PROGRAM BRIEF 1 Vulnerable Group Feeding Bangladesh In the wake of the famine in 1974, the Government of Bangladesh, in partnership with the World Food Programme (WFP), launched the Vulnerable Group Feeding (VGF) Program. When introduced, VGF provided a monthly transfer of 31.25 kg of wheat per household per month for a period of two consecutive years. To date, VGF continues to be a humanitarian program that provides food transfers to the poor during disasters and major religious festivals.i 1 The Program Brief series discusses major safety net programs that the Government of Bangladesh implements. The series includes notes on the Old Age Allowance; Allowances for the Widow, Deserted and Destitute Women; and Allowances for the Financially Insolvent Disabled by the Ministry of Social Welfare; Employment Generation Program for the Poorest; Food for Work; Work for Money; Test Relief; and Vulnerable Group Feeding by the Ministry of Disaster Management and Relief; and the Child Benefit Scheme. Many of these programs are supported by the World Bank. 1 Vulnerable Group Feeding PROGRAM BRIEF BACKGROUND Since the 1970s, Bangladesh began a trail of experimentation programs that used to favor the urban middle classes at the and innovation through which safety net programs have evolved expense of the rural poor. from short-term relief to a ladder to conditional transfers to Following the devastating floods of 1998, once again, VGF in its employment generation and so on.ii The Liberation War in 1971 original form was launched and since has become an integral left many dead, raped, injured, homeless and highly vulnerable. part of the safety net portfolio of the country. Even though the Widowed and oppressed women were a particularly vulnerable Government has placed growing importance on converting food group. The large disaster - a major monsoon flood - struck the war- based-programs to cash transfers in recent years, VGF continues torn country in 1974 and destroyed the majority of the annual rice to transfer food, the amount of which was about 21 percent of the crop. This exacerbated the trend of rising prices of rice, a staple lower poverty line as of 2010.xi food in Bangladesh.iii The segment of the population that relied on farming for livelihoods saw a steep decline in their purchasing At present, the Safety Net Systems for the Poorest (SNSP) power leading to the most intense famine the country has ever Project, supported by the World Bank and implemented by the witnessed. The famine lasted from March to December 1974 but Department of Disaster Management (DDM) under the Ministry of its aftermath of malnutrition and disease trailed well into the Disaster Management and Relief (MoDMR), is extending support following year. That is when the Vulnerable Group Feeding (VGF) for improved administration of DDM’s major safety net programs— was launched in partnership with WFP who helped identify the which include humanitarian relief programs (Vulnerable Group food insecure upazilas through a mapping exercise, and VGF Feeding [VGF], Gratuitous Relief [GR]) and public works programs cards were allocated to most food insecure upazilas. Eligible (Employment Generation Program for the Poorest [EGPP], Food households then received wheat through representatives of the for Work [FFW]/Money for Work [MFW], Test Relief [TR]). Local Governmenti and the program continued through annual allocations. In 1984, once again, the country faced severe monsoon floods KEY FEATURES OF VGF putting an extreme strain on food supplies. This also reduced employment of the rural landless by 25 million-person days. VGF provides food transfers to poor households during religious However, with lessons from 1974, the Government acted promptly festivals like Eid-ul-Fitre and Eid-ul-Azha. The program also and the food crisis did not escalate to famine.v There was growing provides food transfers to people affected by natural disasters realization that food support was not sufficient to bring people and works in tandem or concurrently with Gratuitous Relief (GR). out of poverty; rather, a combination of support and capacity About half of VGF support is provided during festivals and the building for income generating activities would be important. other half is used for disasters relief. This highlighted the need for partnering with Non-Government VGF’s main objectives include: Organizations (NGOs). In 1985, as part of the Government’s response to the food crisis, in partnership with BRAC, a part of VGF • Ensuring food security for poor and destitute people; took a new form and became Vulnerable Group Development • Preventing diseases of disaster affected people and children; (VGD) which was an augmentation of the program from short • Ensuring stability of market price of basic food items; term relief to a ladder approach—which includes microcredit and economic empowerment. • Providing food transfers to unemployed people during recession; By 2000 several studiesiii iv v had revealed that VGD was effective • Contributing to poverty reduction through temporary support in enabling many women’s transition from subsistence relief to to poor populations; and mainstream income generating activities through micro-credit. • Supporting the socioeconomic development of the extreme One evaluationvi notes that VGF marked the beginning to this poor. reorientation process through poverty targeted food support, which was a much-needed move-away from universalist ration THE WORLD BANK 2 PROGRAM BRIEF Over the last five years, VGF budget and number of beneficiaries to ensure mass communication regarding VGF’s objectives, show an increasing trend (figure 1). As of FY19, the budget eligiblity criteria, entitlement and grievance process. The Project allocation represents 2.7 percent of the social protection budget Implementation Officers (PIOs) and Disaster Risk Reduction and 0.07 percent of GDP. However, average benefit per card Officers (DRROs) in charge of DDM’s program administration at the (beneficiary) per annum, has hovered in the range of BDT 1,330 upazila and district levels respectively, are expected to devise mass (US$ 16) and 1,470 (US$ 17.7). communication plans on VGF at the ward level. This campaign is expected to be carried out subject to approval of the PIC. The Table 1: Key features of VGF range of communication options include announcement, meeting, workshop, street-theater, etc. The Upazila Executive Officer (UNO) Number of beneficiaries 9.9 million (approximate number of VGF cards) will subsequently allocate the required funds to the PIC for the implementation of the communication plan. The PIC must ensure Amount of food transfer 10-30kg of rice per month per household with different provisions for specific vulnerabilities. that at least 50 percent of the beneficiaries are aware of the objectives, eligiblity criteria, entitlement and grievance process of VGF. Eligibility Means tested As found through spot checks and household surveys Agency Department of Disaster Management, Ministry commissioned by DDM and World Bank respectively, most of Disaster Management & Relief awareness is carried out in the forms of announcements and through words of mouth by Ward Members. Compared to other programs implemented by DDM, the level of awareness of beneficiaries about eligibility and entitlement under VGF is lower, Number of VGF cards in million Budget in BDT billion about 60 percent, as reflected by SNSP Project’s monitoring surveys from FY16 to FY18. 10.5 20 17.31 Table 2. Upazila poverty rates and VGF allocations 9.79 9.92 10.0 9.78 Upazila Poverty Rates Prescribed allocations for VGF 14.61 9.92 15 9.5 12.01 >=40% 45% 13.63 14.10 13.24 13.49 Millions 29%-39% 25% Billions 9.0 10 19%-28% 20% 8.5 8.50 5 <=18% 10% 8.0 7.5 0 2) Targeting FY13 FY14 FY15 FY16 FY17 FY18 FY19 Geographic Geographic targeting of VGF was closely correlated with divisional poverty levels between 2005 and 2010. With the aim of improving Figure 1: Annual budget and number of beneficiaries of VGF geographic targeting further, in 2013, the Governmentvii decided Source: Budget, Finance Division, Ministry of Finance; Department of Disaster to use the Bangladesh Poverty Map of 2010 for allocations to VGF Management, Ministry of Disaster Management and Relief besides some other large safety net programs and worked out allocation formula using various factors. 1) Outreach Spot checks commissioned by DDMviii have revealed that over According to the implementation guidelines of VGF, DDM, in recent years, geographic allocations have been closely aligned to collaboration with the humanitarian Programme Implementation the prescribed formula with the highest allocations going to the Committees (PIC) at the upazila, union and ward levels, is expected poorest areas (table 2). Vulnerable Group Feeding 3 Vulnerable Group Feeding PROGRAM BRIEF Household • Carrying a load of 10kg rice is arduous; and therefore, even Selection of VGF beneficiaries uses a comprehensive set of twelve when a woman is enlisted, she has to bring an able bodied male criteria out of which an applicant has to meet at least four to member of the household to carry the rice. Instead, households become eligible to be a beneficiary of the program. The twelve and representatives of the Union Council find it convenient to criteria are broadly grouped into the following in the program enlist a man from the same household. manual (table 3). • Child bearing, malnutrition and poor access to health care take a toll on women’s health. Many become frail and susceptible Table 3. VGF eligibility and entitlement to frequent illnesses that confine them within the homestead. Since the presence of the enlisted beneficiary is essential at the Eligibility Entitlement point of claiming the entitlement, the Union Parishad does not Poor and extreme poor who are unable encourage enlistment of women who have a higher likelihood to have two square meals a day to be sick than men from the same households. People affected by natural disasters • Poor awareness about the gender quota of VGF and conservative and in extreme need of food and financial support social norms add to the reluctance of the Union Parishad and 10-30kg per month per household households to enlist women as beneficiaries. Poeple who are food insecure because of unemployment Irrespective of the gender of the person enlisted, the entitlement is consumed by the entire household; therefore, one may assume Those who need to refrain from working, for greater public interest (e.g. that poor compliance to the gender quota may not affect the fishermen during the breeding season) program’s impact. However, the insistence on requiring a male member to carry back the rice may obliquely exclude households Children who are malnourished 50g soya protein or 100g soya milk per student, per day or any other that are headed by women or do not have any male member, and food item as determined by the therefore are most in need of the benefit. Government 3) Food distribution Pro-poor selection of beneficiaries has also performed well with 48 and 45 percent of VGF beneficiaries belonging to the bottom All public food distribution is carried out through the Public Food expenditure quintile in FY14 and FY16 respectively.ix Distribution System (PFDS) which originated during the famine of 1943. The PFDS expanded rapidly following the Liberation Gender War in 1971, and furthermore till the late 1980s, propelled by the VGF has placed great emphasis on prioritizing women. Over the years, research has suggested that due to poor access to 67% resources, lesser education, inadequate marketable skills, gender 59% 57% roles imposed by social norms, and the disproportionate burdens 53% 53% of childbearing and household work, women are less able to insure themselves against life risks including shocks, diseases, climatic disasters etc.x Recognizing the importance of focusing on women, the Government has been using gender quota of 70 percent in VGF, as stipulated in the program’s implementation guidelines. However, according to spot checks and household surveys commissioned by DDM and the World Bank respectively, gender targeting has not fared well in VGF, in recent years, as presented by figure 2. FY14 FY15 FY16 FY17 FY18 Evaluations, spot checks and some anecdotes suggest that Figure 2: Proportion of women beneficiaries of VGF Source: Department of Disaster Management, Ministry of Disaster Management and there are multiple challenges in preferentially enlisting female Relief (PPRC spot checks, FY17, FY18); World Bank (household surveys and spot checks beneficiaries. Some frequently raised issues are as follows: for SNSP, FY15, FY16 and FY17) THE WORLD BANK 4 PROGRAM BRIEF Government’s coping strategy for large floods that continued to Chairman of the Union Parishad is the GRO; while only a quarter frequent the country. of beneficiaries knew that the UNO is the GRO. The Chairman of the Union Parishad is closely involved in beneficiary selection The PFDS is administered by the Food Planning and Monitoring and entitlement distribution and thus, it is likely that the local Unit (FPMU) of the Ministry of Food; and operates through community is apprehensive about filing a complaint. At the same monetized (when the food is sold, and the resulting cash is used time, an anecdotal finding about common belief is that filing a for transfers) and non-monetized (when transfers are in the form complaint with the UNO would be overstepping the first tier of food) channels. Food transfer programs of the Government, of authority i.e. the Union Parishad and there may be negative including VGF, are in the non-monetized category.xi consequences. For VGF, DDM makes annual allotment plans based on poverty rates and the incidence of natural disasters in the country. Based on these estimates, DDM issues Allotment Orders which PROGRAM ACHIEVEMENTS translate into food grain delivery orders by Food Controllers of the Ministry of Food; and actual food deliveries are received by An early evaluationxiii of VGF for its initial period found that Union Chairmen from local food depots of the PFDS. The entire the program had targeted well: 75 percent beneficiaries were process following the allotment from DDM is overseen by District from households dependent on proceeds of manual labor; 90 Commissioners and UNOs.xii percent of the mothers were housewives and their families had no cultivable land; and almost all beneficiaries were illiterate. 4) Grievance However, the evaluation also revealed that VGF had little impact on outputs that may have long-term consequences (such as The implementation guidelines of VGF describe a detailed nutrition): household intake of energy and protein was found procedure for grievance filing and resolution. As per the guideline, to be poor despite the supplements provided by the program. the upazila is the first tier of grievance reporting and the UNO who The study recommended that more fundamental measures to is not involved in beneficiary selection or entitlement distribution, improve the households’ socio-economic wellbeing, including is the Grievance Redress Officer (GRO). Grievance can also be filed through income generating activities (IGA), were needed to create at the district office, DDM and MoDMR. Grievance boxes need to meaningful impact through VGF. This was later catered to through be placed at these offices and registers need to be maintained VGD. to record and track grievances which need to be resolved within fifteen days of being filed. The guidelines also mention that Since 1998, VGF along with other humanitarian reliefs such as there should be a phone number for grievance reporting. At the GRxiv has performed well to avoid major food crises during and same time, an Information System being developed by DDM following natural disasters. GR was provided to flood affected for improved program administration also has a provision for people during the devastating floods of 1998; VGF was provided grievance reporting and management. The guidelines also lay after the flood receded.ii Similarly, during the sustained floods of out a comprehensive process of appeal in case a grievance is not 2017, while GR provided cash, shelter reconstruction support and redressed within the stipulated time or the complainant wants some rice, VGF provided 30kg of rice to each affected household to contest the outcome. The PIC is responsible for publishing every month for about five months.xv Albeit the humanitarian grievances received monthly in the local newspaper. programs’ contribution to preventing major food crises following natural disasters, evaluations have suggested scope for reducing Despite the detailed grievance mechanism stipulated in the inclusion errors (e.g., inclusion of the non-poor or other ineligible guidelines, actual incidence of grievance filing and resolution households as beneficiaries) and also raising the low level of is limited. Anecdotal information through field visits suggest program benefits.ii that people in the lowest tiers of poverty tend to dread facing authorities. These people are also vulnerable to power relations In recent years, the discontinuation of VGF was considered on the in society and refrain from conflict, even when aggrieved, with basis that there are similar other food distribution programs and influential people in fear of reprisal. the policy direction was shifting from food-based programs to cash transfers for safety nets. However, the floods of 2017 when While grievance reporting is largely absent, beneficiary VGF was a key instrument for the Government to reduce the risk awareness is very low about who the designated GRO is. As of of food shortage, highlighted the program’s continued relevance FY18, more than 70 percent VGF beneficiaries believed that the once again. Vulnerable Group Feeding 5 Vulnerable Group Feeding PROGRAM BRIEF CHALLENGES WORLD BANK SUPPORT • Poor Targeting: VGF continues to be a program marked by The World Bank has been providing financial and technical challenges of targeting eligible beneficiaries. At the same time, support to the DDM of the Ministry of Disaster Management the inherent design of the program that entails carrying back and Relief from 2009 to present. Initially the design and heavy loads of rice as entitlement, marginalizes women who are implementation of the EGPP program was supported, and later, the preferred beneficiaries of the program. the program coverage was expanded to other safety net programs under DDM as part of the SNSP Project. • Lack of efficient distribution: Over the years, VGF has become a program that is expensive to administer and has significant The SNSP Project aims to enhance efficiency and transparency of scope for leakage. At the same time, it continues to be a relevant VGF and other major programs under DDM with modernization of program especially in emergency response following natural systems and business processes. disasters. A more efficient alternative is yet to be identified. i Hulme, David and Thankom, Arun, 2009, Microfinance, a reader ii National Social Security Strategy (NSSS), 2015 iii Kagy, Gisella, 2012, Long Run Impacts of Famine Exposure: A Study of the 1974 – 1975 Bangladesh Famine, Preliminary Draft, University of Colorado iv Razzaque et al., 1990 v Clay, Edward, Food Policy, Volume 10, Issue 3, August 1985, The 1974 and 1984 floods in Bangladesh: From famine to food crisis management vi Social Safety Nets in Bangladesh – a PPRC-UNDP Research Initiative, Volume 1, Review of Issues and Analytical Inventory vii Safety Net Systems for the Poorest (SNSP) Project, implemented by the Department of Disaster Management, supported by World Bank viii Spot checks were undertaken by a third party thinktank, Power and Participation Research Center (PPRC), as part of SNSP Project implemented by DDM and supported by the World Bank. ix Household surveys undertaken by the World Bank as part of the SNSP Project x United Nations, 2009 World Survey on the Role of Women in Development, Women’s Control over Economic Resources and Access to Financial Resources, including Microfinance xi Ahmed, Akhter U; Rashid, Shahidur; Sharma, Manohar; and Zohir, Sajjad; 2004; Food Aid Distribution in Bangladesh: Leakage and Operational Performance xii Humantiarian Program Implementation Manual, 2016, DDM Faruque, A. J. M. O.; Abdullah, M.; Ahmed, M. K.; Ahmed, K.; Institute of Nutrition and Food Science, University of Dhaka, 1986, Studies on Vulnerable Group Feeding Programme: Dietary and xiii socioeconomic studies xiv GR is an emergency response program that provides mostly in-kind support and cash immediately following a disaster. While VGF operates on a regular annual basis, it complements GR in the medium term, following a major disaster. xv Department of Disaster Management, Ministry of Disaster Management and Relief For more information: Overview on Bangladesh’s safety net program: This Program Brief has been prepared Project details: World Bank. 2016. Bangladesh Social Protection by Rubaba Anwar and Yoonyoung Cho, https://bit.ly/2TOa2Vb and Labor Review: Towards Smart Social Social Protection & Jobs Global Practice, Protection and Jobs for the Poor. Bangladesh World Bank, with kind support of the Development Series,no. 33;. World Bank, Dhaka, Korea-World Bank Partnership Facility Bangladesh. © World Bank. (KWPF). https://bit.ly/2TWVVx9 World Bank Office Dhaka Plot- E-32, Agargaon, Sher-e-Bangla Nagar Dhaka-1207, Bangladesh Tel: 880-2-5566-7777, Fax: 880-2-5566-7778 www.worldbank.org/bangladesh 6