Context

• In recent years, several Indian states have prioritised direct cash transfers to women as a form of social security.
• However, one of the most vulnerable groups, pregnant women, continues to be deprived of their legal right to maternity benefits.
• While the National Food Security Act (NFSA) of 2013 mandates a minimum financial aid of ₹6,000 per child, the implementation of this provision has been inadequate.
• Therefore, it is imperative to explore the shortcomings of maternity benefit schemes in India, the challenges in their implementation, and the need for policy reform.

The Undermining of the NFSA Mandate

• The NFSA explicitly states that all pregnant women, except those in the formal sector, are entitled to maternity benefits.
• Adjusted for inflation, this amount should be at least ₹12,000 today, yet even the original ₹6,000 has not been fully implemented.
• Instead, the central government introduced the PM Matru Vandana Yojana (PMMVY), which limits benefits to ₹5,000 for the first child and recently extended coverage to a second child only if it is a girl.
• This restriction violates the universal nature of maternity entitlements outlined in the NFSA and significantly weakens the program’s potential impact.

Shortcomings of PMMVY

• Implementation Failures and Lack of Transparency
  • The PMMVY has been marred by serious implementation challenges. Many eligible women are unable to access even the reduced benefits due to bureaucratic hurdles and digital inefficiencies.
  • The Ministry of Women and Child Development provides little information on the program’s performance, undermining transparency.
  • Although Right to Information (RTI) queries have provided some insight, they reveal a dismal picture.
  • Effective coverage of the PMMVY, defined as the proportion of pregnant women receiving at least one instalment, peaked at only 36% in 2019-20 and plummeted to just 9% in 2023-24.
  • The primary reason for this decline appears to be disruptions caused by software changes and overly complex implementation processes.
• Structural Barriers and Digital Exclusion
  • One of the significant hurdles in accessing PMMVY benefits is the over-reliance on Aadhaar-based payments and digital verification.
  • Many women, particularly those from marginalised backgrounds, struggle to navigate these systems, leading to their exclusion.
  • Technical glitches and procedural complications have further discouraged participation.
  • Instead of simplifying access, the government has introduced additional barriers, raising concerns about whether the administrative inefficiencies are deliberate cost-cutting measures rather than mere oversight.

A Comparison of State-Level Success Stories and Lessons for the Central Government

• Tamil Nadu: A Model for Comprehensive Maternity Benefits
  • Tamil Nadu has been a frontrunner in social welfare programs, particularly in maternal and child healthcare.
  • The state’s maternity benefit scheme, originally introduced in 1987, has undergone several enhancements over the years.
  • Under its current version, pregnant women receive financial assistance of ₹18,000 per child, a significantly higher amount than the ₹5,000 provided under the PMMVY.
  • The benefits are disbursed in instalments to ensure continuous support throughout pregnancy and after childbirth.
  • Additionally, Tamil Nadu’s program has been designed with a strong emphasis on accessibility and ease of implementation.
  • The state government has ensured that documentation requirements are minimal, reducing bureaucratic hurdles.
  • As a result, Tamil Nadu achieved 84% coverage of all births in 2023-24, a stark contrast to the PMMVY’s nationwide coverage of less than 10%.
• Odisha: Expanding Benefits with Political Commitment
  • Odisha’s Mamata Scheme, launched in 2009, is another example of a well-functioning maternity benefit program.
  • Unlike the PMMVY, which restricts benefits to only the first child (with a recent conditional extension to second-child girls), Odisha’s program provides ₹10,000 per child, covering a broader base of beneficiaries.
  • Ahead of the 2024 general election, the state government decided to double this amount, demonstrating a clear political commitment to maternal welfare.
  • Odisha’s Economic Survey data suggests that the Mamata Scheme achieved 64% coverage of all births in 2021-22, significantly higher than the PMMVY’s national figures.
  • One reason for this success is the state government’s focus on simplified procedures and direct beneficiary outreach.
  • Unlike the PMMVY, which has suffered from digital payment failures and bureaucratic inefficiencies, Odisha’s scheme ensures that funds reach eligible women in a timely manner.
• Lessons for the Central Government
  • Expand Coverage: The PMMVY should extend benefits beyond just the first child, as seen in Odisha and Tamil Nadu, to provide comprehensive support for maternal health.
  • Increase Benefit Amounts
    • The financial support offered by the PMMVY is insufficient to meet basic nutritional and healthcare needs during pregnancy.
    • The central government should follow Tamil Nadu’s model and increase benefits in line with inflation.
  • Simplify Implementation
    • The PMMVY is plagued by digital verification failures and bureaucratic red tape.
    • Tamil Nadu and Odisha have shown that streamlined procedures lead to higher coverage and better accessibility.
  • Ensure Political Commitment
    • The PMMVY has remained stagnant since its launch in 2017, whereas Tamil Nadu and Odisha have actively improved their schemes over time.
    • A commitment to periodic evaluation and enhancement of maternity benefits is essential.

The Way Forward: The Need for Policy Reform

• The stark contrast between state-level programs and the PMMVY highlights the urgent need for policy reform at the national level.
• The central government must revamp the maternity benefit system to align with the NFSA’s original intent. Key reforms should include:
  • Universal Coverage: Removing restrictions on the number of children covered under the scheme.
  • Adequate Financial Support: Increasing the maternity benefit to at least ₹12,000 and indexing it to inflation.
  • Simplified Access: Reducing bureaucratic hurdles and eliminating excessive digital dependencies that exclude the most vulnerable women.
  • Transparency and Accountability: Ensuring proactive disclosure of data on fund allocations and disbursement rates to allow public scrutiny. 

Conclusion

• While India offers 26 weeks of paid maternity leave in the formal sector, women in the unorganised sector receive a meagre ₹5,000, if they manage to overcome the hurdles of the PMMVY.
• The program’s failures highlight a deeper issue: a lack of political will to support maternal and child health comprehensively.
• A well-designed and adequately funded maternity benefit program would not only uphold the rights of pregnant women but also contribute to broader social and economic benefits.
• The time has come for the government to acknowledge the shortcomings of the PMMVY and ensure that maternity entitlements are delivered in both letter and spirit.