Insurance coverage slumps 40% despite Tk925cr project

Highlights:

• Bangladesh's insured population fell 40% during the Tk925-crore reform project
• Coverage dropped from 1.36 crore in 2018 to 82.2 lakh in 2024
• The project failed to meet its 2-crore insurance coverage target
• Insurance penetration declined from 0.55% to 0.36% of GDP
• Premium growth slowed sharply, with life insurance turning negative
• Automation goals largely fell short despite major spending

The country's insured population has fallen sharply despite a costly reform initiative, with the number of policyholders dropping by around 40% during the implementation of a Tk925-crore development project.

When the Bangladesh Insurance Sector Development Project was launched in 2018, the total number of insured individuals – both life and non-life – stood at about 1.36 crore. The project aimed to raise this to 2 crore within four years. Instead, the number declined to 82.2 lakh by the end of 2024, according to data from the Insurance Development and Regulatory Authority.

Infographic: TBS

Of the country's 79 insurers, only two are state-owned – one each in the life and non-life sectors. But the World Bank-aided project focused only on the two state insurers and the regulatory body, the Insurance Development and Regulatory Authority (Idra).

The project aimed at raising insurance coverage, improving services, introducing automation and restoring public trust in the insurance sector by strengthening the two state insurers and the regulator.

Inclusion of only two state-owned insurers – Jiban BimaCorporation and Sadharan Bima Corporation – raised questions about the limited scope of the intervention.

Project Director Md Abdur Rab told The Business Standard, "The time to increase penetration has not yet arrived. The project is currently nearing completion; I hope its operations will play a significant role in increasing penetration in the future."

Abu Abed Muhammad Shoaib, deputy general manager of the ICT Division at Jiban Bima Corporation, said, "There has been some progress as a result of this project. Certain tasks that were previously handled manually are now being digitised. However, the use of all modules and sub-modules of the project's software has not yet commenced."

Automation goals fall short

A key objective of the project was to automate operations at Idra, Jiban Bima Corporation, Sadharan Bima Corporation, and the Bangladesh Insurance Academy. However, officials say progress has been limited.

Infograph: TBS

Mohammad Jainul Bari, who served as chairman of Idra from June 2022 to September 2024 and later as chairman of SadharanBima Corporation, noted that automation efforts fell short, particularly due to poor performance by software vendors.

"Critical goals such as real-time monitoring and improved supervision could not be achieved," he said.

Md Abdur Rab said a software system comprising 121 modules has been developed through this project. He noted that while some of these modules are already in use, others are currently in the process of being implemented. These modules are intended to establish a new system within the insurance sector, ensuring the protection of policyholders' interests.

He further added that other insurance companies will be brought under the umbrella of this software shortly.

Brigadier General (retd) Shafique Shamim, general secretary of the Bangladesh Insurance Forum and managing director of SenaInsurance, said the project had contributed to partial improvements across the sector, particularly in automation efforts involving the regulator and state-owned entities. However, he noted that not all insurers have been able to adopt the systems fully, citing higher management costs and regulatory constraints as key barriers.

Economy expands, insurance lags

The fall in coverage coincided with a decline in insurance penetration, measured as a share of gross domestic product, from 0.55% in 2018 to 0.36% in 2024. Life insurance led the downturn. The performance remains significantly below regional peers such as Sri Lanka at 1.15%, India at 3.46% and Malaysia at 4.51%.

This decline has occurred despite rapid economic growth. Bangladesh's GDP expanded from around Tk22.5 lakh crore in 2018 to Tk50.48 lakh crore in 2024. However, insurance premium income failed to keep pace with the broader economy.

Premium growth collapses

The sector has also seen a sharp slowdown in premium income growth.

Life insurance premium growth, which stood at 9.64% in 2018, turned negative by 2024. Overall premium growth – combining life and non-life insurance – fell from 10.76% to just 0.49% over the same period.

Costs rise, deadlines extended

The five-year project initially had a budget of Tk632 crore but was revised three times to Tk925 crore due to slow implementation. Its tenure was extended five times and is now set to conclude in mid-2026, after an additional six-month extension beyond the latest December 2025 deadline.

In its final phase, the project is seeing a surge in spending. Around Tk175 crore is being disbursed in a single fiscal year, largely to clear accumulated bills. As of June 2025, about 81% of the total allocation had been utilised, with only Tk3.82 crore remaining.

Md Abdur Rab noted that expenditure in the final year will be higher than in previous years, as outstanding bills for various completed works are now being settled. "Consequently, a significant amount of funding will be required at once."

He remarked that managing this level of expenditure remains a challenging task.

Capacity gaps and leadership issues

Sector insiders point to a lack of technical expertise as a major constraint.

Several project directors were career bureaucrats with limited experience in the insurance sector, leading to gaps in implementation and continuity.

"The majority of those involved in implementing the project were from outside the insurance sector," former Idra member Sultan-ul-Abedin Molla said. 

He added, "The project directors were all joint secretaries, who lacked specific experience in insurance. Furthermore, several project directors were reluctant to carry out their duties. Consequently, the project suffered from a lack of skilled personnel during its implementation."

Erosion of public trust

Idra's annual report attributes the sector's stagnation largely to declining public confidence, particularly due to delays in claim settlements. This has slowed both new customer acquisition and premium growth.

Sultan-ul-Abedin Molla said the sector's underperformance reflects deeper structural issues.

"While other sectors of the economy have grown, insurance has lagged. Lack of transparency and trust has driven down penetration relative to GDP," he said.

Brigadier General (retd) Shafique Shamim said that although regulatory reforms under the 2010 law have brought some discipline, delays in claim settlements and low public awareness remain major challenges, even as economic growth, a rising middle class and expanding digital services offer strong potential for the sector.

Project goals largely achieved: WB

The World Bank, however, said it is satisfied with the project outcomes, which were largely fraught with delays, highlighting broader issues of political inertia and the complexities of governance that can impede regulatory progress. 

In its project implementation status report in April 2025, the global lender said the project has enabled Idra to increase its technical capacity to develop new insurance products, such as the introduction of new regulations for bancassurance in 2023, a focus on microinsurance and Islamic insurance takaful, draft of a new National Insurance Policy for 2024-2029, draft amendments to the Idra Act and Insurance Act.