year it targets up to 1 lac
potential beneficiaries.

Figure 6.27: Fund for Assistance to the Small Farmer and Poultry Farms
1.6 120
1.4
100
1.2
80
1
0.8 60
0.6
40
0.4
20
0.2
0 0
FY2013-14 FY2014-15 FY2016-17 FY2017-18 FY2018-19 FY2019-20

Beneficiary Budget

Source: RAPID Assessment based on MoF data

It is noteworthy that this allocation is not appropriated every year and is only utilised when crises arise.
Moreover, this is not the only such emergency fund kept for crises mitigation. One of the largest covariate
shock mitigation programmes is the Gratuitous Relief (GR).44 The GR provides both cash, as well as kind (such
as food, warm clothes, etc.) supports to the people at distress. The fund is allocated for each of the districts.
Under the jurisdiction of the Deputy Commissioner (DC) of the district, it is possible to disburse the fund at
the quickest possible time.

43 A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

No project document was found. Information regarding the programme was obtained through KIIs with
GoB officials, and online sources were used for obtaining information of Bird Flu:
[Link]
and [Link]
[Link]
44
Details on GR and its objective can be found at:
[Link]
7e_627e2a98bc9a/Humanitarian%[Link]; accessed on 20 September 2019
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 381

ii. Fund for the welfare of burnt and disabled:45

Fund for the welfare of burnt and disabled, a revenue budget programme, has been in operation since 2002-
03. Since its inception, the programme has been transformed three times, and prior to 2016 it was named
as ‘Fund for the welfare of acid burnt women and disabled’. The programme is being implemented by the
Department of Social Services (DSS). The objective of the programme is ensuring timely treatment to the
burnt and persons with disabilities. The programme provides a onetime Tk. 20,000 to the burnt for medical
treatment. Another aim of this programme is to provide microcredits to the beneficiaries for engaging them
with income-generating activities. Any burnt or PWD (with per person annual family income less than Tk.
100,000) can receive an interest-free microcredit for an amount of Tk. 5000 to Tk. 30,000.46 The service is
being provided through 489 Upazila DSS offices across the country. The programme also mentions several
other activities as its objectives, such as - surveying of burnt and PWDs, enlisting PWDs, and orientation of
the beneficiaries on vocational/ social or health topics. According to the MoF, Tk. 1.65 crore has been
allocated for covering up to 33 thousand beneficiaries in the FY2019-20.

Figure 6.28: Fund for the Welfare of Burnt and Figure 6.29: Assistance for Cancer, Kidney and
Disabled Liver Cirrhosis Patients
0.335 3.5 0.35 160
0.33 140
3 0.3
0.325
2.5 0.25 120
0.32
0.315 100
2 0.2
0.31 80
0.305 1.5 0.15
60
0.3 1 0.1
0.295 40
0.5 0.05 20
0.29
0.285 0 0 0

Beneficiary Budget Beneficiaries Budget

Source: RAPID Assessment based on MoF data

iii. Assistance for Cancer, Kidney and Liver Cirrhosis Patients:47

Since 2013-14, the Government of Bangladesh initiated the assistance for poor patients diagnosed with
cancer, kidney or liver cirrhosis diseases. The programme is being operated by the Department of Social
Services. Upon receiving applications, the DSS finalises its decision based on a set of criteria scrutinised by
the local administration and public representatives. A person receives a lump-sum Tk. 50,000 for medical
treatment and reintegration into normal life.

45 A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

Source: [Link]
Rehabilitation; accessed on 21 September 2019
46Although the credit is interest free, it has 5% service charge. The credit is payable in 20 equal instalments.
47Source: [Link] accessed on 20
September 2019
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 382

Table 6.8: Overview of the small programmes for covariate shocks

Name of the programme Ministry/ Programme objective Similar major programme envisaged in the NSSS Remarks
Division
Fund for Assistance to the MoF / The fund is kept as a reserve resource (or, The NSSS does not provide any specific
Small Farmer and Poultry FinDiv block amount) to be utilized in the case of recommendation on such programmes. The programme can be harmonised with the GR
Farms an avian influenza outbreak. However, Gratuitous Relief (GR) provided by the programme under MoDMR.
MoDMR and distributed by the Deputy
Commissioners has a similar objective and
modality.
Fund for the Welfare of MoSW Ensuring timely treatment to the burnt and The NSSS suggests establishing a Disabled The disability component of ‘Fund for the
Burnt and Disabled persons with disabilities and providing Benefit programme for the Children and welfare of burnt and disabled’ should be merged
microcredits to the beneficiaries for Working-age population. Most of the disability- with the JPUF component.
engaging them with income-generating related programmes are run by JPUF.
activities. The programmes under Jatiya Protibondhi
Unnoyon Foundation (JPUF) should be
It provides a onetime Tk. 20,000 to the strengthened further.
burnt for medical treatments.

The fund for the burnt can be harmonised with

the GR.
Assistance for Cancer, MoSW A person diagnosed with cancer, kidney or N/A The programme can be harmonised with the GR
Kidney and Liver Cirrhosis liver cirrhosis receives a lump-sum Tk. programme under MoDMR.
Patients 50,000 for medical treatment and
reintegration into normal life.

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 383

3.2.4. Special Programmes

A general observation on the list of small programmes suggests a natural categorisation of the special
programmes in several clusters, namely:

a. Special programmes related to the livelihood of marginal and low-income

b. Special healthcare programmes
c. Infrastructure development projects
d. Region-specific special programmes
e. Programmes for coastal areas
f. Programmes for persons with disabilities (PWD)

A brief summary of the implementing authorities and objectives of the special small social security
programmes are presented in Table 6.9.

a. Special programmes related to the livelihood of marginal and low-income:

Out of 42 small SSPs four special programmes fall under this category:

(i) Programme for Improving the Livelihood of Harijan, Dalit, Bade community
(ii) Programme for Improving the Livelihood of Trans Gender (Hijra)
(iii) Programme for Livelihood Improvement of tea-garden labourers
(iv) Rehabilitation and Creation of Alternative Employment for Beggars Profession

i. Programme for Improving the Livelihood of Harijan, Dalit, Bade community:

This programme is administered by the Ministry of Social Welfare (MoSW). This programme started during
the 2012-2013 financial year, as a pilot project in seven districts (Dhaka, Chittagong, Dinajpur, Patuakhali,
Naogaon, Jashore, Bogura, and Habiganj. Now the programme has been expanded to include all 64 districts.
Allocated budget for this programme during 2018-19 was Tk. 50 crore, whereas, in 2019-20 financial year,
the allocated amount of budget is Tk. 67 crore. There were 62 thousand beneficiaries from this programme
during 2018-2019. Objectives of this programme included:

• Providing education to the Bade and other disadvantaged communities. To achieve this goal, the
programme has four steps of the action plan. It provides stipends of Tk. 300, Tk. 450, Tk. 600, and
Tk. 1000 to the primary, secondary, higher secondary, and college-going students respectively of
disadvantaged communities.
• Arranging stipend-based training programmes for the working-age Bede and other disadvantaged
communities in order to improve their income generation skills and bring them to the mainstream
society.
• Upon receiving the training each person gets rehabilitation assistance of TK. 10,000.
• Providing a benefit of Tk. 500 to Bede and other disadvantaged and insolvent people if they are
above 50 years old.

ii. Programme for Improving the Livelihood of Trans Gender (Hijra):48

The Department of Social Services under the MoSW runs the programme for improving the livelihood of
Trans-Gender. This programme was initiated as a pilot programme in seven districts (Dhaka Chittagong,
Dinajpur, Patuakhali, Khulna, Bogura, and Sylhet) during the 2012-13 financial year. Since 2015-16, this

48 A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

Source: [Link]
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 384

programme has expanded to cover all 64 districts. During 2018-19 the number of beneficiaries from this
programme was 6,000 and the allocated budget was Tk. 11 crore. Whereas, in 2019-20 the allocated budget
is Tk. 6 crores. Among around 10,000 transgender people in Bangladesh, 6,000 are receiving some benefits
from this special programme.

Objectives of this programme are as follows:

• In order to educate the school-going transgender population, a four steps action plan has been
undertaken. It provides stipends of Tk. 700, Tk. 800, Tk. 1000, and Tk. 1200 to the primary,
secondary, higher secondary, and college-going students respectively.
• Providing a benefit of Tk. 600 to disadvantaged and insolvent transgender people if they are above
50 years old.
• Arranging stipend-based training programmes for the working-age transgender people in order to
improve their income generation skills and bring them to the mainstream society.
• Upon receiving the training each person gets rehabilitation assistance of Tk. 10,000

Support towards the people from marginalised groups needs to be strengthened and
redesigned

Md. Sorab Sordar is a snake charmer (Bede) and fisherman. He lives in a boat with his family in
Bhola Sadar Upazila. His income is a mere amount of Tk. 6,000-Tk 7,000 per month.

Sorab feels antagonised as he exclaims that Bede community like him has been left out in large from
the GoB programmes. Neither the government nor the private NGOs have large programmes for
them. “We are never welcomed or invited to any program” – he says with a sigh. “One and half
years ago, the UNO office asked for a list of the Bede community and we submitted it. However,
still, we have not heard anything”, he recalls. He also remarked that his children cannot get an
education because of social discrimination. Also, his children do not receive any kind of scholarships
available in the SSPs. “We are Bangladeshi by birth but unfortunately, we do not get any help from
the government as other citizens get” – he says miserably.

Sorab thinks it is not some monthly allowance of food or cash but training in income-generating
activities that can transform his life. Leaving his profession behind he wants to move on his life.
“We want a better and non-discriminating society to live in. Since the changing society’s perception
is not possible, help us to change our occupation” – he concludes.

Programmes for livelihood improvement of the Transgenders need to be strengthened

Khairun, a resident of Netrokona, is a transgender student without any income. She lives with her
brother. She claims that Hijra who are girlish can stay with their family. However, a large group of
Hijra lives in communes. According to her, such groups are sometimes involved in hijacking and
prostitution.
She said that her parents do not care for her enough as they do for his brother. Feeling abandoned
at home, a few years back she left home for a Hijra commune but could not survive there more than
7 days, and she escaped back to home.

Now, she wants to study attentively and become successful. She does not want to identify herself
as a hijra anymore. She is a beneficiary of the programme run by the Department of Social Services.
She has received training on the computer from the program. She had to travel to the District
Headquarter for the training daily. Although the programme provided transport allowances,
travelling daily was troublesome due to unavailable transportation services. She successfully
completed the 50-day training programme and attained the first position in the class. Although they

A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 385

were promised that the first-place achiever will be awarded a computer, however, that was not
true. Instead, the first ten trainees in the merit list were given Tk. 10,000 each after they met the
Deputy Commissioner of Netrokona. She claims that, after receiving complaints from them, the DSS
Officer was transferred.

Although Khairun has received a certificate from the training programme, she does not want to use
it anywhere as it refers to her as a hijra. “Although there is a huge demand for trained computer
operators in Netrokona, nobody actually wants to hire a Hijra” – she says mournfully. The social
perception would not allow her to continue the job unscathed even if she manages one. She
suggests that the certificate should not refer them as Hijra. She also thinks financial supports from
the Government for setting up businesses can help them a lot. Also, training in other Income
Generating Activities such as cooking, driving, handicrafts, or homestead gardening, etc. will also
be very effective.

iii. Programme for Livelihood Improvement of tea-garden labourers:

Programme for Livelihood Improvement of tea-garden labourers is administered by MoSW. This programme
covers the labourers working on tea-gardens in Sylhet, Chittagong, and Panchagarh.

Tk. 25 crores budget has been allocated for this programme during the 2019-20 financial year. Last year
(2018-2019) 50,000 tea-garden labourers were benefitted from this programme and the number has been
increasing over the years. The number of beneficiaries for the livelihood improvement of tea-garden
labourers tripled from 10,000 in 2015 to 30,000 in 2017. However, it still covered only one-fourth of the total
tea-garden labourers in the country.

Objectives of the Programme for Livelihood Improvement of tea-garden labourers include:

• Improving socio-economic condition and providing safety-net to the tea-garden labourers.

• Ensuring food security for the tea-garden labourers in the face of covariate shocks. Families of the
poor and insolvent tea-garden labourers get TK. 5,000 worth of food in three phases.
• Improving the social status of tea-garden labourers

iv. Rehabilitation and Creation of Alternative Employment for Beggars Profession:

This is a small SSP and a revenue-fund based programme implemented by the MoSW. The programme has
two-fold objectives: (i) rehabilitation and creation of alternative employment opportunities for beggars; and
(ii) providing training to the beggars to improve their income generation abilities.

The programme was initiated in August 2010, even though the scale of the operation was very limited. During
the 2018-19 financial year, the fund for this programme was distributed among 38 districts of Bangladesh.
During 2019-20, the allocated budget for this programme is Tk. 4 crores. The coverage of Rehabilitation and
Creation of Alternative Employment for Beggars’ Profession has not improved significantly over the years.
For instance, just 8,000 people are getting benefits under Rehabilitation and Creation of Alternative
Employment for Beggars’ Profession, while – according to the Ministry of Social Welfare, there are more
than 100,000 beggars in Dhaka city alone.

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 386

Figure 6.30: Programme for Improving the Figure 6.31: Programme for Improving the
Livelihood of Harijan, Dalit, Bade community Livelihood of Trans Gender (Hijra)
80 0.9 0.07 12
70 0.8 0.06 10
60 0.7
0.6 0.05 8
50 0.04
0.5
40 6
0.4 0.03
30 0.3 4
20 0.02
0.2
10 0.01 2
0.1
0 0 0 0

Beneficiary Budget Beneficiary Budget

Source: RAPID Assessment based on MoF data

Figure 6.32: Programme for Livelihood Figure 6.33: Rehabilitation and Creation of
Improvement of tea-garden labourers Alternative Employment for Beggars Profession
0.6 30 0.09 4.5
0.08 4
0.5 25
0.07 3.5
0.4 20 0.06 3
0.05 2.5
0.3 15
0.04 2
0.2 10 0.03 1.5
0.02 1
0.1 5
0.01 0.5
0 0 0 0

Beneficiary Budget Beneficiary Budget

Source: RAPID Assessment based on MoF data

b. Special healthcare programme: Urban Public Environmental Health Care49

The Urban Public Environmental Health Care programme is being implemented by the Local Government
Division (LGD) under the Ministry of Local Government, Rural Development and Co-operatives (MoLGRDC).
This is a development programme, financed by the Asian Development Bank (ADB) with a view to improving
the living standards of city dwellers, especially the poor. The project will help reduce child mortality and
morbidity by decreasing the prevalence of waterborne and food-related diseases in six cities, namely -
Barisal, Chittagong, Dhaka, Khulna, Rajshahi, and Sylhet. It will improve waste management and food safety
regulation and strengthen institutions.

The programme has been effective since May 2010. Even though the original closing date of the programme
was June 2017, later it was extended till June 2020. This programme has served on average 24 lakh
beneficiaries annually from 2013 to 2018. Overall, we can see a declining trend in the allocated budget for
this small SSP. For the 2019-20 financial year, the allocated budget for this programme is TK. 103.8 crores.

The objectives of the programme include:

49 Source: [Link] accessed on October 8th, 2019A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

 Harmonisation of Small Social Security Programmes: Issues and Policy Options 387

- To improve the public and environmental health conditions in the urban areas of Bangladesh,
particularly in the six city corporations (Barisal, Chattogram, Dhaka, Khulna, Rajshahi, and Sylhet).
- Reduce child mortality and morbidity by reducing the prevalence of waterborne and food-related
diseases.
- Increase productivity by reducing overall morbidity, improve the health status, and the quality of life
of poor urban inhabitants.
- To improve the public and environmental health conditions as well as sanitation in the urban areas
of Bangladesh, particularly in the six city corporations (Barisal, Chittagong, Dhaka, Khulna, Rajshahi,
and Sylhet).

Figure 6.34: Urban Public Environmental Health Care

30 160
140
25
120
20
100
15 80
60
10
40
5
20
0 0
FY2013-14 FY2014-15 FY2015-16 FY2016-17 FY2017-18 FY2018-19 FY2019-20

Beneficiary Budget

Source: RAPID Assessment based on MoF data

c. Infrastructure development projects

(i) Development of the Living Standard of the Marginal people of Bangladesh - blacksmiths, potters,
barbers and circumcisers:
Department of Social Services of MoSW implements the project titled ‘Development of the Living Standard
of the Marginal people of Bangladesh - blacksmiths, potters, barbers and circumcisers. This programme
involves the marginalized group of population aged between 18 to 50 years in eight district and targets 7,000
beneficiaries. This programme was initiated in 2017 and expected to end in June 2023. During the 2019-20
financial year, the budget for this programme has been allocated at TK. 183 crores.

(ii) Bangladesh Agriculture Infrastructure Development Project:

The programme, Agriculture Infrastructure Improvement (Bangladesh Agriculture Infrastructure
Development Project) is being implemented by LGD of MoLGRDC. The programme is being implemented in
20 southern districts of Bangladesh from Barisal, Dhaka and Khulna.50 These are among the highest poverty
prone areas in the country with very high malnutrition rates. In addition, these areas are highly vulnerable
to climate shocks such as severe tidal surges, flash floods and frequent floods, increased salinity in soil and
water, etc. The programme aims at developing the market and collection centres, rural roads, and farm-level
irrigation and drainage systems. More specifically, the project has two broad objectives: (i) improving vertical
Infrastructures such as markets and collection centres; and (ii) improving horizontal infrastructure like roads,
irrigation and drainage system. Since 2014 to 2019 the average number of beneficiaries from this programme

50 A COMPENDIUM
The districts include: Barisal division: Barisal, Bhola, Jhalokati, Pirojpur, Barguna, Patuakhali; OF SOCIALPROTECTION
Dhaka division: Faridpur, RESEARCHES
Gopalganj, Madaripur, Rajbari, Shariatpur; Khulna division:Jessore, Jhenaidah, Magura, Narail, Bagerhat, Khulna, Satkhira,
Chuadanga and Meherpur.
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 388

has been 62,000 per year. According to the project document, the project was scheduled to end in 2019.
However, the programme is being continued and both the number of beneficiaries and the amount of budget
allocation has been increased for this programme.

(iii) Rural Settlement Construction for Improvement of Rural Livelihood:

Rural Settlement Construction for improvement of Rural Livelihood is implemented by the RDCD, MoLGRDC.
The number of beneficiaries from this programme has been around 1,000 and Tk. 25 crores has been
allocated as budget during 2019-20. The project manual or details of the project were not available to the
study team. However, based on interviews with relevant government officials it was found that this
programme has similar objectives as with the Rural Infrastructure Development programme and Grameen
Infrastructure Development programme. It must be noted that the Grameen Infrastructure Development
programme is a large programme while RID is a medium programme.

Figure 6.35: Development of the Living Figure 6.36: Bangladesh Agricultural Infrastructure
Standard of the Marginal People of Development Project
Bangladesh 45 0.9
200 40 0.8
35 0.7
180
30 0.6
160 25 0.5
140 20 0.4
120 15 0.3
100 10 0.2
80 5 0.1
60 0 0
40
20
0
FY2016-17 FY2017-18 FY2018-19 FY2019-20
Beneficiary Budget
Beneficiary Budget

Figure 6.37: Settlement Construction for Figure 6.38: Rural Infrastructure Development
improvement of Rural Livelihood 2500
0.012 60
2000
0.01 50
1500
0.008 40
1000
0.006 30
0.004 20 500
0.002 10 0
0 0

Budget
Beneficiary Budget

Source: RAPID Assessment based on MoF data

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 389

Table 6.9: Summary of the special programmes related to livelihoods

Name of the Ministry/ Programme objective Similar major programme Remarks
programme Division envisaged in the NSSS/ NSSS
suggestions
Programme for MoSW The programme involves the The NSSS recognises the The programme can be realigned
Livelihood socioeconomic improvement of the importance of special with the lifecycle-based approach.
Improvement of tea- tea-garden labourers and ensuring programmes for marginalised All children from these families
garden labourers food safety during a crisis. groups of people and should be included in the
suggests for strengthening Programmes for the Children, while
As a part of the programme, it the supports. the persons from the working-age
provides – food support to the tea and elderly should be brought
garden labourers (equivalent to Tk under the respective other
5000. programmes. However, a special
provision (such as special IGA
training for these people; or
additional stipend for children from
these families) can be thought of.
An alternative could be, devising a
uniform Special programme for all
marginalised groups.
Programme for MoSW In order to educate the school-going The NSSS recognises the The programme structure is very
Improving the transgender population, a four-step importance of special similar to other livelihood
Livelihood of Trans action plan has been undertaken. It programmes for marginalised programmes such as the
Gender (Hijra) provides stipends of Tk. 700, Tk. 800, groups of people and programme for the tea garden
Tk. 1000, and Tk. 1200 to the suggests for strengthening workers or the programme for the
primary, secondary, higher the supports. Harijan, Dalit, Bede communities.
secondary, and college-going The difference is in their transfer
students respectively. benefits (such as the stipend) and
Providing a benefit of Tk. 600 to training programmes.
disadvantaged and insolvent
transgender people if they are above The programme can be realigned
50 years old. Arranging stipend- with the lifecycle-based approach.

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 390

Name of the Ministry/ Programme objective Similar major programme Remarks

programme Division envisaged in the NSSS/ NSSS
suggestions
based training programmes for the However, a special provision (such
working-age transgender people in as special IGA training for these
order to improve their income people; or additional stipend for
generation skills and bring them to Hijra children) can be thought of.
the mainstream of society. An alternative could be, devising a
uniform Special programme for all
marginalised groups.
Programme for MoSW Providing education to the Bede and The NSSS recognises the The programme can be realigned
Improving the other disadvantaged communities. importance of special with the lifecycle-based approach.
Livelihood of Harijan, To achieve this goal, the programme programmes for marginalised However, a special provision (such
Dalit, Bade community has four steps action plan. It groups of people and as special IGA training for these
(Bede and provides stipends of TK. 300, TK. suggests for strengthening people; or additional stipend for
disadvantage 450, TK. 600, and TK. 1000 to the the supports. Hijra children) can be thought of.
community 2017-18) primary, secondary, higher An alternative could be, devising a
secondary, and college going uniform Special programme for all
students respectively of marginalised groups.
disadvantaged communities.
Arranging stipend-based training
programmes for the working-age
Bede and other disadvantaged
communities, in order to improve
their income generation skills and
bring them to the mainstream of
society.
Upon receiving the training each
person gets rehabilitation assistance
of TK. 10,000. Providing a benefit of
TK. 500 to Bede and other

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 391

Name of the Ministry/ Programme objective Similar major programme Remarks

programme Division envisaged in the NSSS/ NSSS
suggestions
disadvantaged and insolvent people
if they are above 50 years old.

Rehabilitation and MoSW Rehabilitation and creation of The NSSS recognises the -
Creation of Alternative alternative employment importance of special
Employment for opportunities for beggars. programmes for marginalised
Beggars Profession Provide training to the beggars to groups of people and
improve their income-generating suggests for strengthening
abilities. the supports.

Agriculture LGD, The objective of the project is to - Some of the components of this
Infrastructure MoLGRDC improve (i) Vertical Infrastructure programme are similar to other
Improvement like Markets and Collection Centres existing large programmes (such as
(Bangladesh (ii) Horizontal infrastructure like the Haor Area Livelihood
Agriculture roads, irrigation and drainage Improvement Programme). Some of
Infrastructure system. its objectives are overlapping with
Development Project) the Coastal Climate Resilient
Infrastructure Improvement
Programme.

The programme may continue given

its unique features. If discontinued,
the new programme should
incorporate its unique features.
Rural Settlement RDCD, The programme objective is very - The Grameen Infrastructure
Construction for MoLGRDC similar to RID. Development programme can be
improvement of Rural remodified incorporating the
Livelihood features from smaller programmes
such as the RID or the Rural

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 392

Name of the Ministry/ Programme objective Similar major programme Remarks

programme Division envisaged in the NSSS/ NSSS
suggestions
Settlement Construction for
improvement of Rural Livelihood.
Development of the MoSW Objectives of this programme The NSSS recognises the A broader special programme
Living Standard of the include (i) construction of houses for importance of special should be devised for all
Marginal People of cleaners/marginalized people. It also programmes for marginalised marginalised groups of Bangladesh.
Bangladesh includes some income-generating groups of people and
activities, awareness building suggests for strengthening
initiatives, nutrition for children, etc. the supports.
targeting the urban poor and
marginalized people.

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 393

d. Region Specific Special Programmes

(i) Char Development and Settlement Programme (CDSP) is being implemented by the LGD, MoLGRDC. The
programme started in March 2011 and is co-financed by the Government of Bangladesh, the Government of
the Netherlands, and the International Fund for Agricultural Development (IFAD). Currently, the fourth phase
of this programme has been continuing. The project activities of CDSP IV focuses on the development of five
new chars: Char Nangulia, Noler Char, Caring Char, Urir Char, and Char Ziauddin. These encompass around
30,000 ha, with an estimated population of 155,000 persons in 28,000 households. Since 2011 to 2019 the
average number of beneficiaries from this programme has been around 10 lakhs. Allocated budget in 2019-
20 has been Tk. 227 crore.

The overall objective of CDSP IV is to improve the economic situation and living condition of the population
in the coastal areas of south-eastern Bangladesh with special reference to the poorest segment of the
population. The activities are divided into six project components: 1. Protection for Climate Change, 2.
Climate-resilient Infrastructure, 3. Land Settlement and Titling, 4. Livelihood Support, 5. Field Level
Institutions, and 6. Surveys and Studies, Operation and Maintenance.

Similar major programme: Haor Infrastructure and livelihood Improvement Project (HILIP)

(ii) Special Assistance for the Development of Char, Haor and Undeveloped Area is another small
programme that entails the economic improvement of chars in Bangladesh. This programme has a budget
of TK. 50 crore in 2019-20. The number of beneficiaries last year was around 90,000. The programme has
some overlapping objectives with the CDSP IV programme.

Both CDSP IV and Special Assistance for the Development of Char, Haor, and Undeveloped Area have some
common objectives as with the Haor Infrastructure and Livelihood Development Programme being
implemented by the LGD, MoLGRDC. There is another programme specifically designed for the Haor Area
titled ‘Haor Flood Management and Livelihood Improvement Project’51. The programme is being
implemented by the Bangladesh Water Development Board (BWDB), Ministry of Water Resources (MoWR).
Initiated in 2018, this development programme is being had funded by JICA. The expected completion date
is June 2022. Allocated budget during 2019-20 is TK. 552 crores, making it a medium-sized programme. The
overall objective of the project is to reduce the damages of Boro crops from pre-monsoon flood, improve
access to basic infrastructure, and increase agriculture and fishery productivity in the hoar areas in the upper
Meghna river basin by (i) rehabilitating and constructing the flood management facilities; (ii) rehabilitating
and constructing the rural infrastructures; and (iii) implementing agriculture and fishery promotion activities,
and thereby contributing to the improvement of living standard and activation of economic activities in the
target area.

51 A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

Source: [Link] and [Link]
[Link]
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 394

Figure 6.39: Flood Management and Livelihood Figure 6.40: Char Development and Settlement
Improvement Project in Haor Area 50 300
600 45
40 250
35 200
500 30
25 150
400 20
15 100
300 10 50
5
200 0 0

100

0
FY2017-18 FY2018-19 FY2019-20 Beneficiary Budget
Budget

Figure 6.41: Special Assistance for the development of Char, Haor and undevelopment area
1 250

0.8 200

0.6 150

0.4 100

0.2 50

0 0
FY2016-17 FY2017-18 FY2018-19 FY2019-20

Beneficiary Budget

Source: RAPID Assessment based on MoF data

e. Programmes for Coastal Areas

(i) Gucchagram (Climate Victims Rehabilitation Programme) is being implemented by the MoLand. After
successful completion of the project Adarsha Gram Project-I & II, Bangladesh government undertook a new
project of similar nature titled “Guchagram (CVRP)”. The project was approved on 4th May 2009
and rehabilitated more than ten thousand families in 254 Guchhagrams by the end of 2015. After successful
completion of phase I of the CVR programme -the phase II of the project targeted to rehabilitate 50,000
landless families in 2550 (approx.) Guchagrams by June 2020. Allocated budget for this programme is TK.
165 crore. Between 2009 to 2017 the average number of beneficiaries has been around 60,000. Objectives
of this programme include

• Rehabilitation of landless destitute poor families affected by climate change, river erosion and other
natural disasters by establishing Guchhagrams on government “khash” land
• Bring them to mainstream society by ensuring socio-economic development by providing credit and
giving training on awareness and skill development.

(ii) Coastal Climate Resilient Infrastructure Improvement Programme (CCRIIP) is being implemented by
LGD, MoLGRDC. CCRIIP constructs climate-resilient road infrastructure and cyclone shelters, and improves

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 395

access to markets to address acute poverty and climatic vulnerability in south-west Bangladesh.52 The project
is being implemented in 32 Upazilas of 12 south-western districts - Barguna, Barisal, Bhola, Jhalokathi,
Patuakhali, and Pirojpur districts in Barisal division, Gopalganj, Madaripur and Shariatpur districts in Dhaka
division, Bagerhat, Khulna, and Satkhira districts in Khulna Division. These districts are known to be very
poor, least developed, and vulnerable to natural disasters such as tidal surges, cyclones, and floods. The
target group comprises the population in the catchment areas of project markets and roads, in particular,
small and marginal farmers, small traders and microentrepreneurs, landless people, and poor women. It is
estimated that 3.5 million people will benefit from the project. The number of beneficiaries on average per
year has been around 48 thousand during 2014-2019. In 2019-20 the allocated budget for this programme
was TK. 156 crore.

The goal of this programme is to achieve the following:

• Improved livelihoods (higher incomes and food security) for poor households (women and men) in
selected Upazilas of 12 coastal districts.
• The development objective is to achieve enhanced climate resilience of coastal road and market
infrastructure and people in selected Upazilas of 12 project districts.

Case 10: Case study on a Beneficiary of the Coastal Climate Resilient Infrastructure
Improvement Programme

Nurul Amin Shekh, a shrimp farmer from Sundarganj, has been struggling to support his family with his limited monthly
earning of Tk. 15,000 from his hatchery. He incurs big losses when his shrimps suffer from viral diseases and consequently
has to take loans to support his family.
For the last four years, he has been receiving training on Coastal Climate Resilient Infrastructure Improvement
Programme. It has been helping his family and other villagers to survive the loss of property after deleterious weather.
He and most of the villagers are involved with the programme. According to him, the most important training is on getting
shelter for different storm signals. Other than training, the CCRIIP also provides lifejackets, torches, raincoats etc.
“We got nothing but awareness training from the CCRIIP. It does not provide any kind of financial supports for livelihood
improvements”, he said with a bit of frustration. He wished that CCRIIP were allotted funds to incorporate workfare
programme components (such as repairing roads or improving other infrastructures) so that the poor people could earn
from the programme as well. He also thinks that the government should provide financial support or loan along with
training. It should also incorporate a monitoring component to gauge the progress. He believes that training on livestock
breeding and the provision of financial support for poor old women would result in an increase in income.

(iii) Lump-Sum Provision for Development of Special Areas (Except Hill Tracts), a revenue financed
programme, has been administered by the Prime Minister’s Office (PMO). The target beneficiaries of this
programme are marginalised rural population. This programme was initiated in 1996 targeting the
marginalised rural population of Bangladesh. Around 14 thousand beneficiaries have benefitted from this
programme on average per year during 2014-2019. In 2019-20, the allocated budget for this programme was
been Tk. 50 crore. Objectives and activities conducted in the domain of this programme are as follows:

• Improving income generation opportunities for the rural marginalised group of the population, that
include providing skills and training.
• Providing school stipends in the concerned Upazilas and one-time stipends for public and private
university students from the rural-marginalised group.
• Funds from this programme are also spent on health services, repairing religious structures, and
establishing schools for a marginal group of population.

52 A COMPENDIUM OF SOCIALPROTECTION RESEARCHES

Source: [Link]
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 396

Figure 6.42: Coastal Climate Resilient Figure 6.43: Gucchagram (Climate Victims
Infrastructure Improvement Rehabilitation)
0.6 350 4 500
3.5 450
0.5 300
400
250 3
0.4 350
2.5 300
200
0.3 2 250
150 200
1.5
0.2 150
100 1
0.1 100
50 0.5 50
0 0 0 0

Beneficiary Budget Beneficiary Budget

Source: RAPID Assessment based on MoF data

Figure 6.44: Lump Sum Provision for Development of Special Areas

(Except Hill Tracts)
0.25 60

0.2 50

40
0.15
30
0.1
20
0.05 10

0 0
FY2013- FY2014- FY2015- FY2016- FY2017- FY2018- FY2019-
14 15 16 17 18 19 20

Beneficiary Budget

Source: RAPID Assessment based on MoF data

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 397

Table 6.10: Summary of the region-specific special programmes

Name of the Implementing Areas of Programme objective Similar major Remarks
programme line operation programme
ministry/division envisaged in the
NSSS
Haor Flood BWDB, MoWR Areas situated Rehabilitating and constructing the flood The NSSS does One large
Management and in the upper management facilities and not specifically programme currently
Livelihood Meghna river infrastructures. mention about being implemented is
Improvement Project basin Implementing agriculture and fishery programmes on Haor Area Livelihood
in Haor Area promotion activities, and thereby climate change. Improvement
contributing to the improvement of However, it duly Project. All the
living standard and activation of attested the projects are being
economic activities in the target area. importance of implemented by two
these special different ministries;
programmes for the livelihood
climate- components have
vulnerable some overlapping.
regions. All livelihood
programmes for the
climate-vulnerable
regions can be
introduced under a
broader umbrella.
Char Development LGD, MoLGRDC Five new The overall objective of CDSP IV is to - The programme is
and Settlement (IV) chars: Char improve the economic situation and more of a settlement
Nangulia, living condition of the population in the development than a
Noler Char, coastal areas of south-eastern social security
Caring Char, Bangladesh with special focus on the programme.
Urir Char and poorest segment of the population.
Char Ziauddin

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 398

Name of the Implementing Areas of Programme objective Similar major Remarks

programme line operation programme
ministry/division envisaged in the
NSSS
Special Assistance for - - - - Programme
the development of Information was not
Char, Haor and available
underdeveloped areas
Gucchagram (Climate MoLand Regions where Rehabilitation of landless destitute poor - -
Victims Rehabilitation) families are families affected by climate change, river
affected by erosion, and other natural disasters by
climate establishing Guchhagrams on
change, river government “khash” land.
erosion and Bringing them to the mainstream of
other natural society by ensuring socio-economic
disasters development by providing credit and
giving training on awareness & skill
development.

Coastal Climate LGD, MoLGRDC 32 Upazilas of Improved livelihoods (higher income and - The programme has
Resilient 12 south- food security) for poor households some similar
Infrastructure western (women and men) in selected Upazilas of objectives as
Improvement districts: 12 coastal districts. observed in the
Barguna, The development objective is to achieve Agriculture
Barisal, Bhola, enhanced climate resilience of the Infrastructure
Jhalokathi, coastal road and market infrastructure Improvement
Patuakhali and and people in selected Upazilas of 12 project. Most of the
Pirojpur. project districts. areas under
Districts in operation of these
Barisal two programmes are
Division, also overlapping.
Gopalganj,

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 399

Name of the Implementing Areas of Programme objective Similar major Remarks

programme line operation programme
ministry/division envisaged in the
NSSS
Madaripur
and Shariatpur
districts in
Dhaka
division,
Bagerhat,
Khulna, and
Satkhira
districts in
Khulna
division.
Lump Sum Provision PMO Across all Improving income generation - This programme can
for Development of districts opportunities for the rural marginalised continue as it is. A
Special Areas (Except (except hill group of the population, that include large portion of this
Hill Tracts) tracts) providing skills and training. fund is spent after
Providing school stipends in the repairing religious
concerned Upazilas and one-time structures or
stipends for public and private university educational
students from the rural-marginalised structures, etc. as
group. and where required.
Funds from this programme are also
spent on health services, repairing
religious structures, and establishing
schools for the marginal group of
population.

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 400

f. Programmes for Persons with Disabilities (PWDs):

Among all the SSPs, there are 9 different programmes for the PWDs (Table 6.11). All the programmes except
the Allowances for the Financially Insolvent Disabled fall under the small programme criteria. All disability-
related programmes should be directed from a single source.

Table 6.11: Programmes for the PWDs

Sl. Name of Beneficiary (Lac) Budget (Tk, Crore) Programme Source of
No. Program/Activities/Projects Classification Finance

2018-19 2019-20 2018-19 2019-20

1 Allowances for the Financially 10.00 15.45 840.00 1390.50 Large Revenue
Insolvent Disabled Budget
2 Stipend for Disabled Students 0.90 100.00 80.37 95.64 Small Revenue
Budget
3 Grants for the Schools for the 0.35 0.35 25.00 28.00 Small Revenue
Disabled Budget
4 Fund for the Welfare of Burnt and 0.30 0.33 1.50 1.65 Small Revenue
Disabled Budget
5 Trust for the protection of 0.00 0.00 25.50 27.50 Small Revenue
persons with Budget
neurodevelopmental disabilities.
6 Welfare Trust for Physical 0.00 0.00 11.50 15.00 Small Revenue
Disabilities. Budget
7 Service and Assistance Centre for 3.76 3.76 62.93 65.00 Small Revenue
Disabled Budget
8 Construction of Vocational 0.00 0.00 3.06 1 Small Development
Training and Rehabilitation Programme Budget
Centre for the Disabled at CRP, (Construction)
Manikganj
9 The sustainable socio-economic 0.00 0.00 3.01 2.37 New Small Development
development and rehabilitation programme Budget
programs of underprivileged and
poor disabled and autistic people
through special education, health
care and various training
programs
As noticed during the desk research, all these eight (excluding the construction project) programmes are
being implemented by five different bodies within the same ministry. In most cases, the programmes being
run by individual bodies are greatly overlapping.

The objective of the stipend programme for the students with disabilities (SWD) is to provide support to their
families so that SWDs can continue their education. The programme is being implemented by the
Department of Social Services under the MoSW. As benefits, a student receives Tk. 300 per month in primary
school, Tk. 450 in secondary school (class VI-X), Tk. 600 per month at college (XI-XII), and Tk. 1000 per month
at the university level (graduation and above In addition, this year, the number of recipients
of stipends for disabled students is going to be increased to one lakh from 90,000 and the rate of
the stipends increased from Tk 700 to Tk 750 for primary students, from Tk 750 to Tk 800 for
secondary students, and from Tk 850 to Tk 900 for higher secondary students.
Disability service and assistance centre: The Disability Service and Assistance Centre is operated by the
Jatiya Protibondhi Unnoyon Foundation (JPUF) under the MoSW. The foundation operates through 103
centres in 64 districts. It plans to establish disability service and assistance centre in each of the Upazilas
where autism corner, toy library, etc. will be integrated. Through these centres, the foundation provides
services such as physiotherapy, occupational therapy, speech and language therapy, etc at free. It also
provides counselling and information services.

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 401

The objective of the Neuro-Developmental Disabilities Protection Trust (NDPT) 53 includes – (a) providing
physical, mental and financial support to the persons with neurodevelopmental disabilities (PND); (b)
providing education, and (c) empowering them in the society. As a part of the programme, it also provides
counselling services to the parents, detection facilities of the neurodevelopmental disability (NDD),
treatment costs for NDD, awareness building, etc. It is noteworthy that the NDPT identifies the types of
neurodevelopmental disabilities as follows:

- Autism or autism spectrum disorder

- Down syndrome
- Intellectual disorder
- Cerebral palsy
A similar service is being provided by the Jatiya Protibondhi Unnoyon Foundation (JPUF) through its Disability
Service and Assistance Centre for the persons with such neurodevelopment disabilities. Therefore, one
approach for consolidating this programme can be delivering the programme through JPUF instead of
duplicating a similar service.

Figure 6.45: Service and Assistance Centre for Figure 6.46: Grants for the Schools for the
Disabled Disabled
4 70.0 30.0 0.40
3.5 60.0 0.35
3 25.0
50.0
2.5 0.30
40.0 20.0
2 0.25
30.0
1.5
20.0 15.0 0.20
1
0.5 10.0 0.15
10.0
0 0.0 0.10
5.0
0.05
- -

Beneficiaries Budget Beneficiaries Budget

Source: RAPID Assessment based on MoF data

Welfare Trust for Physical Disabilities (also known as the Sharirik Protibondhi Surokkha Trust) is operated
through the MoSW. The trust fund operates an industrial plant called Moitri Shilpa where persons with
disabilities are employed. The plant produces drinking water bottles which is used as official bottled water
for the National Parliament, PMO, all government offices, and as well as autonomous institutes. The plant
also produces various types of plastic goods such as jugs, mugs, buckets, etc. The trust provides scholarships
to 128 students with disabilities each year. 54

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54 [Link]
 Harmonisation of Small Social Security Programmes: Issues and Policy Options 402

Figure 6.47: Welfare Trust for Persons with Figure 6.48: Trust for the protection of the
Physical disabilities persons with neurodevelopmental disabilities
16 30
14
25
12
10 20

8 15
6
10
4
2 5
0 0

Source: RAPID Assessment based on MoF data

Social Development Foundation: 55

Social Development Foundation is an autonomous and ‘not-for-profit’ organisation under the Ministry of
Finance, Government of Bangladesh established in 2000. Being an organisation itself, the SDF cannot be
considered for programme consolidation. However, during the desk research, it was identified that some of
the SDF programmes (which are not reported on the MoF prepared list) had identical or overlapping
components with other SSP projects. One of the prime examples of such project is the Notun Jibon Livelihood
Improvement Project (NJLIP) which is currently being implemented with assistance from the World Bank.
The project is a continuation and extended version of its previous Social Investment Programme Project-II
(SIPP). The project areas cover 35 poorest Upazilas identified in the HIES 2010. The $220 million project
started in 2015 and will continue till June 2021. This project has three major components, namely – (i)
Community institutions and livelihood development, (ii) Business development and institutional
strengthening, and (iii) Project management, monitoring, and learning. Through these components, the
project aims to attain its objectives such as

- Empowering the rural poor and emphasising on women,

- Creation of strong and sustainable village institutions,
- Developing skill and generating employment opportunities for the unemployed youth in the poor
and hardcore poor households,
- Channel grants directly to the community,
- Providing onetime grant to the most vulnerable for reducing poverty, and
- Building linkage with higher-level financial institutions.

It is observed that several of the programme components have unique features. The GoB needs to
synchronise all such poverty reduction strategy programmes, such as SWAPNO, NJLIP, HILIP, AIDP, etc. into
a larger programme with stronger integration to the other social security components (such as training
programmes, microcredits, etc.).

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 403

Table 6.12: Summary of small programmes for PWDs

Name of the programme Ministry/ Programme objective Similar major programme Remarks
Division envisaged in the NSSS
Stipend for Disabled Students DSS The programme’s target is to create The stipend for the students One avenue of harmonization
robust support for the students with with disabilities is currently can be providing the stipend for
disabilities as among all the students being distributed through the the students with disabilities
they have the highest dropout rates. DSS of the MoSW. through the regular stipend
programmes.
The programme aims to provide extra The government has already
financial support to the families having announced universal coverage However, there should be
students with disabilities. for primary and secondary different categories (along with
education. different transfer benefit)
integrated into the universal
stipend programme.
Grants for the Schools for the DSS The Grant is provided to the special N/A -
Disabled schools for children with disability.
Trust for the protection of NDDPT Providing physical, mental and financial Similar services are provided JPUF should be strengthened by
persons with support to the persons with by the JPUF. delivering all other disability
neurodevelopmental neurodevelopmental disabilities (PND). services this channel.
disabilities. Providing education and empowering
them in society.
Welfare Trust for Physical SPST The trust fund operates an industrial - -
Disabilities. plant called Mitri Shilpa where persons
with disabilities are employed.
Service and Assistance Centre JPUF Providing free services such as Some of the NDDPT objectives JPUF operates in all the districts
for Disabled physiotherapy, occupational therapy, are overlapping with the JPUF with more than 100 branches
speech and language therapy, etc. provided services. across the country. Its
Providing training, distributing disability operations should be
equipment, etc. strengthened, and all disability-
related services should be
harmonised with the JPUF
programmes.
The sustainable socio- - Providing underprivileged and disabled The programme objective is This programme should be
economic development and poor, and autistic people with special overlapping with the JPUF harmonised with the
rehabilitation programs of objectives. programmes run by JPUF.

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 404

underprivileged and poor education, health care, and various

disabled and autistic people training programmes.
through special education,
health care and various
training programs

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 405

3.3. A Pragmatic Approach for Harmonising Small Social Security Programmes:

One interesting feature of the small social security programmes is that the number of such programmes
varies from year to year. As mentioned earlier, this is primarily because of new pilot programmes pops-up in
almost every fiscal year. However, if this trend of initiating small programmes tends to continue, then the
overall objective of this study will be severely underscored. Therefore, for the sustainability of this
harmonisation approach, a long-term vision is required. In this regard, it is important to note that, even if
this report proposes, it might not be possible to harmonise these small programmes before the completion
of their current phases.. For instance, if a programme has a phase-out timeline in December 2021, as per
this report, that programme should not be continued afterwards. Rather than renewing that programme, its
unique components should be incorporated with already existing large programmes.

Based on our above discussion of all the small social security programmes of Bangladesh it is clear that a
complete harmonisation of the small programmes is not possible unless and otherwise broad large
programmes are well defined and classified. As mentioned in the NSSS, there should be five broad
programmes for(i) the children;(ii) working age population, (iii)the elderly, (iv)PWDs, and (v) abroad set of
special programmes. These five programmes should be considered as five umbrella programmes and all
other programmes for the SSPs should be considered as components of these programmes. If any new
programme needs to be introduced, it should be a complementary programme to one or more components
of the existing umbrella programme and not as a substitute. Therefore, for a successful consolidation, a
seven-layer implementation strategy presented in Figure 6.49 can be considered:

Figure 6.49: Implementation Strategy of the Small Programme Harmonisation

Regular M&E

Phased
implementation

Communication and
dissemination

Gap identification

Stakeholder identification

Impact analysis

Planning

Source: RAPID Assessment based on MoF data

Layer 1: A thorough planning is required for structuring the large programmes:

As has been noted during the consultations with the ministries, there is a lack of clarity in understanding the
concept of programme harmonisation. Therefore, thorough planning should be undertaken regarding
programme consolidation so that each ministry can pinpoint their prospective roles and stakes in it. In this
regard, as mentioned in the NSSS, based on the life-cycle categories some key umbrella programmes should

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 406

be defined. The GED should conduct a study on each of the components of the lifecycle category so that the
studies can prepare a guideline for each component. That is, there should be five broad studies,

a. A study on Child Benefit Programme (0-18): the study should identify the elements to capture in the
programme, it’s operational modality, what components the programme should have, and how the
programme should evolve over time.
b. A study on the Workfare Programme: based on a review of all existing workfare programmes, the
study should identify an ideal framework for a workfare programme.
c. A study on the programme for the elderly: the study should identify what should be included in the
programme
d. A study on the programmes for the PWDs: although the NSSS stipulated for a detailed study on the
framework for the Disability Benefits programme for the children and working-age population – the
framework has not been set yet. The study should identify what type of programmes should be
considered for PWDs.
e. A study on the special programmes: Should there be need for any special programme, the GED
should set the guideline for those programmes.
Layer 2: Analysing the Impacts and identifying the dependencies

All the aforementioned six studies should particularly identify the potential impacts and outline the
dependencies. For instance, phasing out many programmes will result in laying off thousands of people. How
should such challenges be addressed?

Layer 3: Identify the major stakeholders

All the relevant stakeholders implementing the small programmes, programme beneficiaries, as well as
donors should be identified. The small programmes/other programmes consolidation to the broadly defined
large six programmes must be well defined.

Layer 4: Gap identification

Based on the consultation with the stakeholders, all the gaps in the drafted six mother programmes should
be identified.

Layer 5: Communications and dissemination with all relevant stakeholders

The final consolidation programme should be well disseminated so that each of the stakeholders knows
about the framework. This will help reduce emerging new small SSPs. Donors and development partners will
be well informed about their scopes of intervention in the newly drafted broad programmes.

Layer 6: A phased approach

Considering the fact that the NSSS’s second phase will be in place by 2025, all the components of the large
programmes should be in place by 2025 and be implemented in a phased manner.

Layer 7: M&E of the small programme harmonisation

The overall consolidation approach should be regularly monitored and evaluated by a competent third party
procured by the GED. With support from the Cabinet Division, the M&E implementor’s sole assignment
would be to monitor the overall progress of the small programme harmonisation according to the phases
identified in the studies.

Nonetheless, a more specific programme-wise recommendation for small programme harmonisation has
been summarised in the following Recommendation section.

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 407

Conclusion and Recommendations

Currently, there are more than one hundred programmes being implemented by the Government of
Bangladesh as social security programmes. The National Social Security Strategy suggested consolidation of
small programmes in order ensure efficiency and effectiveness of the overall SSPs. However, there has been
a lack of clarity about identifying the small programmes and a lack of concerted coordinated actions for
having a meaningful programme harmonisation and/or consolidation. In this backdrop, this report
contributes by identifying the small programmes that can be considered for harmonisation and providing
some guidelines about how it can be undertaken.

This study finds that several small social security programmes have overlapping objectives. Consolidation of
these programmes thus can significantly improve the efficiency of current social security schemes in
Bangladesh. Taking a close look at various features of small SSPs e.g. programme objectives, number of
beneficiaries, eligibility as social security and their scale of operation, this study develops a framework to
harmonise small SSPs. Both specific and broad recommendations are presented regarding the harmonization
of small social security programmes.

4.1. Specific Recommendations

Specific recommendations are provided for all the small SSPs that are categorized into three groups: lifecycle
risk programmes (19 small SSPs), covariate risk category (3 programmes), and special programmes (20 small
SSPs).

4.1.1. Harmonisation Recommendation for the Lifecycle Risk Small SSPs:

Programmes for Children

➢ The programme objectives of most small SSPs on children's’ health and nutrition overlap with
another large programme implemented by the Directorate General of Health Services, under the
Health Service Division of the MoHFW.56 The Programme, named ‘Maternal Neonatal Child and
Adolescent Health’ (MNCAH), is a large programme as per the definition followed in this study. The
programme is being continued since 2011 and will be completed in June 2022. Upon consultations
with MoWCA, DGFP and DGHS, the Cabinet Division should prepare a unique programme for
Maternal, Neonatal, Child and Adolescent Health Care to be continued from July 2022 onward.
Harmonising all these programmes under “Agamir Shishu” can be a pragmatic and optimal strategy
to move forward.
It is noteworthy to mention that, National Nutrition Services (NNS) is strongly stipulated by the NSSS
for continuation. Based on close inspection of the NNS in this study, it is a reasonable approach to
consolidate all nutrition and delivery of nutrition services related projects under the NNS framework.
Since capacity enhancement component is already a part of the NNS, the adaptation of such
programmes will enhance the NNS delivery mechanism, efficiency, and effectiveness.
 Several small SSPs that are related to children’s education has similar components as a few large
programmes for children’s education at the elementary and primary level. Hence, pre-primary
education programmes should be integrated under the Ministry of Primary and Mass Education. The
operation of Bangladesh Shishu Academy (BSA) should be extended further. All the Child
Development Centres (CDC) and day-care centres can be operated under the BSA.
Unique features of Reaching out of School (ROSC) can be incorporated into the regular primary or
secondary education programmes. Components such as the primary school education stipend can
be made universal. Each year, all students could be provided with a one-time cash transfer for

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uniforms. Exam fees should be abolished for the poor students. On the other hand, pre-vocational
training components of the ROSC should be integrated into the Technical and Vocational Education
curricula.

 Small child protection programmes such as ‘Child protection and child welfare’ and ‘Street children
rehabilitation programmes’ have several components that are implemented by the DSS through the
Child Sensitive Social Protection in Bangladesh (CSSB) programme. Hence, rather being administered
as separate programmes, these schemes can be incorporated in the (CSSB).

Programmes for Working-age

 Small social security programmes such as the Interest-free Microcredit Programmes and the
Microcredit for women self-employment are quite similar in programme objectives with the
microcredit programmes that are in operation by the Palli Karma Sahayak Foundation (PKSF). PKSF
provides financial assistance and institutional support to the poor through employment generation.
Given the extents of microcredit services PKSF has, all microcredit programmes can be channelled
through PKSF. In this respect, DWA, JMS or DSS will be in charge of conducting the training
programmes, or preparing the list of loan beneficiaries, while the PKSF will be in the charge of
distributing the loan amounts. Since MIS has already been in implementation, coordination between
the service providers (JMS, DSS, DWA) and PKSF will not be challenging. During the interview with
the government officials, it was identified that the Cabinet Division has already agreed to implement
a ‘Somonnito Microcredit Programme’.

 Small SSP for the skill development of working-age population include Skill and Employment
Programme in Bangladesh (SEP-B), whose unique components can be integrated into a broader
medium-sized programme named Skills for Employment Investment Programme (SEIP), upon its
completion in 2020. SEIP should be strengthened and should be integrated with other Income
Generating Activities (IGA) based- social protection programmes.

An overview of the skill enhancement programmes for women run by DWA and JMS indicates a
duplicated number of programme components. Such duplicities in the training programmes can
result in inefficiencies. According to some social security experts interviewed for this project, such
duplicities can result in the hiring of inexperienced/incapable trainers reducing the overall impacts
of training. These programmes can also be considered for integration with the MoF led SEIP
programme. It should be noted that both SEIP and MoWCA initiated skill-enhancing programmes
will phase out with the completion of the project deadline. However, most of these projects are
continuation (that is, 2nd or 3rd phase) of earlier programmes. Therefore, it can be expected that –
many of these programmes might get a further extension if proper harmonisation does not take
place. The research team recommends harmonising all such skill-enhancing programmes around
SEIP. If required – remodify the module of SEIP so that the social empowerment component (such
as self-employing tools – sewing, embroidery, etc.) are well resonated.

Programmes for Persons with Disabilities

➢ All the eight small programmes for PWDs should be directed from a single source. Based on the
review, among all the institutions working with disabilities, Jatiya Protibondhi Unnoyon Foundation
(JPUF) comes on the top in terms of its experience as well as coverage. Hence, all programmes
related to the service delivery and assistance including the medical treatment allowances to the
PWDs should be harmonised and convened through JPUF. To do this, the capacity and exposure of
JPUF should be strengthened. However, all disability-related regular benefits should be channelled

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through the DSS and the stipend programme for the PWDs should be harmonised with the regular
benefit programmes.

Street Children Rehabilitation is also implemented through the MoSW. The project components of
the street children programme are already included in the CSSB project. Rather being implemented
as a separate programme; this can be incorporated in the CSSB programme.

Covariate Risk Small SSPs:

➢ Among 42 small SSPs, three can be classified as programmes for covariate risks. Amongst others,
time is the most important factor in dealing with shocks. Therefore, all such risk-mitigating funds
should be consolidated into one unified programme. The existing GR fund can be remodified in this
case. The disability component of the programmes for covariate risks is overlapping with other
programmes for PWDs being implemented. As a general recommendation, all programmes related
to PWDs should be concentrated under one single broad programme for the PWDs. The immediate
fund that is disbursed to the burnt for medical treatment can be integrated into the modified GR
programme.

Two approaches can be undertaken for the harmonization of ‘Assistance for Cancer, Kidney and Liver
Cirrhosis Patients’. The first approach could be merging it with the modified GR programme. Any
person diagnosed with the medical condition and verified by a certified doctor as well as UNO/DC
will be entitled to receive the benefit. And the second approach could be integrating this programme
with the MoHFW run ‘T.B. Leprosy, Communicable Non-communicable Disease control’ programme
(which is a large programme with a budget of Tk 750 crore). The modified programme will
incorporate subsidised treatment costs for persons diagnosed with cancer, kidney or liver cirrhosis
at the government hospitals.

Special Small Social Security Programmes:

➢ There are 20 special SSPs among 42 small programmes which in section four are categorized as
related to the livelihood of marginal and low-income, health care programmes, infrastructure
development projects, region-specific special programmes, programmes for coastal areas, and
special programmes for PWDs. For livelihood-based special SSPs such as programmes for tea garden
labourers, for Harijan, Dalit, Bade, and transgender differentiated amount of benefits are being
offered. In order to harmonise these special SSPs, instead of offering differentiated amounts,
benefits from these programmes can be streamlined. For example, students of the same educational
level from the “Programme for Improving the Livelihood of Harijan, Dalit, Bade community” and
“Programme for Improving the Livelihood of Trans Gender (Hijra)” receive a different amount of
benefits. As both programmes are for marginal groups, the stipends provided can be made uniform
as well. All these programmes can be drawn under one programme that will administer and
implements all the special livelihood improvement schemes. However, a study should be
commissioned to identify the types of support programmes to be directed to such marginalised
groups. For instance, what type of training should be provided, how much transfer benefits should
be incorporated in the programme, how to coordinate these programmes, etc. should be clarified in
the study.

The region-specific programmes namely Haor Flood Management and Livelihood Improvement
Project, Char Development and Settlement programme, and Special Assistance for the development
of Char, Haor and underdeveloped areas all have similar objectives as one of the major programmes,
‘Haor Infrastructure and livelihood Development programme’. Hence, these programmes can be

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administered through the same authority. Likewise, other region-specific special programmes that
address climate change issues and vulnerability of coastal areas such as Gucchagram and Coastal
Climate Resilient Infrastructure Improvement can be harmonized if there are improved coordination
between the implementing authorities MoL and MoLGRDC.

4.2. Broad Recommendations

Any social security programmes in Bangladesh is implemented under either of two types of budgets: revenue
budget and development budget. While the programme under the revenue budget does not require external
funding, that underdevelopment budget is financed by development partners and has a certain duration
after which the project is expected to end. Hence, the ones included within the development budget are
likely to have a natural death process in-built. Indeed, a few of them have already ceased to exist and some
will be discontinued soon. Hence, SSPs facing such natural death are going to be naturally consolidated and
there are not many to consider once discontinued programmes are discarded from the analysis.

1. Small programme harmonization will improve administrative efficiency without much impact on
budgetary efficiency
As has been discussed before, the small social security programmes constitute only 4.13% of the total SSP
budget. In addition, some of the small programmes are too small to have any major impact whether they
are consolidated or are left to exist as they are. Hence, in terms of budgetary efficiency harmonization of
small programmes might not induce significant benefit over the current situation. However, our analysis of
small SSPs implies severe overlaps among several small programmes in terms of objectives, and some
programmes are too small to have any meaningful impact on the beneficiaries. Due to the duplicity,
programmes that are similar in goals can be consolidated to improve administration and management
efficiency by reducing the administrative cost of operation, as envisaged in the NSSS. Also, the programmes
that are aligned with the goals of major or large SSPs, can be brought under the same umbrella.

Given this scenario, this study believes, even though there will be a substantial gain in administrative
efficiency from consolidation and harmonization of small SSPs, that most budgetary gains from programme
harmonisation will come from consolidation of large programmes.

2. A formal mechanism should be in place for initiating new SSP

In many cases, small programme consolidation can be challenging. For example, the Social Development
Foundation was established under an Act and it will have to continue. In those circumstances, MoSW will
have to make sure that Foundation programmes are adding value and are not merely duplicative in nature.
All small programme should have well-developed concept note (business cases) so that the scope of
consolidation is known and the reasons for their continuation can be rationalised. If any ministry or division
intends to initiate a new SSP, a formal mechanism should be in place. Once the programme rationale is
verified through the established mechanism, it can be initiated to promote creativity and tested through
pilot programmes. If they are successful, they will have to be duly scaled up to achieve programme
objectives.

3. Programme consolidation can use a cluster approach to bring group-specific interventions under
one umbrella
In certain cases, several special small programmes have their relevance and usefulness to address pressing
issues that involve insolvent marginal groups of the population. This is particularly important when the issue
of inclusivity has to be protected and promoted. For example, the programme targeting certain marginal
groups as "Bede" and transgender population. One will also have to accommodate political commitments
(e.g. to protect certain communities). Programme consolidation can use a cluster approach so that all these

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group-specific interventions can be brought under an umbrella for programme designs, ensuring coherence
across the similar schemes and effective administrative oversight.

4. Capacity and efficiency of MoSW should be improved

Another important fact to be noted is that as per the NSSS, from 2026 onwards, once all lifecycle
programmes come under the purview of the MoSW, consolidation tasks will be much easier and more
meaningful. During the consultation with the relevant government officials, it was pointed out that, one key
policy priority could be reforming the MoSW and its wings (such as the DSS, JPUF, etc.) in order to improve
its capacity and improve its operational efficiency for the second phase of the NSSS implementation.

5. Steps should be taken to make all SSP related information easily available through a dedicated
web portal
One of the major limitations the research team faced while working on this project, was the unavailability of
information on several social security programmes. This dearth of available information hinders in
conducting a rigorous analysis of the small programme harmonization based on programme efficiency. In
order to address this issue, all ministries and divisions should make the SSP related information easily
available through their website. However, a dedicated web portal registering all information of the SSPs can
be the most effective way of disseminating information on social security programmes in Bangladesh. This
must be noted that, there is already a dedicated web portal for the social protection programmes in
Bangladesh.57 However, the website does not provide an updated information for all the programmes.

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Annex
Table 6.13: Programmes under the Revenue budget
Sl. Name of Program Coverage (Persons in lac/Man Budget (Taka in crore) Program. Program. Type Remarks
No. Month) Size
2018-19 2018-19 2019-20 2018-19 2018-19 2019-20
(rev.) (rev.)
1 Old Age Allowance 40.00 40.00 44.00 2400.00 2400.00 2640.00 Large Social Protection Large programme; stipulated
in the NSSS
2 Allowances for the 14.00 14.00 17.00 840.00 840.00 1020.00 Large Social Protection Large programme; stipulated
Widow, Deserted and in the NSSS
Destitute Women
3 Allowances for the 10.00 10.00 15.45 840.00 840.00 1390.50 Large Social Protection Large programme; stipulated
Financially Insolvent in the NSSS
Disabled
4 Assistance for Cancer, 0.15 0.15 0.30 75.00 75.00 150.00 Small Social Protection Small programme; potential
Kidney, Liver candidate for harmonisation
Cirrhosis and other
Patients
5 Programme for 0.40 0.40 0.50 20.00 20.00 25.00 Small Social Protection Small programme; potential
Livelihood candidate for harmonisation
Improvement of tea-
garden labourers
6 Grants for Residents 0.21 0.21 0.21 54.66 54.66 63.63 Small Social Protection This is a grant; consolidation
in Government might not be an appropriate
Orphanages and strategy.
Other Institutions
7 Capitation Grants for 0.86 0.88 1.00 103.68 105.00 120.00 Small Social Protection This is a grant; consolidation
Orphan Students in might not be an appropriate
Non-gov. Orphanages strategy.
8 Maternity Allowance 7.00 7.00 7.70 693.00 694.02 763.27 Large Social Protection Large programme; The NSSS
Programme for the stipulates for consolidation of
Poor Lactating this programme with the
Mothers 'Allowances for Urban
Lactating Mothers'
programme. The programme
is now being consolidated
into 'Agamir Shishu'
programme

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9 Allowances for Urban 2.50 2.50 2.75 248.50 248.88 273.11 Small Social Protection Large programme; The NSSS
Lactating Mothers stipulates for consolidation of
this programme with the
'Maternity Allowance
Programme'. The programme
is now being consolidated
into 'Agamir Shishu'
programme.
10 Honorarium for 2.00 2.00 2.00 3305.00 2996.15 3385.05 Large Social Protection Large programme; Special
Freedom Fighters Programme
11 Honorarium & 0.15 0.15 0.15 295.07 415.05 480.15 Medium Social Protection Special Programme; cannot
Medical Allowances be consolidated
for Injured Freedom
Fighters
12 Ration for Shaheed 0.30 0.30 0.30 33.50 33.50 51.00 Small Social Protection Special Programme; cannot
Family and Injured be consolidated
Freedom Fighters
13 Block Allocation for 17.64 13.09 14.73 291.00 220.84 242.95 Small Social Protection Special allocation; cannot be
Disaster Management consolidated
14 General Relief 0.00 0.00 0.00 470.00 210.00 369.64 Small Social Protection Special allocation; cannot be
Activities (Block) consolidated
15 Non-Bengali 0.15 0.15 0.15 10.00 10.00 10.00 Small Social Protection Special allocation; cannot be
Rehabilitation consolidated
16 Varieties Relief Works 0.00 0.00 0.00 81.00 81.00 Small Social Protection Special allocation; cannot be
consolidated
17 Pension for Retired 6.30 6.30 6.30 22639.4 22449.4 23010.0 Large Social Protection Special programme; cannot
Government 6 6 0 be consolidated
Employees and their
Families
18 Stipend for Disabled 0.90 0.90 100.00 80.37 80.37 95.64 Small Social Cannot be consolidated; but
Students Empowerment harmonisation is possible
19 Grants for the 0.35 0.35 0.35 23.00 25.00 28.00 Small Social Cannot be consolidated;
Schools for the Empowerment
Disabled
20 Housing Support 2.96 2.96 2.96 25.00 25.00 25.00 Small Cash Transfer Cannot be consolidated;
(Special)
Programme
21 National Legal Aid 0.62 0.69 0.81 15.77 17.50 20.50 Small Cash Transfer Cannot be consolidated;
(Special)
Programme

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22 Special Assistance for 0.90 0.90 0.23 200.00 200.00 50.00 Small Cash Transfer Cannot be consolidated; but
the development of (Special) harmonisation is possible
Char, Haor and Programme
undeveloped area
23 Agriculture 0.00 0.00 0.00 120.00 120.00 120.00 Small Cash Transfer Cannot be consolidated
Rehabilitation (Special)
Programme
24 Open Market Sales 78.33 70.06 89.39 832.00 744.21 949.52 Large Food Security Cannot be consolidated
(OMS) Programmes:
Social Protection
25 Vulnerable Group 142.47 139.81 142.47 1685.07 1656.45 1698.91 Large Food Security NSSS stipulated programme.
Development (VGD) Programmes: NSSS envisaged to
Social Protection consolidate this programme
to Vulnerable Women Benefit
(VWB) programme.
26 Vulnerable Group 64.72 70.71 83.41 1730.81 1892.16 1956.91 Large Food Security
Feeding (VGF) Programmes:
Social Protection
27 Gratuitous Relief 56.82 56.82 56.82 540.88 541.74 543.59 Medium Food Security Cannot be consolidated
(Food) Programmes:
Social Protection
28 Food Assistance in 7.76 8.42 8.55 282.82 306.76 311.57 Small Food Security Cannot be consolidated
CTG-Hill Tracts Area Programmes:
Social Protection
29 Food For Work (FFW) 11.01 10.75 17.14 987.58 964.68 1204.08 Large Food Security Cannot be consolidated
Programmes:
Social Protection
30 Work For Money 15.18 15.18 15.81 720.00 720.00 750.00 Large Food Security Cannot be consolidated
(WFM) Programmes:
Social Protection
31 Test Relief (TR) Cash 19.06 19.06 20.98 1390.00 1390.00 1530.00 Large Food Security Cannot be consolidated
Programmes:
Social Protection
32 Employment 8.27 8.27 8.27 1650.00 1650.00 1650.00 Large Food Security Large programme. Requires
Generation Programmes: harmonisation with similar
Programme for the Social Protection smaller programmes
Poor
33 Food friendly 0.50 0.50 0.50 638.00 638.00 2624.00 Large Food Security Cannot be consolidated
Program Programmes:
Social Protection

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34 Food Subsidy 0.00 0.00 0.00 1250.11 1310.17 Large Food Security Cannot be consolidated
Programmes:
Social Protection
35 Micro-credit for 0.28 0.28 0.34 5.00 5.00 6.00 Small Micro-Credit Cannot be consolidated:
Women Self- Programmes: requires programme
employment Social harmonisation with similar
Empowerment programmes
36 Micro-Credit through 79.37 79.37 268.56 232.00 232.00 785.00 Large Micro-Credit Cannot be consolidated:
PKSF Programmes: requires programme
Social harmonisation with similar
Empowerment programmes
37 Interest Free Micro- 0.27 0.21 0.29 55.00 41.00 58.00 Small Micro-Credit Cannot be consolidated:
Credit Programme Programmes: requires programme
Social harmonisation with similar
Empowerment programmes
38 Social Development 0.00 0.00 0.00 425.00 400.00 235.00 Small Micro-Credit Cannot be consolidated:
Foundation Programmes: requires programme
Social harmonisation with similar
Empowerment programmes
39 Fund for the Welfare 0.30 0.30 0.33 1.50 1.50 1.65 Small Miscellaneous Cannot be consolidated:
of Burnt and Disabled Funds: Social requires programme
Empowerment harmonisation with similar
programmes
40 Trust for the 0.00 0.00 0.00 27.50 25.50 27.50 Small Miscellaneous Cannot be consolidated:
protection of the Funds: Social requires programme
persons with Empowerment harmonisation with similar
neurodevelopmental programmes
disabilities.
41 Welfare Trust for 0.00 0.00 0.00 10.00 11.50 15.00 Small Miscellaneous Cannot be consolidated:
Physical Disabilities. Funds: Social requires programme
Empowerment harmonisation with similar
programmes
42 National Shamaj 0.68 0.68 0.79 60.00 60.00 70.00 Small Miscellaneous Cannot be consolidated;
Kallyan Parishad Funds: Social
Empowerment
43 Joyeeta Foundation 0.10 0.10 0.10 2.40 2.40 3.30 Small Miscellaneous Cannot be consolidated;
Funds: Social
Empowerment

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44 Special Fund for 0.00 0.00 0.00 125.00 106.35 125.00 Small Miscellaneous Cannot be consolidated:
Assistance to women Funds: Social requires programme
development & Empowerment harmonisation with similar
entrepreneurs programmes
45 Oppressed Women 0.00 0.00 0.00 60.00 50.00 50.00 Small Miscellaneous Cannot be consolidated:
and Children Funds: Social requires programme
Welfare Fund Empowerment harmonisation with similar
programmes
46 Fund for Assistance to 1.00 1.00 1.00 100.00 100.00 100.00 Small Miscellaneous Cannot be consolidated:
the Small Farmer and Funds: Social requires programme
Poultry Farms Empowerment harmonisation with similar
programmes
47 Skill Development 0.17 0.17 0.17 401.90 400.00 400.00 Medium Miscellaneous Cannot be consolidated;
and Earthquake Risk Funds: Social
Management Fund Empowerment
48 Service and 3.76 3.76 3.76 65.00 62.93 65.00 Small Miscellaneous Cannot be consolidated:
Assistance Centre for Funds: Social requires programme
Disabled Protection harmonisation with similar
programmes
49 Programme for 0.62 0.62 0.81 50.03 50.03 67.10 Small Miscellaneous Cannot be consolidated:
Improving the Funds: Social requires programme
Livelihood of Bede & Protection harmonisation with similar
disadvantaged programmes
community
50 Rehabilitation and ০.০৬ ০.০৬ ০.০৮ 3.00 3.00 4.00 Small Miscellaneous Cannot be consolidated:
Generation of Funds: Social requires programme
Alternative Protection harmonisation with similar
Employment for programmes
Beggars Profession
51 Programme for ০.০৬ ০.০৬ ০.০৬ 11.40 11.40 5.56 Small Miscellaneous Cannot be consolidated:
Improving the Funds: Social requires programme
Livelihood of Protection harmonisation with similar
Transgender (Hijra) programmes
52 Women's Skill Based 0.00 0.00 0.00 6.80 6.80 6.80 Small Miscellaneous Cannot be consolidated:
Training For Funds: Social requires programme
Livelihood Protection harmonisation with similar
programmes
53 Child Development 0.03 0.03 0.03 5.80 5.80 6.30 Small Miscellaneous Cannot be consolidated:
Centre Funds: Social requires programme
Protection

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harmonisation with similar

programmes

54 Street Children ০.০২ 0.02 0.02 4.00 3.70 4.00 Small Miscellaneous Cannot be consolidated:
Rehabilitation Funds: Social requires programme
Programme Protection harmonisation with similar
programmes
55 Fund for Climate 4.50 4.50 4.50 276.97 300.00 300.00 Small Miscellaneous Cannot be consolidated;
Change Funds: Social
Protection
56 National Service 1.49 1.49 1.52 669.60 669.60 681.91 Medium Miscellaneous Cannot be consolidated;
Funds: Social
Protection
57 Pension Insurance 0.02 0.02 0.02 12.00 12.00 12.00 Small Miscellaneous Cannot be consolidated;
Scheme Funds: Social
Protection
58 Block Allocation for 0.09 0.08 0.40 327.15 299.00 1463.00 Large Miscellaneous Cannot be consolidated;
Various Programme Funds: Social
Protection
Total Revenue 53435.3
Budget 1
Total SSP budget 74363.6
4
Revenue Budget (as 71.9
% of total)

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 Harmonisation of Small Social Security Programmes: Issues and Policy Options 418

Table 6.14: Programmes under the Development Budget

Sl. No. Name of Program Coverage (Persons in lac/Man Budget (Taka in crore)
Month) Programme Programme Type Remarks
2018-19 2018-19 2019-20 2018-19 2018-19 2019-20 Size
(rev.) (rev.)
1 Lump Provision 0.17 0.17 0.21 40.00 40.00 50 Small Development Sector Harmonisation can be an
for Development Programmes: Social option
of Empowerment
Special Areas
(Except Hill
Tracts)
2 Ashroyan-2 & 3 10.65 12.84 10.65 913.7 1101.27 450.01 Medium Development Sector This housing programme
Project Programmes: Social will naturally end in its
Empowerment project deadline.
3 Primary School 143.95 130 143.95 1550 1550 722.36 Medium Development Sector No harmonisation
Stipend Programmes: Social required.
Empowerment
4 School Feeding 25 19.3 25 671 518.1 474.59 Medium Development Sector No harmonisation
Programmes Programmes: Social required.
Empowerment
5 Reaching Out of 5.6 5.57 5.6 229.08 227.7 156.26 Small Development Sector Harmonisation can be an
School Children Programmes: Social option
Empowerment
6 Secondary 18.75 25.31 0.00 600.00 810.00 850 Large Development Sector No harmonisation
Education Sector Programmes: Social required.
Investment Empowerment
Program
7 Secondary 8.33 10 0 200 260 104.86 Small Development Sector No harmonisation
Education Programmes: Social required.
Stipend Empowerment
8 Higher 7.22 6.78 0 160 174 2.88 Small Development Sector No harmonisation
Secondary Programmes: Social required.
Stipend Empowerment
9 Child and 0.00 0.00 0.00 151.01 6.95 107.9 Small Development Sector Harmonisation can be an
Maternal Health Programmes: Social option
& Health Empowerment
Management
Development

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10 * Maternal, 697.95 656.32 697.95 987.60 781.97 928.69 Large Development Sector Harmonisation can be an
Neonatal, Child Programmes: Social option
and Empowerment
Adolescent
Health
11 *Essential 1383.16 1340.00 1383.16 1001.90 989.23 987.53 Large Development Sector Large Programme
Service Delivery Programmes: Social
& Community Empowerment
Based Health
Care
12 * National 900 661.98 900 121 89 96 Small Development Sector Small programme.
Nutrition Programmes: Social Harmonisation can be an
Services Empowerment option.

13 * Maternal, 615.92 654.02 746.09 194.00 206.00 235 Small Development Sector Small programme.
Child, Programmes: Social Harmonisation can be an
Reproductive Empowerment option.
and
Adolescent
Health
14 *Clinical 34.61 37.71 34.61 311.53 339.45 286.08 Small Development Sector Harmonisation can be an
Contraception Programmes: Social option
Services Delivery Empowerment

15 * Family Planning 321.28 306.57 330.96 300.93 287.15 310 Small Development Sector Harmonisation can be an
Field Services Programmes: Social option
Delivery Empowerment

16 T.B., Leprosy, 3029.25 1442.15 3029.25 859.97 409.41 752.83 Large Development Sector No harmonisation
Communicable Programmes: Social required.
and Non- Empowerment
communicable
Disease Control

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17 Establishment of 0.08 0.12 0.00 28.66 41.95 0 Small Development Sector No harmonisation
Hostel for Programmes: Social required.
Government Empowerment
Shishu Paribar
and the Visually
Impaired
Children
18 Early Learning 0.00 0.50 0.50 0.00 10.50 19.63 Small Development Sector Harmonisation can be an
for Child Programmes: Social option
Development Empowerment

19 Northern Area 0.02 0.02 0.00 20.90 20.90 0 Small Development Sector No harmonisation
Reduction of Programmes: Social required.
Poverty Empowerment
Initiative

20 Grameen 0.00 0.00 0.00 3242.00 2081.71 4125.53 Large Development Sector No harmonisation
Infrastructure Programmes: Social required.
Development Empowerment

21 Preferential 0 0 0 150 372 502.17 Medium Development Sector No harmonisation

Village Water Programmes: Social required.
Supply Empowerment

22 Infrastructure 0.32 0.16 1.85 150.00 75.00 867.73 Large Development Sector Harmonisation can be an
and Livelihood Programmes: Social option
Development in Empowerment
Haor Area

23 Coastal Climate 0.50 0.34 0.27 282.96 190.00 155.5 Small Development Sector Harmonisation can be an
Resilient Programmes: Social option
Infrastructure Empowerment
Improvement

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24 Child protection 0 0 0 91.56 94.39 189.39 Small Development Sector Harmonisation can be an
and child welfare Programmes: Social option
Empowerment

25 Agriculture 0.69 0.69 0.85 33.10 33.10 40.85 Small Development Sector Harmonisation can be an
Infrastructure Programmes: Social option
Improvement Empowerment

26 Construction of 0.50 0.38 0.58 60.00 45.50 70 Small Development Sector No harmonisation
Colony for the Programmes: Social required.
Cleaners of Empowerment
Dhaka City
Corporation
27 Participatory 8.00 4.56 0.00 29.80 17.00 0 Small Development Sector No harmonisation
Small-Scale Programmes: Social required.
Water Empowerment
Resource
Development
28 Construction of 2.00 0.25 2.59 119.91 15.00 155.12 Small Development Sector No harmonisation
Flood Shelter in Programmes: Social required.
the Empowerment
Flood and River
Erosion Prone
Area -
29 Development of 0.00 0.00 0.00 16.83 20.05 182.7 Small Development Sector Harmonisation can be an
the Living Programmes: Social option
Standard of the Empowerment
Marginal People
of Bangladesh
30 Bangladesh Rural 0.00 0.00 0.00 0.00 80.00 200 Small Development Sector No harmonisation
Water Supply Programmes: Social required.
and Empowerment
Sanitation

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31 My House My 9 9 9 1050.79 1150.79 1143.5 Large Development Sector No harmonisation

Farm Programmes: Social required.
Empowerment

32 Flood 0.00 0.00 0.00 410.00 324.00 552.23 Medium Development Sector Harmonisation can be an
Management Programmes: Social option
and Livelihood Empowerment
Improvement
Project in Haor
Area
33 Development 0.00 0.00 0.00 1126.91 2756.75 961.99 Large Development Sector No harmonisation
Support for Programmes: Social required.
Special Needs Empowerment

34 Char 1 0.24 10.18 22.29 27.27 227 Small Development Sector Harmonisation can be an
Development Programmes: Social option
and Settlement Empowerment

35 "Gucchagram” 1.19 1.19 1.28 152.46 152.46 164.56 Small Development Sector Harmonisation can be an
(Climate Victims Programmes: Social option
Rehabilitation) Empowerment

36 Second 6.02 4.89 5.27 80.00 65.00 70 Small Development Sector No harmonisation
Chittagong Hill Programmes: Social required.
Tracts Rural Empowerment
Development

37 Tottho Apa: 0.00 0.00 0.00 145.84 88.56 130 Small Development Sector Harmonisation can be an
Empowering Programmes: Social option
Women Empowerment
Through ICT
Towards Digital
Bangladesh

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38 Establishment of 0.00 0.00 0.00 30.00 6.96 60 Small Development Sector No harmonisation
Autistic Academy Programmes: Social required.
in Empowerment
Bangladesh

39 Skills for 2.60 2.13 2.34 481.64 394.00 433.2 Medium Development Sector Harmonisation can be an
Employment Programmes: Social option
Investment Empowerment
Program

40 Generation 0.1 0.05 0.1 3 1.4 3 Small Development Sector No harmonisation

Break Through Programmes: Social required.
Empowerment

41 Development of 0 0 0 68.75 4.13 4.01 Small Development Sector No harmonisation

living standards Programmes: Social required.
of Empowerment
extinct enclaves

42 Income Support 6.00 1.14 10.81 432.02 81.96 778.1 Large Development Sector Harmonisation can be an
Program for the Programmes: Social option
Poorest Empowerment

43 Skills for 0.00 0.00 0.00 15.00 15.00 0 Small Development Sector Harmonisation can be an
Employment and Programmes: Social option
Productivity Empowerment

44 Construction of 1.00 0.34 0.34 621.30 210.00 210 Small Development Sector No harmonisation
the Multiple Programmes: Social required.
DisasterShelters Empowerment

45 Livelihood of 0.01 0.01 0.01 50.80 25.40 25.4 Small Development Sector No harmonisation
Grameen People Programmes: Social required.
"Rural Empowerment
Community"
Building

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46 Program for 0.07 0.07 0.06 23.28 23.28 18.74 Small Development Sector Harmonisation can be an
Ensuring Programmes: Social option
Employment for Empowerment
the Ultra Poor in
Northern area
47 Poverty 0.04 0.04 0.04 49.45 49.45 49.45 Small Development Sector No harmonisation
Reduction Programmes: Social required.
Through Empowerment
Inclusive and
Sustainable
Markets
48 Social Security 0.00 0.00 0.00 11.89 8.92 3.35 Small Development Sector No harmonisation
Policy Support Programmes: Social required.
(SSPS) Empowerment
Programme

49 Strengthening 0.00 0.00 0.00 0.00 19.30 17.08 Small Development Sector No harmonisation
Public Financial Programmes: Social required.
Management for Empowerment
Social Protection

50 Skill and 0.00 0.00 0.00 48.42 39.24 371.54 Small Development Sector Harmonisation can be an
Employment Programmes: Social option
Programme in Empowerment
Bangladesh

51 Increase 0.00 0.00 0.00 0.00 27.00 43 Small Development Sector Harmonisation can be an
Productivity and Programmes: Social option
Opportunity for Empowerment
employment. for
Women
(SWAPNO)
52 Support to the 0.78 0.78 1.13 38.95 38.95 56.36 Small Development Sector Harmonisation can be an
Urban Health Programmes: Social option
and Empowerment
Nutrition to the
Urban
Bangladesh

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53 Skill and Training 0 0 0 430 456 0 Small Development Sector Harmonisation can be an
Enhancement Programmes: Social option
Empowerment

54 Urban Based 0.53 0.53 0.53 19.60 19.75 20.64 Small Development Sector Harmonisation can be an
Women Programmes: Social option
Development Empowerment
Project (Phase-2)

55 Establishment of 0.06 0.06 0.06 11.74 12.72 11.74 Small Development Sector Harmonisation can be an
20 Child Day-care Programmes: Social option
Centre Project Empowerment

56 Income 0.20 0.30 0.30 61.16 92.96 90.72 Small Development Sector Harmonisation can be an
Generating Programmes: Social option
Activities (IGA) Empowerment
for
Women at
Upazila Level
57 Multi-Sectoral 0.00 0.00 0.00 23.54 21.00 27.38 Small Development Sector No harmonisation
Programme to Programmes: Social required.
Prevent Empowerment
on Violence
Against Women
(4th Phase)
58 Amader Bari (Our 0.00 0.00 0.00 10.14 10.08 0 Small Development Sector No harmonisation
Home): Programmes: Social required.
Integrated Empowerment
Old and Children
Home
59 Improved life 0.00 0.00 0.00 60.00 23.60 42.2 Small Development Sector Harmonisation can be an
Standard for low- Programmes: Social option
income people Empowerment

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60 Construction of 0.00 0.00 0.00 3.06 3.06 1 Small Development Sector No harmonisation
Vocational Programmes: Social required.
Training and Empowerment
Rehabilitation
Centre for the
Disable at CRP,
Manikganj
Total 18539.80
Development
Budget
Total SSP budget 74363.64
Budget % 24.9

Table 6.15: Programmes under the New Development Budget (as referred to in the MoF budget document)
Sl. Name of Programme Coverage (Persons in Budget (Taka in crore) Program Programme Type Remarks
No lac/Man Month) me Size
. 2018-19 2018- 2019-20 2018-19 2018-19 2019-20
19 (rev.)
(rev.)
1 Urban Public Environmental 0.00 0.00 0.00 0.00 111.67 103.8 Small New No Harmonisation
Health Development required
Centre Development Program Projects/Programs
2 Urban Resilience Project 0.00 0.00 0.00 0.00 412.81 627.05 Medium New No Harmonisation
(DNCC & DDM) Development required
Projects/Programs
3 The sustainable socio-economic 0.00 0.00 0.00 0.00 3.01 2.37 Small New Harmonisation can
development and rehabilitation Development be an option.
programs of underprivileged and Projects/Programs
poor disabled and autistic people
through special education, health
care and various training
programs

4 Establishment/re-establishment 0.00 0.00 0.00 0.00 1.80 20 Small New No Harmonisation

of Development required
Projects/Programs

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Sarkari Shishu Paribar and Baby

Home
5 Cash Transfer Modernization 0.00 0.00 0.00 0.00 2.82 31.32 Small New No Harmonisation
(CTM) Development required
Projects/Programs
6 Training programs for autistic 0.00 0.00 0.04 0.00 2.85 2.85 Small New Harmonisation can
children and women through pilot Development be an option.
training centres Projects/Programs
7 Providing Primary Health, 0.00 0.00 0.00 0.00 33.33 19.7 Small New Harmonisation can
Reproductive Development be an option.
Health and Nutrition Services to Projects/Programs
Underprivileged Woman and
Children in

8 Capacity Building of Joyeeta 0.00 0.00 0.00 0.00 9.17 51.77 Small New No Harmonisation
Foundation Development required
& Construction of Joyeeta Tower Projects/Programs
9 Promoting Nutrition Sensitive 0.00 0.00 0.00 0.00 15.38 6.32 Small New Harmonisation can
SocialSecurity & Policy Support Development be an option.
Program Projects/Programs
10 'Development of Haji Nowab Ali 0.00 0.00 0.00 0.00 0.00 7 Small New No Harmonisation
Khan Development required
Orphanage' Projects/Programs
11 Rural Infrastructure Development 0 0 0 0 0 419.64 Medium New Harmonisation can
Development be an option.
Projects/Programs
12 Secondary Education 0 0 44.52 0 0 1000 Large New No Harmonisation
Development Development required
Programme (S.E.D.P) Projects/Programs
13 Construction of Multi-storied 0.00 0.00 0.00 0.00 0.00 100 Small New No Harmonisation
Building for under privileged Development required
Muktijoddha at Zilla / Upazila Projects/Programs
Total New Development Budget 2391.82

Total SSP budget 74363.6

4
Budget % 3.2

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