Is the Glass Half Full or Half Empty? Food Security and Social Safety Net Programs in Rural Bangladesh K M Kabirul Islam A thesis in fulfilment of the requirements for the degree of Doctor of Philosophy Social Policy Research Centre Faculty of Arts and Social Sciences University of New South Wales July 2016 THE UNIVERSITY OF NEW SOUTH WALES Thesis/Dissertation Sheet Surname or Family name: Islam First name: K M Kabirul Other name/s: Abbreviation for degree as given in the University calendar: PhD School: Social Policy Research Centre Faculty: Faculty of Arts and Social Sciences Title: Is the glass half full or half empty? Food security and social safety net programs in rural Bangladesh Despite achieving self-sufficiency in food production in the late 1990s, food security is still a major policy issue in Bangladesh due to lack of access to safe and sufficient food for the poor. Consecutive governments have developed a range of social safety net programs (SSNPs) to address the issue. A number of studies have been conducted to assess these programs' impact on ensuring food security; however, the poorest people were not widely engaged in previous studies, nor in the design or implementation of the programs. This research explored the perceptions, insights and experiences of people in one of the poorest rural areas of Bangladesh. Two groups of people were interviewed: the beneficiaries of five selected SSNPs and non-beneficiaries who would have qualified for a program. This research focuses on exploring how people perceive their food security issues and how these issues could be solved to improve their lives. This research adopted a qualitative method to collect and analyse data: twenty interviews were conducted to explore the perceptions of both beneficiaries and non-beneficiaries. In addition, two interviews and two focus groups were conducted to examine the responses of middle and senior officials to the perceptions of the beneficiaries and non-beneficiaries. This study draws on a range of empirical and theoretical approaches to deepen our understanding of the perspectives of people involved in SSNPs in one of the poorest regions of Bangladesh. The findings suggest that the programs partially acted to improve the beneficiaries’ food security, women’s empowerment, income, earning dignity, and medical care. However, the meagreness of the amount delivered and the short length of some programs meant the impacts were limited. In addition, the efficiency of the programs was further reduced due to corrupt practices such as bribes, leakages, nepotism, and political interference by the selectors and program managers. Some participants perceived the government support as charity and said they preferred to work rather than to accept charity for themselves and their children. The majority of participants argued to increase the amount of benefits for the people who need it most. In order to create work opportunities for the poor who are physically able to work, participants advocated for establishing local industries to provide sustainable livelihoods. Declaration relating to disposition of project thesis/dissertation I hereby grant to the University of New South Wales or its agents the right to archive and to make available my thesis or dissertation in whole or in part in the University libraries in all forms of media, now or here after known, subject to the provisions of the Copyright Act 1968. I retain all property rights, such as patent rights. I also retain the right to use in future works (such as articles or books) all or part of this thesis or dissertation. I also authorise University Microfilms to use the 350 word abstract of my thesis in Dissertation Abstracts International (this is applicable to doctoral theses only). …………………………………………………….. ……………………………………..………… ……….……………………...…….… Signature Witness Date The University recognises that there may be exceptional circumstances requiring restrictions on copying or conditions on use. Requests for restriction for a period of up to 2 years must be made in writing. Requests for a longer period of restriction may be considered in exceptional circumstances and require the approval of the Dean of Graduate Research. FOR OFFICE USE ONLY Date of completion of requirements for Award: i Originality Statement ‘I hereby declare that this submission is my own work and to the best of my knowledge it contains no materials previously published or written by another person, or substantial proportions of material which have been accepted for the award of any other degree or diploma at UNSW or any other educational institution, except where due acknowledgement is made in the thesis. Any contribution made to the research by others, with whom I have worked at UNSW or elsewhere, is explicitly acknowledged in the thesis. I also declare that the intellectual content of this thesis is the product of my own work, except to the extent that assistance from others in the project's design and conception, or in style, presentation and linguistic expression is acknowledged.’ Signed …………………………… Date ……………………………… ii Copyright Statement ‘I hereby grant the University of New South Wales or its agents the right to archive and to make available my thesis or dissertation in whole or part in the University libraries in all forms of media, now or here after known, subject to the provisions of the Copyright Act 1968. I retain all proprietary rights, such as patent rights. I also retain the right to use in future works (such as articles or books) all or part of this thesis or dissertation. I also authorise University Microfilms to use the 350 word abstract of my thesis in Dissertation Abstract International. I have either used no substantial portions of copyright material in my thesis or I have obtained permission to use copyright material; where permission has not been granted I have applied/will apply for a partial restriction of the digital copy of my thesis or dissertation.’ …………………………….. iii Authenticity Statement ‘I certify that the Library deposit digital copy is a direct equivalent of the final officially approved version of my thesis. No emendation of content has occurred and if there are any minor variations in formatting, they are the result of the conversion to digital format.’ …………………………….. iv Abstract Despite achieving self-sufficiency in food production in the late 1990s, food security is still a major policy issue in Bangladesh due to lack of access to safe and sufficient food for the poor. Consecutive governments have developed a range of social safety net programs (SSNPs) to address the issue. A number of studies have been conducted to assess these programs' impact on ensuring food security; however, the poorest people were not widely engaged in previous studies, nor in the design or implementation of the programs. This research explored the perceptions, insights and experiences of people in one of the poorest rural areas of Bangladesh. Two groups of people were interviewed: the beneficiaries of five selected SSNPs and non-beneficiaries who would have qualified for a program. This research focuses on exploring how people perceive their food security issues and how these issues could be solved to improve their lives. This research adopted a qualitative method to collect and analyse data: twenty interviews were conducted to explore the perceptions of both beneficiaries and non-beneficiaries. In addition, two interviews and two focus groups were conducted to examine the responses of middle and senior officials to the perceptions of the beneficiaries and non- beneficiaries. This study draws on a range of empirical and theoretical approaches to deepen our understanding of the perspectives of people involved in SSNPs in one of the poorest regions of Bangladesh. The findings suggest that the programs partially acted to improve the beneficiaries’ food security, women’s empowerment, income, earning dignity, and medical care. However, the meagreness of the amount delivered and the short length of some programs meant the impacts were limited. In addition, the efficiency of the programs was further reduced due to corrupt practices such as bribes, leakages, nepotism, and political interference by the selectors and program managers. Some participants perceived the government v support as charity and said they preferred to work rather than to accept charity for themselves and their children. The majority of participants argued to increase the amount of benefits for the people who need it most. In order to create work opportunities for the poor who are physically able to work, participants advocated for establishing local industries to provide sustainable livelihoods. vi Acknowledgements I would like to take the privilege to convey my thanks, gratitude and appreciation to all the people who have extended their support in accomplishing my PhD. I start with the participants in my research. First, the twenty rural people who offered me a unique opportunity to understand their experiences by sharing insights and discernments on their food security issues and social safety net programs. Appreciations are also due to the mid- level government, bank and NGO officials and local government representatives from Dimla Upazila for their insights in the focus group discussion. I extend my sincere gratitude to two senior officials from two implementing agencies and the senior officials from the Ministry of Social Welfare for sharing their time and views despite their tight schedules. I am deeply indebted to my supervisors, Professor Peter Whiteford, Professor Kelley Johnson and Dr Jennifer Skattebol, for offering their vast wisdom, invaluable insights and thoughtful advice during the preparation of my proposal, data analysis and thesis writing. Without their untiring support and care this thesis would not have been possible. I would like to thank Professor Steven M Shardlow and Professor Agnete Wiborg for their encouragement to learn and implement qualitative research methods. I am also grateful to Professor Ahmadullah Mia and Professor A S M Atiqur Rahman for their inspiration and advice.