This article is part of the UPSC Daily Editorial Analysis, covering The Hindu editorial – A leap backward for maternity entitlements," published on 27th February, by the best UPSC coaching in Kolkata.

Syllabus: UPSC General Studies (GS) Paper 2: Governance, Welfare Schemes, Poverty & Hunger.

Pregnant women are denied their legal right to maternity benefits. The National Food Security Act (NFSA), 2013 mandates ₹6,000 per child. However, the Pradhan Mantri Matru Vandana Yojana (PMMVY) has weakened these entitlements. Benefits are now limited to the first child, with only ₹5,000 provided. Coverage dropped from 36% in 2019-20 to 9% in 2023-24. Budget cuts and software failures worsened the crisis. Tamil Nadu and Odisha offer better maternity schemes. The central government must restore universal benefits, increase payouts and ensure transparency. Urgent reforms are needed.

Maternity benefits in India remain a denied legal right

The Growing Trend of Cash Transfers for Women

Several Indian states are increasingly implementing cash transfer schemes for women. However, the most vulnerable among them—pregnant women—continue to be denied their legal right to maternity benefits. Even the meagre benefits that were available earlier have shrunk over time with the central government bearing primary responsibility for this decline.

Maternity Benefits Under the National Food Security Act (NFSA), 2013

Under the National Food Security Act (NFSA), 2013, all pregnant women, except those covered under the formal sector, are entitled to maternity benefits of ₹6,000 per child. Adjusted for inflation, this amount should be at least ₹12,000 today.

While this sum remains inadequate, the principle of universal maternity entitlements in the NFSA was a significant step forward. Even in financially stable households, pregnant women often lack access to nutritious food, healthcare, or rest. Maternity benefits play a crucial role in ensuring maternal and child well-being.

National Food Security Act, 2013 The National Food Security Act, 2013 (NFSA), also known as the Right to Food Act, was enacted in 2013. It aims to provide subsidized food grains to two-thirds of India's population, covering 75% of rural and 50% of urban residents through the Public Distribution System (PDS), Midday Meal Scheme (MDM), and Integrated Child Development Services (ICDS). Key Provisions Entitlements under PDS Beneficiaries receive 5 kg of food grains per person per month at subsidized rates: ₹3/kg for rice ₹2/kg for wheat ₹1/kg for coarse grains Households under Antyodaya Anna Yojana (AAY) are entitled to 35 kg per month at the same prices. Nutritional Support for Women and Children Pregnant women, lactating mothers, and children (6 months to 14 years) receive free meals under ICDS and MDM, with higher nutritional norms for malnourished children. Maternity benefit of at least ₹6,000 is provided under the Pradhan Mantri Matru Vandana Yojana (PMMVY). Women Empowerment The eldest woman (18+ years) in a household is recognized as the head for issuing ration cards, ensuring gender inclusivity. Grievance Redressal Mechanism District and State-level mechanisms address complaints, with penalties imposed by State Food Commissions on officials failing to provide relief. Transparency and Accountability Provisions for social audits, public disclosure of PDS records, and vigilance committees ensure fair implementation. States receive financial support from the Central Government for intra-state transportation, handling, and fair price shop (FPS) dealer margins. Food Security Allowance and Penalties Compensation is provided if beneficiaries do not receive their entitled food grains or meals. Officials failing to implement relief measures face penalties under the Act.

Dilution of NFSA Benefits Under Pradhan Mantri Matru Vandana Yojana (PMMVY)

Despite these provisions, maternity benefits under the NFSA have not been fully implemented. Instead, the Pradhan Mantri Matru Vandana Yojana (PMMVY) has been introduced as a substitute, but with severe restrictions:

• Benefits are limited to the first child in a family, with recent extension to a second child only if it is a girl.
• The entitlement has been arbitrarily reduced to ₹5,000 for the first child.

This directly violates the NFSA, depriving millions of pregnant women of their rightful financial support. 

Pradhan Mantri Matru Vandana Yojana (PMMVY) The Pradhan Mantri Matru Vandana Yojana (PMMVY) is a Centrally Sponsored Direct Benefit Transfer (DBT) scheme that provides a cash incentive of ₹5,000 to Pregnant Women and Lactating Mothers (PW&LM) of 19 years or above for their first live birth. The financial assistance is provided in three installments upon meeting specified health and nutrition conditions. The scheme aims to compensate wage loss due to pregnancy and ensure adequate nutrition for both mother and child. Background of PMMVY Launched in 2017, PMMVY replaced the Indira Gandhi Matritva Sahyog Yojana (IGMSY), a conditional cash transfer scheme introduced in 2010. IGMSY was implemented in 53 districts and provided ₹6,000 per beneficiary. PMMVY expanded nationwide and reduced the direct cash transfer to ₹5,000, while the remaining ₹1,000 is disbursed under the Janani Suraksha Yojana (JSY) for institutional delivery. Key Features of PMMVY Implementation Mechanism The scheme is implemented through Anganwadi Centers (AWCs) and approved health facilities. It operates under the Department of Social Welfare & Empowerment and the Department of Health & Family Welfare. Beneficiaries must register at an AWC or health facility with the prescribed application form and relevant documents. Eligibility and Conditions for Cash Transfer First installment (₹1,000): Given on early registration of pregnancy at an AWC or health facility. Second installment (₹2,000): Released after six months of pregnancy upon receiving at least one antenatal check-up (ANC). Third installment (₹2,000): Provided after childbirth is registered, and the child has received the first cycle of BCG, OPV, DPT, and Hepatitis-B vaccines. Beneficiary Criteria Applicable only for the first live birth. Miscarriages, stillbirths, and abortions are excluded. Covers only women experiencing wage loss due to pregnancy. Government employees, PSU employees, and women receiving similar benefits under any law are not eligible. Direct Benefit Transfer (DBT) System The financial assistance is transferred directly into the beneficiary’s bank/post office account. Beneficiaries must provide Aadhaar details, a registered mobile number, and bank details for seamless transactions.

Lack of Transparency and Data Concealment

Even the limited and reduced benefits under the PMMVY fail to reach many eligible women. This issue remains hidden from public scrutiny due to the Ministry of Women and Child Development’s reluctance to disclose information.

Despite Section 4 of the Right to Information (RTI) Act which mandates proactive disclosure of basic data, the PMMVY statistics remain unavailable in the public domain. However, information obtained through RTI applications reveals disturbing trends.

Alarming Decline in PMMVY Coverage

An analysis of the PMMVY’s effective coverage—defined as the proportion of pregnant women receiving at least one instalment—presents a grim picture:

• 2019-20: Peak coverage at just 36%.
• 2023-24: Sharp decline to 9%, indicating a virtual collapse of the programme.

This decline is also evident in budgetary allocations:

• 2023-24 PMMVY expenditure: ₹870 crore—one-third of the amount spent five years ago.
• To cover 90% of births, even at ₹6,000 per child, the programme would require a budget of at least ₹12,000 crore.

Government’s Justification and Software Failures

Discussions with officials from the Department of Women and Child Development confirmed that PMMVY operations nearly halted in 2023-24. The main reasons cited were:

• Major software and implementation changes introduced in late 2023.
• A drastic reduction in disbursement rates, not applications.
• Persistent software issues, described by one official as occurring “every day”.

Structural Issues in PMMVY Implementation

Since its launch in 2017, the PMMVY has been riddled with implementation challenges. Key issues include:

• Aadhaar-based payments, leading to exclusion errors.
• Complex bureaucratic hurdles, making it difficult for women to claim their entitlements.
• A lack of response to ground reports, which highlight serious accessibility barriers.

Rather than addressing these issues, the central government introduced additional complications in 2023-24, exacerbating the already fragile system.

Success Stories: Tamil Nadu and Odisha Models

While the PMMVY is not performing well, states like Tamil Nadu and Odisha have successfully implemented maternity benefit schemes:

• Tamil Nadu (since 1987): ₹18,000 per child, with a promise to increase to ₹24,000.
• Odisha (since 2009): ₹10,000 per child, doubled ahead of the 2024 elections.

These states not only offer higher financial support, but also ensure better implementation:

• Odisha (2021-22 coverage): 64% of all births.
• Tamil Nadu (2023-24 coverage): 84% of all births.
• India-wide PMMVY coverage (2023-24): Below 10%.

This stark contrast highlights the central government’s failure to prioritize maternity benefits.

Disparity Between Formal and Informal Sectors

A clear inequality exists between the formal and informal sectors:

• Women in the formal sector receive 26 weeks of paid maternity leave under the Maternity Benefits Act, 1961 (amended in 2017).
• Women in the informal sector must struggle to obtain ₹5,000 under PMMVY, despite jumping through multiple bureaucratic hoops.

This glaring inequality underscores the urgent need for reform.

Urgent Reforms Needed in India’s Maternal Benefit Schemes

The PMMVY scheme requires urgent restructuring in line with the NFSA:

• Universal maternity benefits must be enforced as per the NFSA’s legal provisions.
• The amount must be increased and indexed to inflation.
• Simplified processes should replace bureaucratic hurdles.
• Transparent reporting of PMMVY data should be mandated.

Maternity benefits are not just welfare measures—they are crucial for maternal and child health, economic security and gender equality. A stronger public support system for pregnant women will ultimately benefit the entire society. 

PRACTICE QUESTIONS Q.How has the Pradhan Mantri Matru Vandana Yojana (PMMVY) performed in achieving its objectives? What reforms are needed for better maternal health outcomes? 250 Words.

1. What maternity benefits are mandated under the NFSA, 2013?

All pregnant women (except formal sector employees) are entitled to ₹6,000 per child under the National Food Security Act (NFSA), 2013.

2. How has the Pradhan Mantri Matru Vandana Yojana (PMMVY) diluted these benefits?

PMMVY restricts benefits to only the first child and provides ₹5,000 instead of ₹6,000, violating NFSA provisions.

3. Why has PMMVY coverage declined sharply?

Coverage dropped from 36% in 2019-20 to 9% in 2023-24 due to budget cuts, software failures, and bureaucratic hurdles.

4. How do Tamil Nadu and Odisha provide better maternity benefits?

Tamil Nadu offers ₹18,000 per child (set to increase to ₹24,000), and Odisha provides ₹10,000 per child, ensuring higher coverage and better implementation.

5. What reforms are needed for maternity benefits in India?

The government must restore universal benefits, increase payouts to match inflation, simplify processes, and ensure transparency in implementation.