Technical Cooperation. People s Republic of Bangladesh Strengthening Pourashava Governance Project (Phase1:Feb June.2015)

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2 Local Government Division (LGD), Ministry of Local Government, Rural Development (LGRD) & Co-operatives Japan International Cooperation Agency (JICA) Technical Cooperation People s Republic of Bangladesh Strengthening Pourashava Governance Project (Phase1:Feb June.2015) 2nd Progress Report (Supplementary Volume: Collection of Outputs) June 2015 IC Net Limited

3 Table of Contents 1. Note on the Result of Pilot Paurashava Selection 2. Final report: Report on Good Practice Study under Strengthening Pourashava Governance Project (SPGP) 3. Summary of the Baseline Survey Report / Final Report: Baseline Survey for Strengthening Paurashava Governance Project 4. Summary, Administrative Needs Assessment Survey on Paurashavas / Final report: Administrative Needs Assessment Survey on Paurashavas 5. Minutes of Meeting of Working Group Meeting, 1st to 4th 6. Report: Study on Training Institutions for Strengthening Paurashava Governance Project 7. Samples of Japanese newspaper articles on the training to Paurashava mayors 8. Operational manuals for Paurashava administration / Course Guide / Teaching materials 8-1. Training on Paurashava Budget formulation, accounting, monitoring and reporting 8-2. Training on Paurashava Tax collection and assessment 8-3. Training on Financial Management for Elected Representatives 8.4 Orientation course on the basics of Paurashava administration 8.5 Training on Citizen Participation through Ward Committee and Town Level Coordination Committee at Central Level 8.6 Training of Trainers on Citizen Participation through Ward Committee and Town Level Coordination Committee 8.7 Training on Citizen Participation through Ward Committee and Town Level Coordination Committee at Paurashava Level 9.TOT Report 9-1. Training on Paurashava Budget formulation, accounting, monitoring and reporting 9-2. Training on Paurashava Tax collection and assessment 9-3. Training on Financial Management for Elected Representatives 9.4 Orientation course on the basics of Paurashava administration 10. Report on Pilot Training Training on Paurashava Budget formulation, accounting, monitoring and reporting Training on Paurashava Tax collection and assessment Training on Financial Management for Elected Representatives 10.4 Orientation course on the basics of Paurashava administration

4 Note on the Result of Pilot Pourashava Selection By Technical Cooperation Team May 30, Background The Technical Cooperation (TC) team will formulate strategy, training modules, and guidelines and manuals for the training on the capacity development of Pourashava administration in the Strengthening Pourashava Governance Project. The TC team will validate those drafts in some pilot Pourashavas before finalizing the deliverables. The TC team selected candidates of seven pilot Pourashavas in considering the future expansion of the project results. This note presents the selection procedure and the result of selection. The basic idea on this procedure and criteria was accepted in the meeting with Additional Secretary of Local Government Division (LGD) on 20th March The final decision of the pilot Pourashavas was made by the LGD on May 4th, The TC screened the pilot Pourashavas in two steps. The section 2 and 3 explains the criteria of those two steps and the result of the first and second selection respectively. 2. First selection 2.1. Criteria of first selection The criteria of the first selection are the following. 1) To select one pilot Pourashava for each Division. 2) To select two pilot Pourashavas from the Pourashavas targeted in the NOBIDEP (Table 1), that is to say, Dhaka and Rangpur, in order to link the activities between the NOBIDEP and the TC. 3) To exclude the Pourashavas targeted in other projects for capacity development of Pourashava administration, expect one project conducting the nationwide training for the Pourashava shown in number 4 at Table 2. 4) To select at least one Pourashava from each Pourashava category (Table 3). In addition, the TC team proposed to select one Pourashava from category A and three Pourashavas from each category of B and C (Table 3), as the other projects for Pourashava capacity development mainly supports category A Pourashava, and this TC project targets mainly category B and C Pourashava. Table 1 Administrative Division and NOBIDEP Area S/N Name (Alfabetical) NOBIDEP s Area 1 Barisal 2 Chittagong 3 Dhaka NOBIDEP (B &C) 4 Khulna 5 Rajshahi 6 Rangpur NOBIDEP (B &C) 7 Sylhet Source: JICA TC team Table 2 List of Projects for Pourashava s Capacity Development S/N Name of the Project 1 Northern Bangladesh Integrated Development Project (NOBIDEP) 2 Urban Governance Infrastructure Improvement Project (UGIIP) * 3 Municipal Service Project (MSP) 4 Municipal Governance and Service Project (MGSP)** 5 City Region Development Project (CRDP) 6 Costal Towns Infrastructure Improvement Project (CTIIP) 7 Technical Assistance project (GIZ) 1

5 8 Technical Assistance project (USAID) 9 Secondary Towns Integrated Flood Protection Project (STIFPP)*** Source: JICA TC team * Including UGIIP Phase 1 (UGIIP1), UGIIP Phase 2 (UGIIP2), and UGIIP Phase 3 (UGIIP3) ** One of the components of the MGSP is the nationwide training for Pourashava officials. *** STIFPP was included additionally as the Pourashava conduct Urban Governance Improvement Action Plan under STIFPP. Table 3 Category of the Pourashava and the Number of Pilot Pourashavas Category NOBIDEP Non-NOBIDEP Total A B C Total Source: JICA TC team 2.2. Result of first selection The TC team conducted the first selection from 319 Pourashavas 1. The TC team collected the basic information of all the Pourashavas, namely name of Pourashava, location of Pourashava, category, and experience if the Pourashava works for the development project mentioned in Table 2. Firstly, The TC team checked the proportion of Pourashavas within each division and category. Table 4 shows the number and proportion of Pourashavas. Divisions are listed in the order of number of Pourshavas. The percentage of proportion was calculated by dividing the number of Pourashava in column category and row division by the number of total Pourashavas, namely 319. Table 4 the Proportion of Pourashavas in Each Division and Category Name of Division Category A Category B Category C total Dhaka No % Chittagong No % Rajshahi No % Khulna No % Rangpur No % Barisal No % Sylhet No % Total No % Source: JICA TC team 1 The TC team used the data base of Urban Management Support Unit (UMSU) at the Local Government Engineering Department (LGED) and could not access the four newly established Pourashavas information. 2

6 As the TC team will conduct the dissemination of good practices within each Division, the TC team identified the highest proportion of category in each division firstly. Secondly, by using the Table 4, we decided the pilot Pourashava category, division by division, from the top of the list. With regard to Dhaka, Chittagong, Rajshahi, Khulna and Rangpur, the highest proportion category was decided as the pilot Pourashava category. With regard to Barisal and Sylhet, second highest category was chosen, as the highest category was already selected in other divisions. Finally, the TC team excluded the Pourashavas under other projected listed in Table 2. Table 5 shows the results of selection. Table 5 Category of the Pourashava and the Name of Division Category NOBIDEP Name of Division Non-NOBIDEP Name of Division Total A 0 1 Khulna 1 B Chittagong 1 Rangpur 2 Barisal 3 C Rajshahi 1 Dhaka 2 Sylhet 3 Total Source: JICA TC team * The number of Pourashava shows the number of Pourashavas for 2nd selection. 3. Second Selection 3.1. Criteria of second selection Three options for criteria of second selection were examined. Option 1: to select the Pourashavas with high capacity and potential to produce many good practices. Option 2: to select the Pourashavas with low capacity and potential to strengthen the future replicability. Option 3: to select the Pourashava with average capacity and potential. The TC team proposed and LGD agreed to apply option 3 to both obtain good practices and secure replicability to a certain level. The TC team proposed the examples of criteria of the second selection as the following. 1) Population 2) Area 3) Poverty ratio 4) Economic activities (the number of trade license) 5) Capacity of the Pourashava (the rate of filling posts for key officials) 6) Capacity of the Pourashava (the rate of tax collection) The LGD accepted that the consultant team applied the above criteria, as far as the relevant data is available Results of second selection st Step The TC team screened the Pourashavas through the indicators of Population, Area and Economic activities (the number of trade license). The data of other indicators were not 3

7 accessible within the stipulated time. The TC team collected information from web site, namely Table 6 shows the basic information of those three indicators. Table 6 Basic Information of Three Indicators Indicators Number Average Standard Min Max Deviation Area Population , , ,041 Number of Trade License 273 1, , ,484 Source: JICA TC team The TC team adopted the Principal Component Analysis (PCA) to select the Pourashava with average capacity. As the data has several missing value in each indicators, The TC team checked confidence interval of eigen value in eight patterns of the PCA with mean value (Table 7). The result of the pattern 2-B was statistically supported as the most suitable pattern for this selection 2. The TC team confirmed the absolute value from mean value in each category of each division, and selected three to five Pourashavas in each Division as the candidates for Pilot Pourashava. Based on the obtained database, Table 8 shows the name of candidate Pourashavas in each Division. Table 7 Patterns for PCA A B Missing Value Mean value in each category Mean value in each category and Division Three Indicators Without change Pattern 1-A Pattern 1-B (Area, Population, Trade License) Replace by mean Pattern 2-A Pattern 2-B Two Indicators Without change Pattern 3-A Pattern 3-B (Area, Population) Replace by mean Pattern 4-A Pattern 4-B Source: JICA TC team Table 8 Results of 1st Step in 2 nd Selection S/N Name of Division Name of District Name of Pourashava Category 1 Barisal Barishal Bakergonj B Barguna Pathorghata B Barishal Mehendigonj B 2 Chittagong Chandpur Shahrasti B Chittagong Boalkhali B Comilla Debidar B Noakhali Sonaimuri B 3 Dhaka Kishorgonj Pakundia C Jamalpur Melandah C Sherpur Shreebordi C 4 Khulna Jhenaidah Shoilkupa A Jhenaidah Kaligonj A Jhenaidah Kotchandpur A 5 Rajshahi Bogra Sonatola C Bogra Gabtoli C Bogra Nandigram C 6 Rangpur Dinajpur Fulbari B Thakurgoan Pirgonj B Kurigram Ulipur B 7 Sylhet Sunamgonj Dirai C 2 The detail information of analysis will be shared based on the request. 4

8 Hobigonj Azmirigonj C Hobigonj Chunarughat C Source: JICA TC team The LGD and TC team discussed the results of 1st Step shown in Table 9, chosen one Pourashava under equal condition, and tentatively put the one in the first priority. Table 9 Tentative Selection of Pilot Pourashavas based on Results of 1st Step Name of Division Name of District Name of Pourashava Barisal Barisal Mehendigonj Chittagong Comilla Debidar Dhaka Kishorganj Pakundia Khulna Jhenaidah Shoilkupa Rajshahi Bogra Nandigram Rangpur Kurigram Ulipur Sylhet Hobigonj Chunarughat Source: JICA TC team nd Step The TC team checked the latest category, political stability such as the presence of mayor, and location of Pourashava of each candidate Pourashava to confirm the 1st step selection s validity, rethink the priority if required, and finalize the selection. The location of Pourashava is linked to the efficiency, effectiveness and cost for conducting the pilot Projects. The TC team also revised the dataset, when more accurate data became available. Table 10 shows the summary of status. S/ N Name of Division Table 10 Results of 2nd Steps in 2nd Selection Name of Name of Category Present District Pourashava* UMSU Category Political Stability Cost for Pilot Project 1 Barisal Barisal Bakergonj B B Yes Fair Barguna Pathorghata B B Yes Fair Barisal Mehendigonj B B Yes High 2 Chittagong Chandpur Shahrasti B B (coming to be A within few months) Chittagong Boalkhali B C No Fair Comilla Debidar B B No Fair Noakhali Sonaimuri B A ( 2013) Yes Fair Chandpur Chengarchar B B Yes Fair 3 Dhaka Kishorgonj Pakundia C C Yes Fair Jamalpur Melandah C B (2013) Yes Fair Sherpur Shreebordi C C Yes Fair 4 Khulna Jhenaidah Shoilkupa A A Yes Fair Jhenaidah Kaligonj A A Yes Fair Jhenaidah Kotchandpur A A Yes Fair 5 Rajshahi Bogra Sonatola C C No Fair Bogra Gabtoli C C No Fair Bogra Nandigram C B Yes Fair Pabna Atghoria C C Yes Fair 6 Rangpur Dinajpur Fulbari B B Yes Fair Thakurgoan Pirgonj B B Yes Fair Kurigram Ulipur B B Yes Fair 7 Sylhet Sunamgonj Dirai C B(2013) Yes Fair Hobigonj Azmirigonj C C Yes High Hobigonj Chunarughat C B Yes Fair Yes Fair 5

9 Sylhet Kanaighat C C Yes Fair Source: JICA TC team *Finally selected Pourashavas are shown in highlight letters Result in each Division Table 11 presents the final selection of Pilot Pourashavas. Table 11 Final Selection of Pilot Pourashavas Name of Division Name of District Name of Pourashava (Category) Barisal Barisal Bakerganj (B) Chittagong Chandpur Chengarchar (B) Dhaka Kishorganj Pakundia (C) Khulna Jhenaidah Shoilkupa (A) Rajshahi Pabna Atghoria (C) Rangpur Kurigram Ulipur (B) Sylhet Sylhet Kanaighat (C) Source: JICA TC team The following sub-sections explain the decision process briefly. 1) Barisal Division In the 1st step, Mehendigonj was selected as tentatively final candidate of a pilot Pourashava (Table 9). The LGD and TC team selected Bakerganj as a pilot Pourashava on second thought, because Mehendigonj did not meet the cost conditions in 2nd step (Table 10) in terms of efficiency and effectiveness to conduct a pilot project. 2) Chittagong Division In the 1st step, Debidar was selected as tentatively final candidate (Table 9), but Debidar did not clear the requirements in 2nd step (Table 10) because Mayor is absent. The other Pourashavas such as Shahrasti, Boalkhali, and Sonaimuri did not fulfill the terms either, but Chengarchar did (Table 10). The LGD and TC team selected Chengarchar as a pilot Pourashava. 3) Dhaka Division In the 1st step, Pakundia was selected as tentatively final candidate (Table 9). As Pakundia satisfied the condition in 2nd step (Table 10), the LGD and TC team confirmed Pakundia as a pilot Pourashava. 4) Khulna Division In the 1st step, Shoilkupa was selected as tentatively final candidate (Table 9). The LGD and TC team selected Shoilkupa as a pilot Pourashava, because Shoilokupa fulfilled the requirements of the 2nd step (Table 10). 5) Rajshahi Division In the 1st step, Nandigram was selected as tentatively final candidate (Table 9). It was found out, however, the Nandigram and other candidate Pourashavas listed in Table 8, namely Sonatola and Gabtoli did not meet the conditions (Table 10). The LGD and TC team checked Pourashava which can meet condition of 2nd Step among remaining high ranking Pourashava candidates in the selection of the 1st step, and selected Atghoria as a pilot Pourashava. 6) Rangpur Division In the 1st step, Ulipur was selected as tentatively final candidate (Table 9). As Ulipur satisfied 6

10 the condition in 2nd step (Table 10), the LGD and TC team selected Ulipur as a pilot Pourashava. 7) Sylhet Division In the 1st step, Chunarughat was selected as tentatively final candidate (Table 9). In the 2nd step, Chunarughat did not clear the requirement, and other two Pourashavas, namely Dirai and Azumirigonj did not either (Table 10). Finally, Kanaighat Pourahsava was selected as a pilot Pourashava among remaining high ranking Pourashava candidates in the selection of the 1st step which satisfies the conditions of 2nd Step. 7

11 Final Report Report on Good Practice Study under Strengthening Pourashava Governance Project (SPGP) Md. Abdul Gaffar Urban management and capacity development consultant November 2014 i

12 Contents Report on Good Practice Study under Strengthening Pourashava Governance Project (SPGP) Introduction Background Objective Study Method Review of Basic Reference Documents Preparation of Detail Design of Study Development of Questionnaire for Interview Interview with Resource Persons Collection of Information on Part-1 and Part-2 of the Questionnaire Sharing of the Compiled List Analysis of Cases that Pourashavas have shown Good Performance /Practices Jointly Identified Cases of Good Performance/Practice Interview with Resource Person Involved in Good Performance/Practice Analysis of Information Collected Through Interview... 6 Case No Town Level Coordination Committee (TLCC) for Citizens Participation in Pourashava Administration and Service Delivery Performance Indicators Name/Number of Pourashavas Who Initiated Cases/source of Intervention Starting Date/Month of Intervention Description of the Case of Intervention/Practice Argument in Support to Consider Intervention as a Case of Good Performance Results Out of this Good Practice Potential Success Factors Behind this Achievement Challenges that Need to be Overcome to Sustain the Effect Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Recommendation on Approaches that can be Incorporated into the Strategy Case No Preparation and Implementation of Gender Action Plan (GAP) Performance Indicators Name/Number of Pourashavas Who Initiated Cases/source of Intervention Starting Date/Month of Intervention Description of the Case of Intervention/Practice Objective Contents ii

13 5.3 Implementation Process Beneficiaries Cost Argument in Support to Consider Intervention as a Case of Good Performance Results Out of this Good Practice Potential Success Factors behind this Achievement Challenges that Need to be Overcome to Sustain the Effect Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Recommendation on Approaches that can be Incorporated into the Strategy Case No Poverty Reduction Action Plan (PRAP) prepared and implemented Performance indicators Name/Number of Pourashavas Who initiated Cases/source of Intervention Starting Date/Month of Intervention Description of the Case of Intervention/Practice Introduction Overall Objective Specific Objectives Content/Concern Characteristics Implementation Process Beneficiaries Cost Argument in Support to Consider Intervention as a Case of Good Performance Results Out of this Good Practice Potential Success Factors behind this Achievement Challenges that Need to be Overcome to Sustain the Effect Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Recommendation on Approaches that can be Incorporated into the Strategy Case No Computerization of Tax Record System and Billing Performance indicators Name/Number of Pourashavas Who Initiated Cases/source of Intervention Starting Date/Month of Intervention Description of the Case of Intervention/Practice General Objectives Content/ Activity implementation Process Beneficiaries Cost Argument in Support to Consider Intervention as a Case of Good Performance iii

14 7. Results Out of this Good Practice Potential Success Factors behind this Achievement Challenges that Need to be Overcome to Sustain the Effect Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Recommendations on Approaches that can be Incorporated into the Strategy Case No Horizontal Learning Program Performance indicators Name/Number of Pourashavas Who Initiated Cases/source of Intervention Starting Date/Month of Intervention Description of the Case of Intervention/Practice Introduction Objectives Implementation Process Beneficiaries of the Horizontal Learning Program Costs Argument in Support to Consider Intervention as a Case of Good Performance Results Out of this Good Practice Potential Success Factors behind this Achievement Challenges that Need to be Overcome to Sustain the Effect Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Recommendation on Approaches that can be Incorporated into the Strategy Case No Activating StandingCommittees for Better Service Delivery and Service Monitoring Performance indicators Name/Number of Pourashavas Who Initiated Cases/source of Intervention Starting Date/Month of Intervention Description of the Case of Intervention/Practice Objectives Argument in Support to Consider Intervention as a Case of Good Performance Results Out of this Good Practice Potential Success Factors behind this Achievement Challenges that Need to be Overcome to Sustain the Effect Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Recommendation on Approaches that can be Incorporated in into the Strategy Case No Establishment of trainers pool and Resources Corner in UGIIP-II (Decentralized Training Approach through Municipality (Pourashava) Trainers Pool and Resource Corner) iv

15 1. Performance indicators Name/Number of Pourashavas Who Initiated Cases/source of Intervention Starting Date/Month of Intervention Description of the Case of Intervention/Practice Argument in Support to Consider Intervention as a Case of Good Performance Results Out of this Good Practice Potential Success Factors behind this Achievement Challenges that Need to be Overcome to Sustain the Effect Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Recommendation on Approaches that can be Incorporated in into the Strategy Recommendation on Approaches that can be incorporated into the Strategy. 39 v

16 Abbreviations and Acronyms ADB ADP BDT CBO CC CEO CiG CAP CRDP CTEIP DPD EUG FGD FWC GAP GC GIZ GoB GPD HLCS HLP IEC ICGP IGA IT JICA LGD LGRD LGED MAB MLGRD&C MSU MSP NGO NILG NOBODIP OSR OJT PC PD PDP Asian Development Bank Annual Development Program Bangladesh Taka Community Based Organization City Corporation Chief Executive Officer Citizen-in-Governance Community Action Plan City Region Development Project Coastal Towns Environmental Infrastructure Project Deputy Project Director Enhance Urban Governance Focus Group Discussion Female Ward Councilor Gender Action Plan Gender Committee Deutsche Gesellschaft für Internationale Zusammenarbeit Government of Bangladesh Governance Program Development Horizontal Learning Centres Horizontal Learning Program Information Education and Communication Inclusive City Governance Project Income Generating Activities Information Technology Japan International Cooperation Agency Local Government Division Local Government Rural Development Local government Engineering Department Municipal Association of Bangladesh Ministry of Local Government Rural Development and Cooperative Municipal Support Unit Municipal Services Project Non-government Organization National Institute of Local Government-Bangladesh Northern Bangladesh Integrated Development Project Own Source Revenue On-Job-Training Personal Computer Project Director Pourashava Development Plan vi

17 PIU PG PMO PPP PRAP PS PSC RUMSU SIC SC SDLG SE SPGP STIFPP-2 T&CD ToR TL TLCC ToT UGIAP UGIIP UGIIP-II UM UMSU UPPRP USAID WLCC Project Implement Unit Primary Group Project Management Office Public-Private Partnership Poverty Reduction Action Plan Pourashava PRAP Steering Committee Regional Urban Management Support Unit Slum Improvement Committee Standing Committee Strengthening Democratic Local Government Project Superintending Engineer Strengthening Pourashava Governance Project Secondary Towns Integrated Flood Protection Project-2 Training and Capacity Building Terms of References Team Leader Town Level Coordination Committee Training of Trainer Urban Governance Improvement Action Program Urban Governance & Infrastructure Improvement Project Second Urban Governance &Infrastructure Improvement (Sector) Project Urban Management Urban Management Support Unit Urban Partnership for Poverty Reduction Project United States Agencies for International Development Ward Level Coordination Committee vii

18 Report on Good Practice Study under Strengthening Pourashava Governance Project (SPGP) 1. Introduction 1.1 Background Bangladesh is experiencing rapid urbanization. The annual population growth rate is 2.5% in urban areas, as compared with the national average of 1.4%. Mindful of such rapid urbanization, the Government of Bangladesh (GOB) has put forward a policy of revitalizing local economies by strengthening local administration and other means in its Sixth Five-Year Plan (2011/ /16) as part of its efforts to reduce poverty and achieve balanced development. In 2014, the GOB approved the National Urban Sector Policy, which is designed to strengthen urban governance as well as promote economic development and urban environmental conservation with infrastructure development, with a view to sustainable urbanization and a decentralized and participatory urban development process. In Bangladesh, urban local governments, namely, City Corporations and Pourashavas (municipalities), have a larger scope of responsibility than their rural counterparts. With limited service delivery by the central government, they assume such important functions as city planning, local infrastructure development, and the delivery of public services essential for local communities, including water supply and solid waste management. Unlike City Corporations, which govern large cities, Pourashavas, which are located nearer rural areas, are supposed to play additional roles, including promoting local industries, invigorating physical distribution in rural areas, and serving as a center for developing the local economy as a whole. Most of the Pourashavas, however, are unable to envision such roles intrinsic to local governments, because of both the lack of financial and human resources and the inadequate capacities of elected representatives and officials as well as municipal machinery. They lack the capacity to deliver public services based on a mid- to long-term strategy or development plan, and in many Pourashavas, municipal management is not efficient and service delivery is often haphazard. The situation is particularly serious in small Pourashavas. These circumstances prompted the GOB to request Japan to extend the yen-loan to the project called the Northern Bangladesh Integrated Development Project (NOBIDEP), a comprehensive development project involving building the administrative capacity of small Pourashavas and developing basic urban infrastructure. In addition, recognizing the hitherto unaddressed need for developing a capacity development system for small Pourashavas, the GOB asked Japan for a technical cooperation project designed to maximize the effectiveness of NOBIDEP and support capacity building for Pourashavas. A Record of Discussion (R/D) on the project was signed in October 7, 2013 and the Project was launched in March

19 1.2 Objective The study is intended to identify the past and ongoing interventions for Pourashavas capacity development that have been found effective; and examine whether their approaches could be incorporated into a national strategy for Pourashava capacity development, which will be developed by the Local Government Division (LGD) of the Ministry of Local Government, Rural Development and Cooperatives (MLGRD&Co). 1.3 Study Method Review of Basic Reference Documents The following basic documents were collected and reviewed for the purpose of study: i) Local Government (Pourashava) Act 2009; ii) Relevant part of Sixth Five Year Plan (2011/ /16); iii) Record of discussion on strengthening Pourashava governance project agreed between GoB and JICA on October 2013; iv) Urban Sector Policy (draft); v) Urban Governance Improvement Action Program (UGIAP) under Urban Governance and Infrastructure Improvement Project (UGIIP-I), UGIIP-II, Secondary Towns Integrated Flood Protection Project II (STIFPP-II), City Region Development Project (CRDP), etc. of the Local Government Engineering Department (LGED) as tools for Pourashavas governance improvement and capacity development intervention in the past and at present; vi) UGIAP of Municipal Governance and Service Project (MGSP), NOBIDEP, UGIIP-III, Coastal Towns Infrastructure Improvement Project (CTIIP), Inclusive City Governance Project (ICGP) under LGED as tools for Pourashavas governance improvement and capacity development intervention in future; vii) Report on four minimum program implemented by Urban Management Support Unit (UMSU) under Asian Development Bank (ADB) assisted UGIIP-I and Municipal Support Unit (MSU) under World Bank assisted Municipal Service Project (MSP) of LGED; viii) UGIAP performance monitoring report of Pourashavasin Phase-II under UGIIP-II. ix) Report on horizontal learning workshop with participation of 47 Mayors of UGIIP-II Pourashavas organized jointly by Project Management Office (PMO) of UGIIP-II, LGED and Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) at Cox s Bazar in March, 2014; x) A few leaflets and some other information on Strengthening Democratic Local Governance (SDLG) Project; and xi) Guideline/Checklist on establishment of trainer pool and resource corner Preparation of Detail Design of Study A detail deign of study, specifying detailed items for information collection and possible source of information including tentative dates, was prepared, shared and confirmed with JICA expert team and agreed upon. The detail design of study is attached in Appendix-1. Timing/dates of study as specified in the design could not be maintained due to various reasons. However, the matter was shared with JICA expert team and agreed with changes in dates of study. 2

20 1.3.3 Development of Questionnaire for Interview A questionnaire was developed to collect information through interview of resource person and finalized after sharing with the JICA expert team. The questionnaire is divided into three parts as follows: Part-1: Project summary; Part-2: Cases of good performance; Part-3: Details on indentified cases of good performance/ good practices Interview with Resource Persons Firstly, interview with resource persons, involved in governance improvement and capacity development was conducted based on part-1 and part-2of the questionnaire with a view to prepare a comprehensive list of capacity development interventions under different projects and identify cases that Pourashava have shown good performance/practices after capacity development interventions. Secondly, interview with resource persons involved with intervention of cases of good performance/practice, jointly identified with JICA expert team, was conducted based on part- 3 of the questionnaire to collect detail description of the intervention/practices including their views about the following; Argument in Support to Consider Intervention as a Case of Good Performance; Results Out of this Good Practice ; Potential Success Factors behind this Achievement; Challenges that Need to be Overcome to Sustain the Effect; Obstacles to Replication of the Good Practice/Intervention in other Pourashavas; Recommendation on Approaches that can be incorporated into the Strategy. The questionnaire containing part-1, part-2, and part-3 is attached at as Appendix Collection of Information on Part-1 and Part-2 of the Questionnaire Information with regard to cases of capacity development interventions under different project were collected through interview/discussion with resource person in Dhaka including those about the cases that Pourashava have shown good performance after capacity development intervention. All the capacity development interventions including the cases of good performance/good practices, so collected, are compiled in a matrix which is attached as Appendix-3. Information in the attached matrix include: (i) Area/ Items of Capacity Development Intervention at Pourashava Level; (ii) Name of Projects/ Agencies/ Organizations; and (iii) Cases that Pourashavas have shown good performance/ practices Sharing of the Compiled List The compiled list was shared with the JICA expert team for SPGP to jointly identify cases of good practice for detail analysis. There are as many as 57 capacity development interventions in the compiled matrix out of which agencies or organization have indentified 27 cases as cases of good performance by Pourashavas. A detail discussion was held on the matrix with JICA expert team to jointly identify the cases of good practices and 16 cases were marked tentative and 9 out of 16 were marked as priority cases for detail analysis. Detail of 9 jointly identified priority cases of good practice including name of project/pourashava and the resource persons who are closely involved in the cases 3

21 identified for analysis are compiled and attached in Appendix-4. Finally, in a meeting on with the JICA expert team that case no-8: Introduction of Public-Private Partnership (PPP) with NGO for water supply Meter Reading, Billing and Collection and the case no-9: Implementation of Infrastructure Inventory and Mapping were debarred and remaining 7 cases were considered for detail analysis at this stage. 4

22 2. Analysis of Cases that Pourashavas have shown Good Performance/ Practices 2.1 Jointly Identified Cases of Good Performance/Practice As describe in para 2.6 that the 7 cases of interventions of potential good performance/practice were finally identified jointly with the JICA expert team for detail analysis. Those are: Case no 1 : Town Level Coordination Committee (TLCC) for Citizens Participation in Pourashava Administration and Service Delivery; Case no 2 : Preparation and Implementation of Gender Action Plan (GAP); Case no 3 : Prepared and Implemented of Poverty Reduction Action Plan (PRAP); Case no 4 : Computerization of Tax Record System and Billing; Case no 5 : Horizontal Learning Program (HLP); Case no 6 : Activating Standing Committees for Better Service Delivery and Service Monitoring; Case no 7 : Establishment of Trainers Pool and Resources Corner at Pourashava Level. 2.2 Interview with Resource Person Involved in Good Performance/Practice Due to various reasons all the resource persons, selected for interview, as mentioned in Appendix 4, were not found available for interview. In some cases senior officials authorized their staffs, who were directly dealing with intervention, to provided required information. In such situation name and designation of the person actually interviewed in each of 7 cases are shown in the following table: Case No Table 1 Resource persons interviewed Resource Person selected for interview Resource Person Interviewed 1 Mr. Shafiqul Islam Akand, PD, (UGIIP-II) Mr. Mohirul Islam Khan, DPD (UGIIP-II) 2 Mr. Mohirul Islam Khan, DPD (UGIIP-II) Ms. F. Dipali Das, Sr. Advisor (Gender and Community Empowerment), GIZ 3 Sk. Amzad Hossain, PD (STIFPP-2) / Ms. Lipi Sheth, Sr. Adviser (Community Development), GIZ Ms. Suraia Jabin, Gender Specialist, UGIIP-II)/ Ms. F. Dipali Das, Sr. Advisor (Gender and Community Empowerment), GIZ Md. Sarwer Hossain, Coordinator, STIFPP-2/Ms. Lipi Sheth, Sr. Adviser (Community Development), GIZ 4 Mr. Md. Nurullah, Director, MSU/UMSU Mr. Md. Nurullah, Director, MSU/UMSU 5 Mr. Omar Khayam, Sr. Adviser (T & CD), GIZ / Mr. Mahidul Islam, TL, (HLCS) 6 Ms. Zarina Rahman Khan Phd, Deputy Chief of Party (SDLG) 7 Sayed Rukan Uddin, Ex Sr. Adviser (T & CD), GIZ Mr. Omar Khayam, Sr. Adviser (T & CD), GIZ / Mr. Mahidul Islam, TL, (HLCS) Ms. Zarina Rahman Khan Phd, Deputy Chief of Party (SDLG) Sayed Rukan Uddin, Ex Sr. Adviser (T & CD), GIZ 5

23 2.3 Constraint on the Study It is out of the scope of the study to verify the actual effectiveness of each intervention and therefore most of the information provided in the report is based on resource persons account. Availability of resource persons and sufficient time for interview were not always easy. Some resource persons took time to provide information on their good practices. It was also difficult to get exact and to-the-point information from them. 2.4 Analysis of Information Collected Through Interview Information of each of the good practices were collected through interview with resource persons based on an agreed questionnaire to get details of good practices including their views/opinions/findings on, among others, the potential success factors, challenges that need to be overcome to sustain the effect; and obstacles to replication of the good practice/ intervention in other Pourashavas including recommendation on approaches that can be incorporated into the strategy. The information collected on each of the above issues, from the resource persons, was analyzed and the case was completed only incorporating the ones which were found most appropriate. All the 7 identified cases were then, reviewed/analyzed to find summary recommendations on the approaches of good practices that can be replicated into the strategy Details of identified 7 cases are presented hereunder 6

24 Case No.1 Town Level Coordination Committee (TLCC) for Citizens Participation in Pourashava Administration and Service Delivery 1. Performance Indicators: Establishment and functioning of TLCC as a forum for ensuring citizens participation, including representation from women and the poor in municipal administration and service delivery. 2. Name/Number of Pourashavas: 35 Pourashavas under UGIIP-II in Phase-2 of project implementation. 3. Who Initiated Cases/source of Intervention: Project Management Office (PMO) of UGIIP-II together with Project Implementation Unit (PIU) of Projects Pourashavas. 4. Starting Date/Month of Intervention : January Description of the Case of Intervention/Practice (objective, content, characteristics, implementation process, beneficiaries, cost, etc. 5.1 Objectives To function as a forum to discuss various issues and problems related to administration and service delivery, investment plan, budget etc. ensuring citizens participation, including women and the poor, in decision making process; To involve citizens group, professionals, women and the poor community to work with elected representatives in the Pourashavas decision making process and to develop ownership feelings and citizen responsibility among them; To assist overall governance improvement in administration, finance, infrastructure and service delivery by providing constructive suggestions ensuring accountability and transparency of Pourashava administration; To discuss various issues regarding citizen demands, fix up priority and made constructive decision as per capacity of Pourashava. 5.2 Content/Composition: TLCC is composed of members, not over 50, as follows: a) Mayor - Chairman b) Councilors (Selected) - Member c) Representatives from Line Organization - Member d) Representatives from Professional Group - Member e) Representatives from Civil Society/NGO - Member f) Women Representatives - Member g) Representatives from Urban Poor - Member h) Chief Executive Officer (CEO)/Secretary - Member-Secretary 7

25 5.3 Characteristics The TLCC is a unique entity at Pourashava level with members including government officials, responsible for Pourashava based activities, and representatives of citizens group and other local stakeholders. Most significantly, the TLCC draws a diverse membership from the people, ranging from the elites/professional down to its slum dwellers. Mandatory representative from women and the poor community is another special characteristic of the TLCC. 5.4 Implementation Process TLCC meeting held on quarterly basis with two weeks prior notice issued to the members and as per set agenda which include: a) Read and confirm last meeting minutes b) Progress review of implementation of the last meeting s decisions c) Other issues as selected based on its ToR d) Miscellaneous Minutes of TLCC meeting is prepared and distributed among the TLCC members and the Pourashava officials responsible for implementation of decision; and Holding subsequent meeting following the process as stated above; 5.5 Beneficiaries: Pourashava (elected representatives and the officials), relevant stakeholders and its citizens; 6. Argument in Support to Consider Intervention as a Case of Good Performance All 35 project Pourasahvas have established TLCC with specific ToR ensuring representation of Pourashava elected representatives, other relevant stakeholder and the citizens including women and the poor; All 35 Pourashava have been conducting TLCC meeting since its establishment under UGIIP-II as per guideline issued from PMO; The performance of TLCC was evaluated at the end of phase 2 of implementation and found that all 35 Pourashavas performance were ranked fully satisfactory; and Very positive result as mentioned in the next section. 7. Results Out of this Good Practice TLCC meetings held on quarterly basis regularly; Meeting minutes is written and distributed in due time for implantation of decision by the person responsible for; Progress of implementation is reviewed in the subsequent meeting and as such accountability of Pourashava elected representatives and Pourashava officials have increased; Tax collection issues are discussed at length resulting improvement of collection efficiency; Other revenue collection have increased with contribution of TLCC; 8

26 Women and the poor are raising their voice in support of their requirement/demand; Transparency of administration and service delivery has increased; Transparency in financial matter including budget preparation have increased; and Improved governance with citizen participation in Pourashava activities. 8. Potential Success Factors Behind this Achievement One of the mandatory requirements to have access to project fund is to conduct TLCC meeting on regular basis as per TLCC guideline; Several training courses conducted Mayor, Councilors and TLCC members; Continuous support from the Governance Improvement and Capacity Development (GICD) consultants; Project Pourashava authority has understood importance of TLCC to see its contribution in improvement of Tax management, implementation of GAP and PRAP activities and to prepare effective budget in a transparent manner following participatory process; TLCC members have feelings of honor to be a member of TLCC and contributing with interest towards improvement of Pourashava administration and service delivery; Capacity of TLCC members is increased through providing training to Mayor, Councilors and other members; Continuous monitoring and evaluation of TLCC activities by PMO; and Stakeholder/citizens wide range participation including women and the poor. 9. Challenges that Need to be Overcome to Sustain the Effect Establishment of permanent monitoring mechanism of TLCC functioning within Government system after closing of the project; Issuance of government directives/orders for establishment and functioning of TLCC based on experience gained under the project and in line with provision made under section-115 of Pourashava Act 2009; Continuation of training and motivation program for Mayor, Councilors and other TLCC members from the government; Establishment of built-in system for holding TLCC meeting as that of Pourashava monthly meeting; Selection of right/active person as member of TLCC; Political will of Pourashava Mayor and Councilors to continue with TLCC activities after completion of the project; and Providing due honor to the citizen s voice/opinion, especially those of women and the poor. 10. Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Absence of government general guideline/directives/order to function TLCC in line with provision of section 115 of Pourashava Act 2009; Absence of government initiatives for capacity development of TLCC members through training; 9

27 Lack of awareness of elected leaders about the benefit of involving citizens in the process of Pourashava administrations and service delivery; Lack of willingness/motivation and skill of elected representatives and the Pourashava employees; Absence of incentive system for the Pourashavas performing well in conducting efficient TLCC meeting; Lack of proper selection of TLCC members in the committee; Inactive participation of TLCC member in the meeting; and Absence of external support. 11. Recommendation on Approaches that can be Incorporated into the Strategy i. Support for establishment and functioning of TLCC in line with provision as laid down in section115 of Local Government (Pourashava) Act 2009; ii. Rules, containing formation of TLCC, its TOR, etc. based on project experience can be prepared and issued by LGD as has been done for functioning of WLCC vide gazette notification dated 26 June, Alternately LGD can instruct Pourashavas to adopt a regulation for administration, functioning and monitoring of TLCC; iii. Training and monitoring are two other issues to ensure effective functioning of TLCC; iv. Horizontal learning and exchange visit for TLCC members can also be a good approach to incorporate into the strategy; v. External support, either with inbuilt capacity of LGED and NILG or through engagement of experts/consultants, may be provided, at least for a few years, at this stage of TLCC functioning; and vi. Ensuring stakeholder/citizens wide range participation including effective participation of women and the poor. 10

28 Case No. 2 Preparation and Implementation of Gender Action Plan (GAP) 1. Performance Indicators: Preparation of Pourashava specific Gender Action Plan (GAP), allocation of fund in annual budget for implementation of GAP activities and implemented as planned. 2. Name/Number of Pourashavas: 35 Pourashavas under UGIIP-II in Phase-2 of project implementation. 3. Who Initiated Cases/source of Intervention: Project Management Office (PMO) of UGIIP-II together with Project Implementation Unit (PIU) of Projects Pourashavas. 4. Starting Date/Month of Intervention: June Description of the Case of Intervention/Practice (objective, content, characteristics, implementation process, beneficiaries, cost, etc). 5.1 Objective To ensure women participation in Pourashava administration and service delivery including investment planning, designing, budgeting etc; To ensure that gender issues are addressed by introducing a sustainable system by undertaking GAP and allocating fund in the annual budget for GAP implementation; To develop leadership by involving several committees, create employment opportunity and easy access for women and ensure effective participation in decision making process of Pourashava activities. 5.2 Contents Formation of Pourashava Gender Committee (GC) with one of the FWCs as chairperson; Women s effective participation ensuring their leadership in Pourashava decisionmaking committees, namely, TLCC, WLCC, Pourashava Standing Committee, etc. including proper distribution of responsibilities among FWCs as per Government Circular 2003; Providing capacity development training to FWC and female staff of Pourashava so that they can participate in establishment of good governance; Preparation of Pourashava-tailored Gender Action Plan (GAP) / need-based GAP with appropriate budget allocation from the Pourashava s revenue budget along with project-fund; Implementation of GAP, holding courtyard meeting and conduct Ward based rally under the leadership of FWC; 11

29 Inclusion of FWC and women citizen in different forums, courtyard meeting, etc. and holding discussion on payment of Poura tax, solid waste management, health, problems in facing natural calamity, gender sensitive infrastructure and service delivery, involvement of women in planning and service delivery including involving them into O&M activities; Providing priority to the female candidates, during recruitment process; and Providing office and other facilities for FWC and female staff. 5.3 Implementation Process Pourashava-GC formed according to project guideline: headed by FWC; all FWCs are members of the committee along with 2 or 3 other Ward councilors; a Pourashava staff is the member-secretary of the committee as assigned by the Mayor. The committee meeting stands to be held once a month. With the project s support, the GC prepared the stated GAP and implemented. The project provided the committee with a series of training and conducted a number of workshop-events (at central, regional and Pourashava level) on developing Gender awareness, building capacity on preparation and implementation of GAP with budget allocation. From time to time, persuasion of the Pourashava Mayor has been a continuous process regarding GAP implementation, using the allocated Pourashava-fund. Proper monitoring and tracking is also an important factor of the implementation process. 5.4 Beneficiaries FWC, Poor women, female labor and Community women. 5.5 Cost BDT 8.9 million has been used from project fund while the project Pourashavas used BDT 111 million from their own revenue fund for GAP implementation up to June Argument in Support to Consider Intervention as a Case of Good Performance Participation of citizen representative from all strata of society is one of main conditions of good governance. With the project intervention, the capacity of FWCs in Pourashava decision-making and implementing GAP achieved significant progress. Alongside, the capacity of women representatives, poor women of Pourashava and SIC s 1 Chairperson in managing overall CAPs 2 is substantial. Gender is an arresting concern of modern development process. In earlier time, Pourashavas never thought of spending money on gender development. They were not even aware about gender issue and its fundamental aspects. But now, all project Pourashavas are working on Gender Mainstreaming as they have prepared GAP and as well, implementing it through using the own-revenue-fund allocation. Moreover, the practice of 1 Slum Improvement Committee is an apex body at slum level constituted with one chairperson, one vice-chairperson and the female heads of Primary Group (PG) within the slum, as member. If SIC chairperson is a woman, vice-chairperson must be a man and vice versa. All heads of PG are women. 2 Community Action Plans is an action plan prepared by community people through participatory appraisal process. CAP normally includes identification of existing situation of basic services and socio-economic condition of the community, need assessment of infrastructure and services including socio-economic demand and implementation plan along with budget requirement. 12

30 implementing GAP using own revenue fund is a great hope in sustainability issues of gender development. The design of GAP has created the scope of raising awareness on gender issues and UGIAP 3 related issues among women which also may help in genderdevelopment and its sustainability. 7. Results Out of this Good Practice Women, be it FWC or women-poor-representative, had virtually, very little voice in Pourashava- decision-making; but as a result of the project intervention women are now not only attending the decision-making forums; but also raising voice and taking part more effectively in priority settings and Pourashava decision-making. Each project Pourashava ensured inclusion of 40% women member in Pourashava Standing Committees, 33% women members are participating in TLCC and 40% women are members in ward Level Coordination Committee (WLCC); 39% women participated in Focused Group Discussions and 52.25% women participated in Ward visioning & Municipal visioning during infrastructure planning and preparing Pourashava Development Plan (PDP). Along the road, 1,574 PG 4 s and 202 Slum Improvement Committees (SICs) were formed comprising only poor women and women leadership in slum areas; Gender-focused planning and budgeting have been introduced in all project Pourashava through Pourashava level GAP development process and BDT 111 million have so far been spent from Pourashava budget for GAP implementation; Women-friendly infrastructure (separate toilet facilities in the office and public places like market, bus terminal, rail station including separate booking counter) have made it convenient for the women in receiving Pourashava services; Income Generating Activities (IGA)s trainings and assistance provided by GC under GAP has involved 9,369 women in income generation up to June 2014; Women-led SICs created leadership quality and confidence among slum dwellerwomen. More than 200 million BDT spent for improvement for basic services of slum directly by women-led SIC; and Implementation of GAP has provided women of Pouashava, from FWC down to poor women in the slum, an opportunity to be more aware about Pourashava services and their responsibilities and duties in it. 8. Potential Success Factors behind this Achievement Consultants support under the project (Regional Coordinators and Facilitators) undertook efforts for capacity development of FWCs/GCs, in preparing, implementing and monitoring works under GAP-spectrum through providing series of training, workshop, ToTs, etc.; Motivating Mayors through continuous persuasion; Incorporating GAP implementation with budget allocation in UGIAP; Continuous monitoring, tracking and undertaking correction measures from PMO; 3 Urban Governance Improvement Action Program is a tool developed and implemented under UGIIP for governance improvement and capacity development of project Pourashavas in the area of i) Citizen Awareness and Participation; ii) Urban Planning; Women s Participation; iv) Poverty Reduction; v) Financial Accountability and Sustainability, vi) Administrative Transparency 4 Primary Group is constituted with women heads of poor household in the slum. Head of PG represents herself as member of SIC on behalf of her PG. 13

31 Linking performance of successful implementation of GAP with project fund from the subsequent phase of the project; and Participation of FWC and poor women (beneficiary). 9. Challenges that Need to be Overcome to Sustain the Effect FWCs are not always treated equally; less time and opportunity of TLCC women members to speak out; Establishment of GC and preparation of GAP are project based system and as such a temporary arrangement; Women voice are not always recorded in TLCC and WLCC minutes; Lack of effective participation of FWC in Pourashava Standing Committees; Lack of effective participation of FWCs in different committees; Lack of full budget amount being made available for use within the financial year (the Pourashavas quite often prepare deficit budget); absence of previous practice; Lack of Mayor s interest in using the allocated GAP fund from Pourashava revenue fund for GAP implementation; Absence of monitoring/tracking etc., after complementation of the project; and Non-functioning of executive order 2002 stating delineation of responsibilities of FWCs. 10. Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Apparent absence of legal framework from GoB, which is an imperative to ensure adequate participation of women in decision-making, though the Pourashava Act 2009 and conforming to the executive order of 2011, GoB mandated 33% women representation in TLCCs and 40% in WLCCs. These have provided women with the opportunity to voice their needs, issues and concerns and to participate in Ward and Municipality level priority setting. However, in reality, complete absence of these is apparently less affected compared to the laid down provisions. Justifiably, detailed conditions and performance criteria, regarding women participation, is essential; Absence of capacity building and awareness development training about rules and responsibilities of FWC; Non functioning of women and children standing committee; negative attitude of Mayor and male Ward Councilors about importance of involving women in different forum; Lack of awareness of Pourashava elected representative including FWCs and Pourashava officials about gender sensitivity; and Absence of monitoring mechanism to monitor implementation of gender related activities. 11. Recommendation on Approaches that can be Incorporated into the Strategy i. Government s directives in the form of rules/executive order concerning gender sensitivity to be issued based on existing legal framework; ii. Support for activation of the standing committee on women and children welfare with detail and extended ToR; 14

32 iii. Awareness development workshop and capacity building training program be undertaken by the government for the Mayor, FWCs, concerned standing committee members, GC members, female member of TLCC, WLCC, etc., by the central government; iv. LGD to ensure standing committee on women and children welfare prepares yearly GAP with budget requirement and monitor GAP implementation at Pourashava level; and v. Establishment of monitoring system at central level on proper implementation of GAP including linking it s performance with government grant. 15

33 Case No. 3 Preparation and Implementation of Poverty Reduction Action Plan (PRAP) 1. Performance indicators: Poverty Reduction Action Plan (PRAP) by Pourashava is prepared, and included in the PDP, budget allocation for PRAP implementation is made in the annual budget and the PRAP is implemented. 2. Name/Number of Pourashavas :Jamalpur, Natore, Chandpur, Faridpur, Jhalakhathi and Sreemonagal 3. Who initiated Cases/source of Intervention: GIZ conducted piloting in six Pourashavas UGIIP-2 in collaboration with concern Project Implementation Unit (PIU) 4. Starting Date/Month of Intervention : July Description of the Case of Intervention/Practice (objective, content, characteristics, implementation process, beneficiaries, cost, etc). 5.1 Introduction Poverty is defined in terms of socio economic deprivation and infrastructure and service delivery deficiency, while PRAP is an integrated time-bound action program for poverty reduction of urban poor prepared and implemented by Pourashava with community participation. 5.2 Overall Objective To ensure improvement of socio economic condition and basic infrastructure and service delivery to urban poor. PRAP, under the project is done through identifying socio economic deprivation and infrastructure & service delivery deficiencies including taking sustainable development strategies into account. 5.3 Specific Objectives To enhance capacity of Pourashavas to prepare and implement an effective PRAP to make Pourashavas more poverty responsive; Poverty assessment and identification of intervention area; Pourashava specific PRAP implementation; To ensure effective/ result-oriented PRAP implementation; To measure impacts/ results of PRAP on Pourashava poverty reduction. 16

34 5.4 Content/Concern PRAP under the project is prepared as an action plan for poverty reduction of the urban poor. PRAP includes the following areas of activities: i) Primary administrative initiatives, ii) Poverty assessment, iii) Institutional framework at Pourashava level, iv) Steps for poverty reduction/activities, v) Monitoring and evaluation However, each Pourashava shall prepare its own Pourashavas specific PRAP based on existing situation linking with infrastructure deficiency and socio-economic deprivation. In this context the PRAP include steps/activities to benefit the poor in the following area. Information dissemination (meeting workshop/contact with poor people, human rights, etc.); Capacity development (livelihood skill, training); Income generating activities (grant, loan etc.); Creating employment opportunities (skill development training, etc.); Direct help (grant, zakat, medical service, education, etc.); Identification of scheme that can reduce poverty (income generating schemes); Creating entrepreneurship ; Infrastructure (road, footpath, drain, bridge, culvert, graveyard, market, bus terminal, etc,); and Safe water supply and sanitation facilities. 5.5 Characteristics Human rights aspects, gender, access to services, pro-active community participation etc. is addressed; Pourashava specific PRAP prepared; Representation of poor/ community interests, pro-poor service identification for Pourashava, pro-poor service delivery by Pourashava bring sustainable impacts/ complement to UGIIP-II towns; Pourashavas implement the PRAP by own fund; and Demand driven services are provided by Pourashava; 5.6 Implementation Process Capacity development of Pourashava (orientation and training); Review of secondary resources/ baseline data/ Pourashava Visioning; Slum and cluster identification; PRAP household survey; FGD: Learning local context of poverty and community perceptions ( If needed); Participatory analysis of compiled data/ poverty mapping (FGD and survey); PRAP preparation by PRAP Steering Committee; PRAP approval by Pourashava; PRAP approval by PMO; Appointment of field workers by PMO; 17

35 Execution of plan by PRAP Steering Committee; Stakeholder identification and analysis; Monitoring; and Evaluation. 5.7 Beneficiaries Unemployed, disabled, elderly/redundant, children at work, adolescents (male/female), women without livelihood skills, landless, female head households and HHs having Income Less than Tk. 4,000 per month are the beneficiaries of PRAP. 5.8 Cost Pourashava allocates minimum 5% budget money of total budget in every fiscal year from their revenue income. 6. Argument in Support to Consider Intervention as a Case of Good Performance PRAP represents national priority concerns and has strong relevance to the Poverty Reduction Strategy of the Government of Bangladesh (GoB); Pourashavas have large number of urban poor; Pourashavas have potentials for poverty reduction; PRAP is prepared in demand driven approach and implemented with direct participation of beneficiaries (poor women); Pourashava already owned the tool for poverty reduction purpose; Pourashava allocated money for the implementation of PRAP; and Performance of project Pourashava in PRAP implementation was evaluated at the end of Phase-2 of UGIIP-II and ranked satisfactory. 7. Results Out of this Good Practice All 6 Pourashavas prepared PRAP and implemented; Pourashava staffs have been capacitated regarding participatory PRAP preparation and effective implementation; PRAP ensured community (including poor) participation at every possible step (including decision making) in the process of PRAP preparation and implementation; PRAP enhanced representative structures at Pourashava and made communication and coordination more functional among the service providers and the recipients i.e. poor community members; Gender responsive activities are taken at intervention level (facilities for the women during construction of market, bus terminal, public toilet, etc.); It has also ensured women s participation in poverty reduction and hence, it strengthened the process of empowerment of poor women; PRAP took efforts to address specific needs of most vulnerable groups such as female headed households (FHHs), children at work, youth/adolescent male and female, disables, elderly, landless, unemployed/unskilled laborers, minority (ethnic, religious and socially marginalized) groups, etc. A good number of women are involved with saving program; 18

36 A good number of women are running income generating activities after having got IGA training from Pourashava and other Government organization such as District Women Affairs Office (DWAO), Youth Development Office, etc., and A good linkage was developed between GAP and PRAP to harmonize the contributions of Pourashava, which allocated money by including the poor communities of Community Based Organization (CBO) and slums with special reference to inclusion of women and marginalized groups for involving in IGA training. 8. Potential Success Factors behind this Achievement Mayor and Councilors interest in poverty reduction activities in slum; PRAP is people-oriented/demand-driven service delivery tool; Technical support provided by Governance Program Development (GPD) team, GIZ to prepare and implement PRAP including training; GIZ experts were located at Pourashava level, so that they provided support locally according to requirement for Pourashava capacity development; Allocation of project fund for improvement of basic services in slum from UGIIP-II; Pourashava allocated min 5% of every financial year budget as the same is a condition of the project for having access to project fund; Poor communities are more aware regarding the Pourashava services connected to poverty reduction; Acute demand for basic services including footpath, drain, water and sanitation in slum area; Continuous performance monitoring of PRAP implementation by PMO; and Linking performance of PRAP implementation to a satisfactory level with access to project fund. 9. Challenges that Need to be Overcome to Sustain the Effect PRAP steering committee is a project based committee and may not function after complementation of the project; Lack of initiatives for establishment and functioning of Standing Committee on Poverty Reduction with detail ToR as per provision of Pourashava Act 2009 from sustainability point of view; Absence of government policy to address the Pourashava poverty within existing legal framework; Threat of discontinuation of practice for preparation and implementation of PRAP after end of the project period; Absence of PRAP monitoring system at Pourashava level; Lack of willingness of Mayor and Councilors about poverty; Lack in prioritizing poverty over other function of Pourashava due to insufficient revenue earning of Pourashavas; Slums were selected for poverty reduction whereas poor pockets of the town were excluded totally from any support for poverty reduction; and Shortage of Community Field Workers compared to size of poor population. 19

37 10. Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Willingness of Pourashava to invest money after phasing out the project; Lack of revenue can be result of discontinuation of the flow of fund for PRAP; Follow up mechanism does not exist in the project to continue the use of the tool beyond the project period in terms of strengthening institutional capacity of local government; and Absence of government directives and supervision/monitoring concerning establishment of standing committee on poverty reduction with ToR, preparation of yearly PRAP and allocation of fund in the Pourashava annual budget. 11. Recommendation on Approaches that can be Incorporated into the Strategy i. Establishment of monitoring system at central level to see that the standing committee on poverty reduction/eradication and slum improvement has been constituted with TOR and made functional in line with draft bye-laws issued by LGD vide memo number (Part-3)-07 dated ; ii. External support for enhancing capacity of standing committee members through providing required training; iii. Linking performance of PRAP implementation including budget allocation from Pourashava own source revenue with government grant from ADP; and iv. Introduction of HLP of good practice on PRAP implementation of any Pourashava with participation of surrounding Pourashava. 20

38 Case No. 4 Computerization of Tax Record System and Billing 1. Performance indicators: Introduction of computerized tax record system, production of computer generated tax bills and collection through bank. 2. Name/Number of Pourashavas: 92 Municipalities (88 Pourashavas and 4 City Corporations) under Municipal Support Unit (MSU) and 41 Pourashavas under Urban Management Support Unit (UMSU) within 10 regions of LGED. 3. Who Initiated Cases/source of Intervention: MSU under MSP and (UMSU under UGIIP-I. 4. Starting Date/Month of Intervention : July Description of the Case of Intervention/Practice (objective, content, characteristics, implementation process, beneficiaries, cost, etc.) 5.1 General Revenue demand and revenue collection efficiency depend on Pourashava s managerial capacity and revenue/ tax payers response and attitude. A well-managed Pourashava can convince taxpayers to pay tax timely vis-a-vis the Pourashava can raise its level of service delivery to an acceptable standard. Keeping this in mind, MSU/UMSU came forward to automate Pourashava Holding Tax with a view to improve capacity and transparency in tax management system including increased collection efficiency. 5.2 Objectives Computerization of Tax management has manifold objectives. In the first place inventorying and entering all holdings-related data on database provides the advantage of having at hand a systematic record of the holdings, assessment details, realization status-all readily available both in terms of accuracy as well as promptitude while retrieving them from the database for decision-making. Secondly, over time, the computerized database could be used in total replacement of the flat books currently used which will allow the section to record, retain and make available both static and dynamic data of the stakeholders, much faster than those maintained on the flat books. Thirdly, the database so maintained would display a transparency of the process and would stand to give instantaneous assessment and realization status of taxes, which would have a positive contribution towards making of a better realization effort leading to an increased revenue base. 21

39 5.3 Content/ Activity The Works under this program mainly included: Inventorying all holdings using MSU-evolved purpose-built computerized software; Taking holding tax data from the current assessment books; Generating holding tax demand bill; Producing customized as well as specifically desired taxation-related reports; and Collections of taxes through Bank using MSU -evolved software. 5.4 Implementation Process Each of the MSU selected Pourashavas stands to get required Personal Computers (PCs) for the taxation section for use in the assessment and demand notice related jobs. Of course, prior to the installation of the software, the tax section s staff are/were imparted basic computer training as a precursor to their getting used to the PCs and their putting to use as a part of the overall capacity raising effort in the Pourashavas. Within the 1 st stage, one important underlying purpose is to issue computerized tax bills for realization of holding taxes to the intended tax payers that fall due or are in the arrears. This becomes/would become possible consequent upon preparation of the holding tax demand database through use of the MSU-installed computerized software. Hands-on training and on the job support in data entry, use of software in preparation of bills, printing of bills, etc. were also conducted till the staffs were confident enough to run the program. 5.5 Beneficiaries A total of 129 Pourashavas and 4 City Corporations including the owners of holding/ property are the beneficiaries of this program. 5.6 Cost Initially, cost of PCs, stationeries, software development, basic computer training, on the job training etc., were borne by Project. 6. Argument in Support to Consider Intervention as a Case of Good Performance Result and output of the intervention are the proof to consider the same as a case of good practice/performance. 7. Results Out of this Good Practice Increased capacity of the concerned staff, in operating computerized tax management system; Saving in time and manpower of Pourashavas against bill generation, distribution, collection and report preparation; 22

40 Increase in collection efficiency (see example in Table 2 shown at the end of Case No. 5); Transparency in collection system in terms of reduction of misappropriation; Tax payers feel confident and comfortable to pay tax, based on smart computerized bill, instead of previously hand-written bill; and It started paving the path of the GOB s ICT strategy Digital Bangladesh by the year Potential Success Factors behind this Achievement The performance with regard to computerization of tax record and billing including increase of collection efficiency is a condition to have access to the project fund; Willingness of Pourashava leadership in getting into modern digital system in general; Continuous consultant support to relevant Pourashava staff including trouble shooting from time to time for operation of the computerized tax management system; Central level training on software operation conducted for Deputy Directors and Assistant Director of MSU-UMSU who provided direct support to Pourashava level; Training for operation on tax software conducted for Pourashavas Accounts Officer, Accountant, Assistant Accountant, Tax Collector, Asstt. Tax Collector, Tax Assessor, etc., at regional level; Basic computer training to all above mentioned staffs conducted at Pourashava level; and Operational level continuous support from consultants and MSU-UMSU officials to Pourashava staffs on data entry, bill preparation and printing of bills including trouble shooting from time to time. 9. Challenges that Need to be Overcome to Sustain the Effect Administrative and technical supports, supplying of computers, printers, software and other logistics from the Urban Management Unit of LGED to be provided persistently; Providing continuing institutional capacity building supports to Pourashavas tirelessly; Required staff with computer operation knowledge to be made available at Pourashava; Building up institutional capacity within LGED for future capacity building supports; and Institutionalization of MSU-UMSU permanently under a single banner inside Urban Management Unit within LGED. 10. Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Insufficient staff; Budget constraint/lack of sufficient funding; Lack of continuation of support from MSU/UMSU and its limited jurisdiction; Absence of government directives for use of advance info-technology (ref. section 54, the Pourahava Act 2009) within existing legal framework; and Absence of institutions for providing continuous training and software support (Institutionalization of MSU-UMSU may be an option). 23

41 11. Recommendations on Approaches that can be Incorporated into the Strategy i. LGD to act upon the requirement of advance info-technology as per provision of Section 54 of the Local Government (Pourashava) Act, 2009; ii. LGD to ensure regular allocation of fund from government budget for keeping the Capacity Development Program of MSU-UMSU vibrant beyond project period or in absence of projects, to ensure that some permanent entity is in place to provide similar support; iii. Linking performance of Pourashava in computerization of tax record system, computerized tax billing and collection through bank including achievement of minimum 75% collection efficiency as per provision of Section 49 (D) of Pourashava Act, with allocation of GOB grant from ADP; iv. Continuous support in the form of training on software operation as well as support at works for the concerned staff on tax data entry, bill preparation, printing of bills, etc. including trouble shooting, from time to time, as being provided by MSU, UMSU to be maintained; and v. Building up permanent support system at national level to ensure continuous IT support to Pourashava officials in operation of computerized tax management system including monitoring of Pourashava performance for linking up with allocation of ADP grant. Table 2 Comparative statement of Tax collection between Pre & Post Computerization of 4 Pourashavas under RUMSU, Khulna BenapolePourashava: UGIIP-II & UGIIP-III A Comparative statement of Tax collection between Pre & Post Computerization Before Computerization: Total Holding Number Fiscal Year Demand Total tax collection (Tk.) Collection Efficiency ,666, ,425, % After Computerization: Total Holding Number Fiscal Year Demand Total tax collection (Tk.) Collection Efficiency 5, ,710, ,408, % 5, ,741, ,520, % 6, ,813, ,653, % 24

42 Mongla Port Pourashava: MSP and CRDP A Comparative statement of Tax collection between Pre & Post Computerization Before Computerization: Total Holding Number Fiscal Year Demand Total tax collection (Tk.) Collection Efficiency ,139, ,384, % After Computerization: Total Holding Number Fiscal Year Demand Total tax collection (Tk.) Collection Efficiency ,170, ,294, % ,436, ,911, % ,500, ,177, % ,000, ,890, % ,000, ,464, % ,500, ,283, % 4, ,207, ,488, % 4, ,230, ,717, % 5, ,424, ,477, % 5, ,087, ,418, % 5, ,536, ,760, % GangniPourashava: TA (MGSP) A Comparative statement of Tax collection between Pre & Post Computerization Before Computerization: Total Holding Number Fiscal Year Demand Total tax collection (Tk.) Collection Efficiency ,016, ,287, % After Computerization: Total Holding Number Fiscal Year Demand Total tax collection (Tk.) Collection Efficiency 5, ,809, ,025, % 5, ,875, ,549, % 25

43 Nowapara Pourashava: UGIIP-I and CRDP A Comparative statement of Tax collection between Pre & Post Computerization Before Computerization: Total Holding Number Fiscal Year Demand Total tax collection (Tk.) Collection Efficiency ,244, ,280, % After Computerization: Total Holding Number Fiscal Year Demand Total tax collection (Tk.) Collection Efficiency 11, ,767, ,193, % 11, ,297, ,087, % 11, ,222, ,088, % 11, ,963, ,088, % 11, ,330, ,436, % 11, ,431, ,053, % 11, ,934, ,713, % 13, ,270, ,137, % 26

44 Case No. 5 Horizontal Learning Program (HLP) 1. Performance indicators: Providing training on Horizontal Learning concept, holding HLP at central level, dissemination of learning to local level and its implementation. 2. Name/Number of Pourashavas : Chandpur, Jhalokathi, Faridpur, Jamalpur, Natore, Sreemongal under UGIIP-II 3. Who Initiated Cases/source of Intervention : Chandpur and Jhalokathi Pourashava as nucleus with technical assistance/support from GIZ experts/advisers 4. Starting Date/Month of Intervention: July, Description of the Case of Intervention/Practice (objective, content, characteristics, implementation process, beneficiaries, cost, etc). 5.1 Introduction Horizontal Learning program (HLP) is a process of peer learning including sharing experiences/observations and building up partnership. HLP, in question, was organized by two GIZ supported pilot Pourahsavas involving surrounding Pourashavas under UGIIP-II. Participating Pourashavas are: Nucleus-1: Chadpur, Cox Bazar, Parshuram, Noakhali, Choumohoni, Basurhat, Hajiganj, Khagrachori and Bandarbon Pourshava. Nucleus-2: Jhalokhati, Kalapara, Barguna, Patuakhali, Lalmohon, Bhola. 5.2 Objectives To make the essence and importance of HLP initiatives clear among the senior staffs of participant Pourashavas and the host Pourashava management; To make the Pourashava officials able to identify their own strengths and weaknesses compared to the other Pourashavas; and To inspire the project Pourashavas to create good examples presenting documentary videos on good examples of pilot Pourashavas. 5.3 Implementation Process Horizontal Learning Platform was established with Chadpur and Jhalokhati pilot Pourashavas respectively as nucleus consisting of surrounding Pourashavas under UGIIP-II; ToR for concerned stakeholders/pourashavas focusing their roles and responsibilities in the process of HLP was briefed to the pilot Pourashavas at 27

45 national level horizontal learning workshop held in Cox-Bazar with request to undertake HLP as a back home action plan; GIZ regional experts/coordinators oriented the nucleus Pourashava on roles and responsibilities in organizing HLP; Nucleus Pourashavas with technical support of GIZ expert/coordinators documented cases of innovative and best practices for sharing with participating Pourashavas in the HLP; A plan on HLP was formulated by each nucleus Pourashava, implemented the plan and documented the lessons learned after holding HLP exercise; GIZ is planning to find out strategies for sharing lessons learned at national level and move forward. 5.4 Beneficiaries of the Horizontal Learning Program The primary beneficiary of the program is the Pourashava management of the project Pourashavas participated in the HLP workshop at pilot Pourashava and the ultimate beneficiaries are the citizens of the project Pourashavas. 5.5 Costs Initial costs i.e, designing of the program, developing guideline, organizing Central Level Workshop etc. is implemented under the technical support of GPD team of GIZ. 6. Argument in Support to Consider Intervention as a Case of Good Performance Horizontal Learning is a peer learning process based on the innovative success cases which opens up new insights of the people of visiting organizations through witnessing the win-win practices on programmatic issues of the host organization. As per the activity plan for GPD team, GIZ under UGIIP 2, LGED planned to facilitate the Horizontal Learning exercise where the representatives of neighboring Pourashavas will visit the nucleus (pilot) Pourashava to be exposed with the innovative practices, which can: sensitize the staff members of neighboring Pourashavas in favor of replication of good practices in their respective Pourashavas considering their own condition; create a competitive climate among the project Pourashavas to move forward for better performance in different services; assist the participating Pourashava officials in identifying their own strengths and weaknesses compared to the other Pourashavas; sensitize the staff members of project Pourashavas in favor of replication and adaptation of good/innovative practices which have been successfully practiced in other peer Pourashavas; encourage the target Pourashavas to be more innovative in providing better services for their citizen; and create a competitive motivation among the project Pourashavas to increase better services through innovative approaches. 28

46 7. Results Out of this Good Practice Participating Pourashava officials at central level workshop made a commitment to replicate the good examples in their own context; Sr. Pourashava officials were also much enthusiastic to share their good practices. A competitive behavior created during demonstration of the best examples of participating Pourashavas in central level workshop held at Cox s Bazar; All the officials agreed to implement back-home actions which made them obligatory to take next steps and make the initiative sustainable for the Pourashavas; Committed to take initiative for exposure visit among the Pourashavas for peer learning. 8. Potential Success Factors behind this Achievement National level workshop at Cox s Bazar on HLP involving all UGIIP-II Pourashavas Mayors including sharing of good practices of participating Pourashavas created incentive/inspiration and motivation among pilot Pourashavas for holding similar HLP workshop; Technical support and assistance from GIZ experts/coordinators/advisers for holding local level HLP; and Improved capacity /initiatives of Trainers Pool established at nucleus Pourashava. 9. Challenges that Need to be Overcome to Sustain the Effect If the Pourashava management do not own the initiative of Horizontal Learning the process might be shut down in course of time after GPD-GIZ support withdrawn; The members of the Trainers Pool at project Pourashava, who are mainly supposed to be involved with the horizontal learning activities, are really busy and have very little time to spend for HLP; and Though the Platform Level Pourashavas under HLP have incorporated their allocation of budget for organizing training and workshop, continuation of such budget allocation after project completion is most uncertain. 10. Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Situation of citizen services and even demand from the citizens of one Pourashava is different from others. Financial solvency and sustainability also varies from Pourashava to Pourashava. So all innovative/good practices would not be replicable if it is even needed for them; Attitude of the Mayors/Senior staffs of all the Pourashavas are not expected positive all the time, so good/innovative practices of one Pourashava might not be taken as positive to other Pourashavas especially for those where new peoples representatives are elected; Some of the Pourashava management have negative attitude to the activities other than their routine activities and do not like to spend money as they consider these as less important and unproductive; and Absence of government instruction of guideline and lack of awareness of the Pourashava authority about benefits of HLP. 29

47 11. Recommendation on Approaches that can be Incorporated into the Strategy i. More and more national level workshop on HLP with participation of Pourashava Mayors to be held at LGD s initiatives, based on experience and lessons learnt from the project, for their awareness building including efforts for changing attitude; ii. LGD to entrust LGED or NILG to conduct central level HLP with allocation of fund and to provide training and assistance to the nucleus Pourashava to implement HLP; iii. Preparation of a guideline on HLP prepared, detailing continuous process of exposure visit/sharing, workshop for peer learning within the Pourashava mainstream activities, and distribution of the guideline by the government with directives to bigger Pourashavas to organize HLP at least once in every year; iv. LGD to allocate a portion of ADP grant for bigger Pourashava/nucleus Pourashava to conduct HLP with participation of surrounding Pourashava; and v. LGED or NILG may be authorized to assist nucleus Pourashavas to organize HLP including monitoring and impact evaluation. 30

48 Case No. 6 Activating Standing Committees for Better Service Delivery and Service Monitoring 1. Performance indicators: Standing Committees established and/or activated. 2. Name/Number of Pourashavas : Sirajgonj Pourashava 3. Who Initiated Cases/source of Intervention : Women and children standing committee of the Pourashava (the Mayor and Councilor of 13,14,15 ward) 4. Starting Date/Month of Intervention : October Description of the Case of Intervention/Practice (objective, content, characteristics, implementation process, beneficiaries, cost, etc.) 5.1 Objectives The overall goal of the SDLG program is to improve transparent and participatory public administration at the sub-national level and to enhance legal and policy reform at the national level in order to promote and expand decentralization. Starting in 2011, the program aims to improve the capacity of at least 600 local government units covering all six divisions of Bangladesh, including 450 Union Parishads, 100 Upazila Parishads, and 50 Municipalities to better respond to the needs of their constituents. In 2014 SDLG reduced it project location from 600 to 200(190 Union Parishads and 10 municipalities) and focusing on the issue of monitoring local service delivery by the members of the standing committee and service sector collaboration. 5.2 Implementation Process Capacity Building Training: Under Bangladesh Local Government Acts 2009, elected members/ councilors of unions and municipalities are eligible to chair Parishad s standing committees (SCs) and citizens are eligible to become members of those SCs (in case of union parishads only). In order to put into operation the section of the law mentioned above, SDLG s partner NGOs provided trainings to the project Local Government Units (LGUs) including the elected representatives of Sirajgonj Municipality on four topics: financial management and revenue generation; participatory planning and budgeting; service delivery and monitoring; and citizen participation. Beside, specific training was offered to the SC members on reporting and monitoring. 31

49 Training follow up: monitoring visit by SCs After the training, SDLG s partner NGOs facilitated activation of specified 5 standing committees in the municipalities and assist to start monitor the quality of services provided by the provider to the citizen. Citizen-in-Governance (CiG) 6 become co-opted members of LG standing committees, participates in monitoring and observation activities. Besides, they also proactively engaged in ward committees, open-budgeting and planning sessions as specified in Bangladesh law. In Sirajgonj Municipality, the SCs specifically the three, mentioned in this document became aware on its monitoring responsibilities, start visiting local level service departments and further based on the observations attempt has been taken to improve the service quality of the providers. These practices improve internal governance by ensuring holding regular meetings, planning and implementing development activities, public funds expenditures in more transparent way involving all members. 6. Argument in Support to Consider Intervention as a Case of Good Performance Quality of services by the providers was never monitored by the local elected representatives. Through this project, the elected representative became aware that they have roles in monitoring; The focus and the practice well is on the entire council (municipality) not only Mayor or any position. This has enabled all to participate and perform in municipality development activities; and Trained citizens have access in urban governance, play an active roles in community concerns and decision making. 7. Results Out of this Good Practice In Sirajgonj (municipality), the entire council became operational. Decisions on any activities are made involving all councilors; It was reported that in the last year monthly meetings (100%) held regularly; Along with other responsibilities SC members proactively took up monitoring roles and visited GoB and NGO health activities (NGO Health Service Delivery Project funded by USAID) and jointly organized community meetings to raise awareness of and provide support to the citizens on public health issues, pre and post natal care for pregnant mother and child immunization. Through this, citizen s access to health facilities increased; SC members (audit and accounts) checked books of accounts including the records on Own Source Revenue (OSR). It was reported that from to , the tax increase is 164% 7 ; It was found that ward meetings were heldand annual plan and budget were prepared accordingly. In the previous year Tk. 302,986,981 budget was pronounced in the open budget meeting; 5 Specified standing committees In UP: 1) education, health and family welfare, 2) women and child welfare, 3) financial management and 4) agriculture. In Municipality: 1) women and child welfare, 2) town planning, service delivery and development 3) audit and accounts and 4) agriculture. 6 A group of trained citizen on local governance and citizen s responsibility 7 In tax collection was approximately 5 crores and in 2014 it is 13 crores 32

50 Delegation of responsibilities to the councilor s of the Pourashava as chair of the standing committee became visible; Councilor s roles also became vibrant and transparent in public services; and The service provider became more accountable and responsive to service seekers and Pourashava became transparent in terms of service delivery and fund utilization. 6. Potential Success Factors behind this Achievement Knowledge transfer and practice through training based on the LG Act 2009; Program strategies includes training follow up mechanism; Citizen inclusion in all activities including planning and implementation; and Trained NGO staff are providing technical assistance to the LGUs as needed. 7. Challenges that Need to be Overcome to Sustain the Effect Scope to include citizen in municipality s development; Mechanism to follow-up of the learning and Good Practice ; The positive attitude of the elected representatives and commitment for a better urban governance and continue practicing the learning; Minimizing conflict within the councilors and the Mayor; and Limited span of the project; 8. Obstacles to Replication of the Good Practice/Intervention in other Pourashavas Absence of government monitoring system to see functioning of standing committee; Lack of awareness about importance of SCs to ensure efficient and transparence administration and service delivery among Councilors and the Mayor; Mayor s unwillingness to activate SCs to function according to ToR; Absence of bye-laws prepared and adopted by Pourashavas including detailed ToR, procedure of conduction meeting, writing munities and process detailing placement of recommendation to Pourashava monthly meeting and so on; and Absence of training facilities and external support for capacity building of SC member for efficient functioning. 9. Recommendation on Approaches that can be Incorporated in into the Strategy i. LGD to make sure that each Pourashava has constituted all SCs with TOR in line with draft bye-laws circulated by LGD vide memo number (Part-3)-07 dated ; ii. A monitoring mechanism to be established at central level to monitor efficient functioning of each of the SCs as per provision laid down in Section 55 of Pourashava Act and in accordance with TOR as laid down in the bye-laws on establishment and functioning of Pourashava SCs; iii. Motivational program for the Mayors to feel the necessity of strengthening of SCs to be conducted under overall management of LGD; iv. Training program for the Councilors (SC Chairperson/SC Members) to be undertaken to make them aware about TOR of SCs and Councilors role including capacity 33

51 building in writing minutes and the process detailing placement of SCs recommendation to the Pourashava monthly meeting; v. Technical assistance to Pourashava to be provided to conduct hands-on training or on the job support for the Mayor and Councilors to ensure efficient functioning of SCs, at least for few years, leading to sustainability, and vi. Citizens inclusion to be made in Pourashavas SCs as they are included in the SCs of Union Parishad (amendment of Act may be needed). 34

52 Case No. 7 Establishment of trainers pool and Resources Corner in UGIIP-II (Decentralized Training Approach through Municipality (Pourashava) Trainers Pool and Resource Corner) 1. Performance indicators: Establishment of trainers pool and resource corner with local level resource person develop through ToT at Pourashava level to undertake decentralized training program for mid and bottom level staff members and implemented including budget allocation. 2. Name/Number of Pourashavas : Chadpur, Jamalpur, Natore, Faridpur, Jhalokathi and Sreemongol, 3. Who Initiated Cases/source of Intervention: GIZ training team with the consent of the management of Second Urban Governance and Infrastructure Improvement (sector) Project (UGIIP2) implemented by Local Government Engineering Department (LGED) and with the technical and financial assistance of GIZ. 4. Starting Date/Month of Intervention: Preliminary initiative started from June Description of the Case of Intervention/Practice (objective, content, characteristics, implementation process, beneficiaries, cost, etc. Decentralized training approach through Municipal Trainers Pool and Resource Corner is an idea to capacitate the local level municipalities (Pourashavas) in managing their own capacity development activities through need based training utilizing own fund and manpower. This initiative is to reduce the central dependency on local training needs and to make a municipality self reliant in handling its own need based capacity development activities at least for the mid and bottom level staff. The ultimate goal of undertaking this initiative is to ensure better services by the municipal staff members to their citizen. Three major issues can be highlighted and considered as the key contents of the initiative which are as follows: Trainers Pool: Trainers Pool is a team of Pourashava staff who showed their interest to involve in local level training activities in addition to their normal jobs and received Training of Trainer (TOT) and also officially assigned as a member of training team by the concerned Mayor. Resource Corner: Resource Corner is a specified room or space in Pourashava where resource materials are officially preserved which is managed by the Pourashava Trainers Pool members. This also used as Pourashava reading corner. Study circle: Study circle is an initiative through which Resource Pool members used to arrange presentation sessions in presence of other Pourashava staff on the basis of a study 35

53 circle plan. This is considered as a forum of interdepartmental/intersectional sharing of experiences and important learning. Implementation process can be described as follows: Step-i: Policy level advocacy While working in UGIIP-2 project, one of the Sr Advisers of GIZ first shared the idea of Decentralized training approach through Municipality Trainers Pool and Resource Corner with the GIZ Team Leader and simultaneously consultation made with the Project Management during January-April, As a result, both managements endorsed the idea and agreed to go for implementation. Step-ii: Local level advocacy Since it was a new idea, advocacy was necessary at municipality level to create climate in favor of the idea for establishing Local Trainers Pool and Resource Corner. GIZ training team members under the guidance of Sr. Adviser for Training and Capacity Development visited the project municipalities and shared the idea with Mayors and Sr. officials aiming to sale this idea at local level. Step-iii: Interest Survey After creating positive views in favor of the idea of both in policy and local levels, an `interestsurvey was done by GIZ among the staff members of project municipalities to have their interest in involving with training activities (in addition to their normal duties) and also to know their willingness to participate in a Methodological TOT program. Interested staff members from all Pourashavas showed their interest and thus around 200 potential TOT participants were selected from project municipalities. Step-iv: Implementation of the TOT program Aiming to build a training team in each of the municipalities, a massive TOT program in 10 batches was organized and implemented during July-September, 2011 through which a total of 144 municipal staff received a five-day TOT course and all the participants expressed their both confidence and interest in contributing local level training activities. Step-v: Establishment of Resource Corner at municipality level Then GIZ provided furniture (table-1, chair-4, bookshelf-1, corner table-1, small signboard-1) to be used for the Resource Corner. After receiving the set of furniture, Mayor in most of the Pourashavas specified a separate room/space for the Resource Corner in order to safely preserve resource materials. Then, through PMO, GIZ sent a set of training-learning materials (manuals, guidelines, and IEC materials) developed with the assistance of GDP team, GIZ to each of the Resource Corners. A guideline on Management of Resource Corner was also sent to each of the municipalities. 36

54 Step-vi: Formation of Trainers Pool With the encouragement from PMO and GIZ and also as a result of the TOT program, the Mayors of each municipality formed a formal training team from those who received TOT and officially assigned them to involve in need based training activities in addition to their normal jobs. Mayors also assigned this team to be responsible for managing the newly established Resource Corner. Step-vii: Formal opening of Pourashava Resource Corner In most of the Pourashavas, Mayors ceremonially opened the Resource Corners in presence of local leaders/pd and opening sessions were held in all Pourashavas during January-June, These inaugural events had created a sense of ownership and accountability of the concerned officials to move forward with this idea. Step-viii: Introducing of study circle The idea of Study Circle was initiated aiming to create a sharing-climate on need based issues among the different departments and sections in order to harmonize the overall services given by the municipality. The trainers pool members were given the responsibilities of handling this issue on the basis of a periodic plan on study circle. Step-ix: On-job Support GIZ training team provided On-the-Job Training (OJT) and followed up the progress. In few municipalities the knowledge, skills and attitude of training pool members which were imparted TOT were followed up and reinforced through engaging them in the local level training sessions. 6. Argument in Support to Consider Intervention as a Case of Good Performance As a result of the initiative in the 6 pilot municipalities shows that currently municipality trainers pool is producing periodic training calendar and implementing need based training programs for their mid and bottom level staff members. Mayors are also allotting budget from the local fund to expedite the local capacity development activities. Thus the central dependency in training has been reduced and the scopes of training for the mid and bottom level staff has been opened up. This will ultimately contribute in discharging quality services for the citizen. Therefore, this initiative deserves wider replication in Bangladesh and that s why this can be considered as one of the unique cases of good performance. 7. Results Out of this Good Practice As a result of this initiative, the trainers pool of 6 pilot Pourashavas under UGIIP-II initiated their own training program spending own budget for the bottom and midlevel staff who have hardly been received training during their long service career in Pourashavas. Training activity is now considered as one of the mainstream activities and Mayor spontaneously allots fund every year. The trainers pool is now practicing of making 6 monthly training calendars and organizing training accordingly. Meanwhile, the bottom level staff those have been received training are observed more motivated and proactive. The film documentary has been done on this good practice by the project management with the financial and technical assistance from GIZ. The film is now can be seen in the GIZ you-tube. 37

55 8. Potential Success Factors behind this Achievement Encouragement of Mayor and staffs towards institutionalization of training in their own municipality; Establishment of resource corner with resource materials, furniture and equipment from GIZ including support from GIZ experts and advisers, also contributed in expediting the process; Commitment of the GIZ training team contributed a lot to establish the sense of ownership among municipal officials in favor of decentralized training approach through trainers pool and resource corner; Regular follow up and OJT to the trainers pool members helped in sensitizing and making them proactive; and High quality ToTs for the training pool members helped to increase the capability and confidence to act as trainers. 9. Challenges that Need to be Overcome to Sustain the Effect Discontinuation of follow up support for some more time is still a threat for possibilities of declining the current proactive situation; Change of Mayor is also can be a challenge to continue this initiative as regular allotment of local fund is essential to run the training initiative; Frequent transfer of the staff from training pool is also a barrier. This might reduce the capacity and motivation of training team; and If this initiative is not endorsed from the national policy makers, may nor continue only based on local initiative. 10. Obstacles to Replication of the Good Practice/Intervention in other Pourashavas If the initiative to replicate the idea is not taken from central level, wider replication may not be possible; The initiative of national level advocacy forum and catalyst group/body in favor of replicating any local good practices is currently absent; and It is a project intervention and not a part of the Pourashava organogram to function at Pourashava level. 11. Recommendation on Approaches that can be Incorporated in into the Strategy i. Preparation and distribution of a guideline, on operation and functioning of Trainers Pool and Resources Corner with ToR for its efficient functioning; ii. LGD, through NILG, to conduct regular TOT for the trainers pool members and training for operational management of resource corner; iii. Central support/external support to be provided for establishing of trainers pool and resource corner (supply of furniture, equipment, etc.); iv. Establishment of monitoring and mechanism for regular follow-up and to provide OJT and hand on support to trainers pool members to help in sensitizing and making them proactive. 38

56 3. Summary Recommendation on Approaches that can be incorporated into the National Strategy On further review and analysis of 7 cases of good performance/practices the summary recommendation on approaches to incorporate into the national strategy are listed below: Support for Citizen s Participation i. LGD to instruct Pourashavas to ensure stakeholders/citizens participation in Pourashava administration and service delivery where necessary (case 1 & 6); Awareness Building and Motivational Program ii. Awareness building and motivational program to be undertaken for the Mayor, Councilors, Pourashava Officials, Committee Members (TLCC, WLCC, GC, SIC, SC, etc.) where applicable (case no. 2 & 6); Preparation and Implementation of Guidelines/Rules/Regulation/Bye-Laws iii. iv. Preparation and implementation of guidelines for interventions which are not covered by rules as listed in Schedule 6 of Pourashava Act (case no. 1, 5 & 7); LGD to instruct and ensure Pourashavas to prepare regulations and bye-laws based on provision as laid down in Schedule 7 & 8 of Pourashava Act (case no. 1 & 6); Establishment of External Support System v. LGD to organize providing external support for the Pourashava through LGED (Training Unit, MSU/UMSU), NILG or the consultants for efficient implementation of interventions including required budget allocation to LGED and NILG (case no. 1, 3, 4 & 5); vi. Building up permanent support system at national level to ensure continuous IT support to Pourashava in all computerized management system (case no. 4); vii. Support for establishment or activating SCs to function according to TOR as determined in the bye-laws (case no. 6). Capacity Development and Training viii. Continuous support in the form of training, workshop, OJT, on job support etc. from central government through LGED, NILG or Consultants (case no. 1, 2, 3, 4, 5, 6 & 7); ix. Training and workshop for Mayors, Councilors for their capacity building in running different committees, writing minutes and relevant other administrative process and procedures for efficient functioning of Pourashava (case no.2, 3 & 6); x. Government to encourage HLP and exchange visit to be organized by bigger/nucleus Pourashvas involving surrounding Pourashava including budget allocation from central level (case no. 3 & 5). 39

57 Performance Monitoring xi. xii. Strong monitoring mechanism to be established for evaluation of Pourashava performance and ranking (case no. 2, 3, 6 & 7); and Process to be established for linking performance of Pourashava with government grant from ADP (case no 2, 3 & 4). 40

58 Strengthening Pourashava Governance Project (SPGP) Good Practice Study Detailed design of Study Appendix-1 Task details Task 1: Review basic reference documents and receive a briefing from the JICA expert team about the past and ongoing efforts for capacity development of Pourashavas Study dates 06,07,11, 12,,13 August, 2014 Study details Basic reference documents for review: 1. Pourasahva Act, Relevant part of Sixth Five year Plan (2011/ /16). 3. Urban Sector Policy (Updated draft as of 2014). 4. SPGP documents 5. NOBIDEP documents Selection of items for information collection of Past and ongoing efforts for capacity development of Pourashavas and possible sources: Task 2: Prepare a detailed design of the study specifying detailed items for information collection and possible sources of information Items for information collection 1. MSU efforts for capacity development; 2. UMSU efforts for capacity development; 3. UGIAP activities of UGIIP-I 4. UGIAP activities of UGIIP-2 5. UGIAP activities of STIFPP-2 6. UGIAP activities of CRDP 7. GIZ intervention for capacity development of UGIIP-2 Pourashavas; 8. GIZ intervention for capacity development of EUG Project; 9. Project Completion Report; 10. PBME/BME Reports; 11. Capacity development efforts of LGED for PSs; 12. Capacity development efforts of NILG. 1 Possible sources 1. Director, MSU, LGED 2. Director, UMSU, LGED 3. Sk. Amjad Hossain, PD of UGIIP-I 4. Mr. Shafiqul Islam Akand, PD of UGIIP-II 5. Sk. Amjad Hossain, Ex. PD of STIFPP-2 6. Mr. Ahsan Habib, PD of CRDP 7. Sr. Adviser, Mr. Sayed Rukunuddin and Sr. Adviser Mr. Ahmed Rukhunuddin 8. Mr. Hamidul Islam Chowdhury Rony, Component Leader, EUG PRoject 9. Concerned Project Director of LGED 10. Concerned Project Director of LGED 11. XEN, LGED Training Unit 12. Director (Training) and Director (Research)

59 Task details Task 3: Collect information through further documents reviews and interviews with resource persons in Dhaka about the cases that Pourashavas have shown particularly good performance after capacity development interventions in terms of service delivery, management, administrative skills of officials/employees, or accountability to the citizens Task 4: Share the information collected through Task 3 with the JICA expert team and jointly identify cases for analysis Study dates 19,20,21, 24,25 August, 2014 Study details Collection of Information through interviews with following resource persons about the cases that have shown particularly good performance after capacity development intervention : a) LGD (Appointment to be made by IC-Net): 1. Mr. Khalilur Rahman (DS), Mr. Ashok Madhob Ray (Additional Secretary) b) LGED (Past and ongoing urban development projects): i) Mr. Iftekhar Ahmed, (SE); ii) Mr. Md. Nurullah (SE) and Director, UMSU; iii) Mr. Iftekhar, Ex-PD, MSP; iv) Sk. Amzad Hossain, Ex-PD, UGIIP-1, Ex-PD, STIFPP-II and Ex-PD, LPUPAP; v) Md. Shafiqul Islam Akand, PD, UGIIP-II and vi) Mr. Ahsan Habib, PD, CRDP c) NILG: 1. Director (Training); 2. Director (Research) d) GIZ: 1. Sayed Rukan Uddin, Sr. Training Advisor (for training and horizontal learning) 2. Mr. Ahmed Rukhen Uddin (Azad), Sr. Advisor M&E and UG &M 3. Mr. Hamidul Islam Chowdhury (Rony), Component Leader, EUGP e) MAB : 1. Secretary General f) SDLG of USAID: (Appointment to be made by IC-Net) Sharing information with JICA expert team for jointly identification of cases for analysis 2

60 Task details Task 5: Interviews those closely involved in the cases identified through Task 4. The Contractor shall visit a few Pourashavas and interview their elected representatives/officials for further information upon the JICA expert team s request Study dates 14,15,16,1 7 & 21 September, 2014 Study details Resource persons, closely involved with jointly identified cases for analysis, will be interviewed for further information collection. Task 6: Analyze collected information, identify the following 1)Potential success factors; 2) Challenges that need to be overcome the sustain the effect; and 3) obstacles to replication in other Pourashavas 24,25,28,2 9 & 30 September, Conducting analysis on collected information for identification of potential success factors, challenges that need to be overcome to sustain the effect and obstacles to replication in others pourashava and preparation of draft report based on the results of analysis. Task 7: Prepare a study report based on the results of the Task 6. 26, 27 & 28 October, Preparation and submission of final study report incorporating comments/feedback from JICA Expert Team 3

61 Appendix-2 Strengthening Pourashava Governance Project Local Government Division Study on Good Performance/Practices of PSs after Capacity Development Interventions In Terms of Service Delivery, Management and Administrative Skill of Officials/Employees, or Accountability to the Citizens Name of resource person interviewed : Designation : Date of interview : Questionnaire Part-1 Project Summary Project Title : Executing Agency : Objective : Location : Implementation Period : Project Component : Capacity Development Component/Intervention (Listing items of Intervention/practices - UGIAP, Training Program etc.) Part-2 : Cases of Good Performance/Practices 1. Identification of cases that PSs have shown good performance/practices after capacity development intervention (review capacity development intervention undertaken in the project and identify cases of good performance/practices of PSs). 1

62 Part-3 : Details on identified cases of good performance/practices (Intervention wise details of good practices) Case No.... Name/Number of Intervention/Practice : Name of PSs : Who Initiated Cases/source of Intervention : Starting Date/Month of Intervention : Description of the Case of Intervention/Practice (objective, content, characteristics, implementation process, beneficiaries, cost, etc.). Argument in Support to Consider Intervention as a Case of Good Performance Results Out of this Good Practice : Potential Success Factors behind this Achievement : Challenges that Need to be Overcome to Sustain the Effect: Obstacles to Replication of the Good Practice/Intervention in other PSs : Recommendation on Approaches that can be Incorporated in into the Strategy: 2

63 Appendix-3 Compiled List of Capacity Development Interventions in Pourashavas and Identification of Cases of Good Performance/Practices Sl. No. Area/ Items of Capacity Development Intervention at Pourashava Level 1. Citizens Awareness and Participation 1. Preparation of citizen charter and to implement the same ensuring its meaningful use by citizen. 2. Introducing Citizen Report Card (CRC) to collect citizen opinion about the quality/ quantity of existing services and facilities and to use the result for enhancing accountability of PSs towards citizens. 3. To establishment of Grievance Redress Cell to function according per TOR. 4. Establishment and functioning of TLCC & WLCC as forum for ensuring citizens participation, including representation from women and the poor, in municipal administration and service delivery. 5. Preparation of Annual Budget, displayed for public opinion and discussed at TLCC. Name of Projects / Agencies/ Organizations (UGIAP Ref.) UGIIP-II (1.1), NOBIDEP (1.1) UGIIP-II (1.2), NOBIDEP (1.2) UGIIP-II (1.3), NOBIDEP (1.3) UGIIP-II (1.4), NOBIDEP (1.4), CRDP (1.1,1.2), STIFPP-2 (1.1, 5.2) UGIIP(1.2,1.3, 5.2), UGIIP(UMSU), MSP(TA), MSP (MSU) UGIIP-II (1.5), NOBIDEP (1.5), CRDP (1.4) 1 Cases that PSs have shown good performance/ practices Preparation of citizen charter and to implement the same ensuring its meaningful use by citizen. To establishment of Grievance Redress Cell to function according per TOR. Establishment and functioning of TLCC as forum for ensuring citizens participation, including representation from women and the poor, in municipal administration and service delivery. Preparation of Annual Budget, displayed for public opinion and discussed at TLCC. 6. Establishing MCC/PRC(Public Relation Cell), UGIIP-II (1.6), developing annual campaign plan and NOBIDEP(1.6), CRDP implemented as planned (1.3), STIFPP-2 (1.2) UGIIP(1.1) 7. Mayor face to face with Citizen CRDP (1.5) Mayor face to face with Citizen 2. Urban Planning 1. Preparation of Pourashava Development Plan UGIIP-II, NOBIDEP, and use as a tool for undertaking UGIIP(1.5,1.6, 1.7) comprehensive development of infrastructure. Cases identified for detail analysis Tentative (T) Priority (P) T T T P

64 Sl. No. Area/ Items of Capacity Development Intervention at Pourashava Level 2. Preparing annual O&M plan as a part of PDP ensuring requisite budget allocation, and implemented every year. 3. Annual review of PDP is conducted at least once a year, and approved by TLCC. 4. Base map verified and updated land use plan prepared 5. Establish Town Planning Units (TPU), hold Urban Planning Section (UPS) meeting and prepare resolution of the meeting. 6. A Pourashava staff assigned to the Planning Unit participates in the training program on urban planning methodology. 7. Implementation of Infrastructure Inventory assessment and mapping 8, Updating of existing Land Use Plan/Master Plan and List of Infrastructures. 9. Pourashava Infra-database and Base Map preparation 10. Discussion and endorsement of the Municipal Infrastructure Development Plan (complete with an updated land use plan) to be prepared by the Planning Unit with assistance from UMSU and Finalization of an implementation plan for Municipal Infrastructure Development Plan 11. Approval of building plans and adherence to Development Control 3. Women Participation 1. Preparation of PS specific Gender Action Plan (GAP), allocation of fund in annual budget for implementation of GAP activities and implemented. 2. Formation of Gender and Environment Subcommittees 3. Formation of several committees involving women citizen and organize and implement social and gender development activities with the women participation Name of Projects / Agencies/ Organizations (UGIAP Ref.) UGIIP-II(2.2), NOBIDEP (2.2), CRDP(2.5), UGIIP (4.6) NOBIDEP(2.4), UGIIP-II(2.1), NOBIDEP(2.1), CRDP (2.2) STIFPP-2 (1.3) UGIIP(1.4) NOBIDEP(2.3), 2 Cases that PSs have shown good performance/ practices UGIIP(1.5), UMSU/MSU Implementation of Infrastructure Inventory assessment and mapping CRDP(2.3) UGIIP(UMSU), MSP(TA), MSP (MSU), MSP UGIIP(,1.6, 1.7), CRDP (2.3) CRDP(2.4) UGIIP-II (3.1,3.2), NOBIDEP (3.1, 3.2), CRDP (4.1, 4.2), STIFPP- 2 (2.5) UGIIP(2.5) STIFPP-2 (2.2) UGIIP(2.2) STIFPP-2 (2.3, 2.4) UGIIP(2.3, 2.4, 3.3) Preparation of PS specific Gender Action Plan (GAP), allocation of fund in annual budget for implementation of GAP activities and implemented. Cases identified for detail analysis Tentative (T) Priority (P) T T P P

65 Sl. No. Area/ Items of Capacity Development Intervention at Pourashava Level 4. Integration of Urban Poor 1. Establishment of Primary Group (PG) and Community Development Committee (CDC)/Slum Improvement Committee (SIC) and making it functional; 2. Poverty Reduction Action Plan (PRAP) by PS is prepared, and included in the PDP, budget allocation for PRAP implementation is made in the annual budget and the PRAP is implemented. Name of Projects / Agencies/ Organizations (UGIAP Ref.) UGIIP-II (4.1), NOBIDEP(4.1), STIFPP-2 (3.1) UGIIP(3.2) UGIIP-II (4.2, 4.3), NOBIDEP(4.2, 4.3), STIFPP-2 (3.2) UGIIP(3.1) 3. Preparation of Poverty mapping STIFPP-2 (3.3) Cases that PSs have shown good performance/ practices Establishment of Primary Group (PG) and Community Development Committee (CDC)/Slum Improvement Committee (SIC) and making it functional; Poverty Reduction Action Plan (PRAP) by PS is prepared, and included in the PDP, budget allocation for PRAP implementation is made in the annual budget and the PRAP is implemented. Cases identified for detail analysis Tentative (T) Priority (P) T P 4. Preparation of Community Acton Plan (CAP) and Social Acton Plan (SAP) at CDC level 5. Leadership and skills training offered to poor women as envisaged in PRAP 6. Health, Education and Savings and Micro credit program for the poor. 5. Financial Accountability and Transparency 1. Introduction of double-entry computerized accounting system and computer generated accounting reports are produced. 2. Introduction of computerized tax record system, production of computer generated tax bills and collection through bank. 3. Carrying out tax assessment/re-assessment at five years interval and interim assessment (land and building) carried out annually and collections increased STIFPP-2 (3.4) UGIIP (3.7) UGIIP (3.4, 3.5, 3.6) UGIIP-II (5.1), NOBIDEP (5.1), CRDP (3.1) STIFPP- 2 (4.5), UGIIP(4.8), UGIIP(UMSU), MSP(TA), MSP (MSU), MSP UGIIP-II (5.2), NOBIDEP (5.2), CRDP (3.2) UGIIP(4.7), STIFPP (4.5, 4.6), UGIIP(UMSU), MSP(TA), MSP (MSU), MSP UGIIP-II (5.3), NOBIDEP (5.4), CRDP(3.3, 3.4) STIFPP-2 (4.3) UGIIP(4.1, 4.3) 3 Preparation of Community Acton Plan (CAP) and Social Acton Plan (SAP) at CDC level Introduction of computerized tax record system, production of computer generated tax bills and collection through bank. Carrying out tax assessment/reassessment at five years interval and interim assessment (land and building) carried out annually and collections increased 4. Improving non-tax, revenue management UGIIP-II (5.4), Improving non-tax, revenue T T P

66 Sl. No. Area/ Items of Capacity Development Intervention at Pourashava Level system and increasing the same, at least, by inflation rate. 5. Repayment of due debts to govt. and any other entity in full according to schedule. The ratio of debt-servicing to annual revenue receipt remains less than 25%. 6. All out-standing bills, older than three months, including electricity and telephone are paid in full every month. 7. Financial statement prepared and accounts and audit standing committee carried out audit within three months after the closure of fiscal year. 8. Introduction of computerized water billing system, production of computer generated bills including payment through bank. 9. Increase tax collection efficiency by more than 5% annually from to achieve the target of at least 85% collection. Name of Projects / Agencies/ Organizations (UGIAP Ref.) NOBIDEP(5.5),, CRDP(3.10) UGIIP-II (5.5), NOBIDEP (5.6), CRDP(3.6) UGIIP-II (5.6), NOBIDEP(5.7), CRDP(3.11, 3.12) STIFPP-2 (4.4) UGIIP(4.4, 4.5) UGIIP-II (5.7), NOBIDEP (5.3), UGIIP-II, CRDP (3.8) STIFPP-2 (4.6), UGIIP(UMSU), MSP(TA), MSP (MSU), MSP CRDP(3.5) STIFPP-2 (4.1) Cases that PSs have shown good performance/ practices management system and increasing the same, at least, by inflation rate. Introduction of computerized water billing system, production of computer generated bills including payment through bank. Increase tax collection efficiency by more than 5% annually from to achieve the target of at least 85% collection. Cases identified for detail analysis Tentative (T) Priority (P) T T 10. Introduction of computerized trade license management system and production of computer generated License/Bills and Reports with assistance from UMSU. 11. Introduction of computerized management of non-mechanized transports records keeping and production of reports CRDP(3.7), UGIIP(UMSU), MSP(TA), MSP (MSU), MSP CRDP(3.9), MSP(TA), MSP (MSU), MSP 12. Increased of other own source collection UGIIP (4.2) STIFPP-2 (4.2) 6. Administrative Transparency 1. Developing adequate staff structure, according to size and needs with detail job description, in order to effectively undertake PS s current and future obligation. UGIIP-II (6.1), NOBIDEP (6.1), STIFPP-2 (5.1) UGIIP(5.1) 4 Introduction of computerized trade license management system and production of computer generated License/Bills and Reports with assistance from UMSU. Developing adequate staff structure, according to size and needs with detail job description, in order to effectively undertake PS s

67 Sl. No. Area/ Items of Capacity Development Intervention at Pourashava Level 2. Establishment of standing committees and are activated. Name of Projects / Agencies/ Organizations (UGIAP Ref.) UGIIP-II (6.4), NOBIDEP (6.4) Cases that PSs have shown good performance/ practices current and future obligation. Cases identified for detail analysis Tentative (T) Priority (P) 3. Establishment of Public Information & One Stop service center and make functional 4. Initiating activities for e-governance. UGIIP-II (6.6), NOBIDEP (6.6), CRDP(5.2) 5. Training programs, undertaken by Projects, are UGIIP-II (6.2), NOBIDEP actively participated by elected representatives, (6.2) Pourashava Officials and Concerned Citizens. 5 Establishment of Public Information & One Stop service center and make functional Initiating activities for e-governance. Training programs, undertaken by Projects, are actively participated by elected representatives, Pourashava Officials and Concerned Citizens. 6. Activation of pourashava subcommittees STIFPP-2 (5.3) UGIIP(5.3) 7. Public-Private Partnership(PPP) in Municipal Services and Infrastructure Development 1. Increase familiarization and awareness on CRDP Public-Private Partnership (PPP) related activities for development of Municipal Services and Infrastructure. 2. Introduction of PPP with NGO for water supply meter reading, billing and collection Natore Pourashava 3. Road maintenance through PPP Sherpur Pourashava (UGIIP-I) 8. Improvement of Municipal Services through Regional Cooperation 1. Working together to improve quality of Municipal CRDP Infrastructure and Services through Regional cooperation. 2. Activation of environmental and public health CRDP safeguards related issues. 9. Capacity Development Intervention through Training 1. Training on; - Pourashava Financial Management GIZ under UGIIP-II and also by other completed - Participatory Community Planning and ongoing LGED s - Updating of Citizen Charter Projects - Citizens Right & Responsibilities - Management of Community based Introduction of PPP with NGO for water supply meter reading, billing and collection Sherpur Pourashava (UGIIP-I) T T T P

68 Sl. No. Area/ Items of Capacity Development Intervention at Pourashava Level Organization CBO - Gender - Poverty Reduction - O&M of PS infrastructure and Services - Role of different Committees (TLCC & WLCC and PS Standing Committee) - Meeting Management - Effective Participation of meeting - Role of Town Planner in PS - Orientation on the guideline on Non-tax Revenue collection, Interim Tax Assessment, Pourashava Tax Collection Mechanism, outstanding electricity & telephone bills, Pourashava Grievance Redress Cell, Court Yard Meeting, Solid Waste Management, Role of Resource Corner & Resource Pool, Mass Communication cell (MCC) Role of PS Standing Committee, Adequate staff structure - TOTs on: Training Methodology, Gender TOT, Special TOT on Role &n Resource Pool and Managing Resource Corner, Training Plan and Management Name of Projects / Agencies/ Organizations (UGIAP Ref.) Cases that PSs have shown good performance/ practices Cases identified for detail analysis Tentative (T) Priority (P) 2. Training on Horizontal Learning and its implementation (GIZ has organized HLP. HLP organized by WB team) 3. Training on: - Financial Management for Revenue increase - Ward meeting and participatory strategy planning/budgeting for greater citizen participation; and - activating standing committees for better service delivery and service monitoring 10. Other Intervention 1. An example of practice to ensure timely attendance of Pourashava officials (Starting with National Anthem) GIZ, UGIIP-II and Horizontal Learning program of World Bank GIZ, UGIIP-II, Strengthen Democratic Local Government (SDLG) and other LGED s Projects Chadpur Pourashava Training on Horizontal Learning and its implementation: replicate by Chandpur & Jhalokati PS Activating standing committees for better service delivery and service monitoring An example of practice to ensure timely attendance of Pourashava officials (Starting with National T T P P 6

69 Sl. No. Area/ Items of Capacity Development Intervention at Pourashava Level 2. An initiatives of Bio-gas production from solid waste 3. Establishment of trainers Pool and Resource Corner in UGIIP-II Pourashava 4. Decentralize registration of birth and death and issuance of certificate Name of Projects / Agencies/ Organizations (UGIAP Ref.) Faridpur Pourashava GIZ and UGIIP-II Pourashavas LGD and Pourashavas Cases that PSs have shown good performance/ practices Anthem) An initiatives of Bio-gas production from solid waste Establishment of trainers Pool and Resource Corner in UGIIP-II Pourashava Decentralize registration of birth and death and issuance of certificate Cases identified for detail analysis Tentative (T) Priority (P) T P 7

70 Appendix-4 Selection of Resource person(s) for Interview in connection with Identified Cases of Good Performance/ Practices for Analysis Identified Cases that PS have shown Good Performance 1. Establishment and functioning of TLCC as forum for ensuring citizens participation, including representation from women and the poor, in municipal administration and service delivery. 2. Preparation of PS specific Gender Action Plan (GAP), allocation of fund in annual budget for implementation of GAP activities and implemented. 3. Poverty Reduction Action Plan (PRAP) by PS is prepared, and included in the PDP, budget allocation for PRAP implementation is made in the annual budget and the PRAP is implemented. 4. Introduction of computerized tax record system, production of computer generated tax bills and collection through bank. 5. Training on Horizontal Learning and its implementation 6. Activating standing committees for better service delivery and service monitoring 7. Establishment of trainers Pool and Resource Corner in UGIIP-II Pourashava 8. Introduction of PPP with NGO for water supply meter reading, billing and collection 9. Implementation of Infrastructure Inventory assessment and mapping Case Initiated by (Name of Project/Pourashavas) UGIIP-2, STIFPP-2, UGIIP-1, MSP (MSU), NOBEDEP, CRDP, MSP (TA) UGIIP-2, STIFPP-2, UGIIP-1, NOBEDEP, CRDP, GIZ UGIIP-2, STIFPP-2, UGIIP-1, GIZ UGIIP-2, STIFPP-2, UGIIP-1, MSP (MSU), NOBEDEP, CRDP, GIZ TA to UGIIP-2 Case Implemented (by Pourashavas) Pourashavas under relevant project Pourashavas under relevant project Pourashavas under relevant project Pourashavas under relevant project Pourashavas under relevant project Resource Person(s) for Interview Mr. Shafiqul Islam Akand PD, (UGIIP-II) Mr. Mohirul Islam Khan DPD (UGIIP-II) / Ms. F. Dipali Das, Sr. Advisor (Gender and Community Empowerment), GIZ Sk. Amzad Hossain PD (STIFPP-2) / Ms. Lipi Sheth Sr. Adviser (Community Development), GIZ Mr. Md. Nurullah Director, MSU/UMSU Mr. Omar Khayam Sr. Adviser (T & CD), GIZ / Mr. Mahidul Islam TL, (HLCS) Ms. Zarina Rahman Khan Phd. Deputy Chief of Party (SDLG) Sayed Rukan Uddin Ex Sr. Adviser (T & CD), GIZ UGIIP-2, GIZ TA to UGIIP-2, SDLG Pourashavas under relevant project GIZ TA to UGIIP-2 Pourashavas under relevant project Natore Pourashava Natore Pourashavas Mayor, Natore Pourashava and concerned NGO UGIIP-1, MSU/UMSU Pourashavas under relevant project Mr. Md. Nurullah Director, MSU/UMSU Remarks \\icnet.co.jp\fileserver\004_oda 事業部 \01_ 応札 実施案件 \03_ 案件応札 実施 \01_JICA 大型案件 \131030_ バングラデシュ国地方都市行政能力強化プロジェクト \01_1 年次 \05_ 成果品 報告書類 \02_ 成果品 \ プロジェクト業務進捗報告書 2 号 \ 別冊印刷用ファイル英文用 \ 成果品 2 Appendix4.doc

71 Summary of the Baseline Survey Report JICA Expert Team SPGP September 2014

72 Summary of the Baseline Survey Report 1. Objective The objective of the baseline survey was to check Paurashava residents satisfaction and expectations on the public services that were or should be provided by the Paurashavas. The survey was conducted as part of the SPGP activities. 2. Survey method The survey was conducted by distributing a questionnaire to approximately 700 residents of the ten selected Paurashavas and examining the questionnaire sheets filled out by the residents. The Paurashavas were chosen in consideration of geographical balance, average population, and area, so that they would represent all the Paurashavas in the country in a well-balanced manner. 3. Major findings (1) Residents awareness of the services provided by Paurashavas This section deals with the findings of the question on residents awareness of the Paurashavas mandatory services. The JICA Survey Team 1 asked the residents whether Paurashavas provided the mandatory public services mentioned in the Paurashava Act of A typical question is Does the Paurashava (PS) provide waste collection service? and the team asked the residents similar questions on other services. The residents chose one answer from the following options: 1) Yes (score: 1); 2) No (Score: 0); and 3) Do not know (Score: 0). The average score was then calculated for each service to examine to what extent the residents were aware of the services provided by Paurashavas. A score of 0.5 or more implies that a majority of the respondents think the Paurashava is doing something about the service. The higher the score on the service (i.e., closer to 1.0), the more the residents are aware that the Paurashava provides the service. The survey revealed that the residents recognized only one third of the mandatory services of Paurashavas as being implemented. This is not because residents were too demanding or unaware of the existence of the services but because the Paurashavas did not implement all the services that were required in the Paurashava Act 2. The result above suggests that the insufficient provision of the services by the Paurashavas needs to be addressed. Figure 1 displays an overview of the residents awareness. The services with a score of 0.5 or more are as follows: birth registration; infection diseases; public market (building); public transport (license); public street (building); checking building plan; public market (maintenance); slaughter house; and public street (maintenance). 1 The JICA survey team refers to a group consisting of a Japanese expert and several Bangladeshi researchers who conducted the survey. The JICA Expert Team means a group of Japanese experts who wrote the report that this summary is based on. 2 In the Administrative Needs Survey, another survey by the JICA Expert Team, elected representatives and personnel of Paurashavas stated that they did not provide the mandatory services stipulated in the Paurashava Act sufficiently. There is also a positive correlation between the degree of residents awareness of Paurashavas services and Paurashava personnel s assessment of their own performance. 1

73 Birth Registration Infection Diseases Public Market (Build) Public Transportation (license) Public Street (Build) Bulding Plan Public Market (Maintain) Slaughter House Public Street (Maintain) Street Light Traffic regulation Private Market Arboliculture New Street Drainage (Build) Inspection Building Graveyards (Maintain) Public Toilet (Build) Traffic Contorl Drainage (Maintain) Waste Collection Civil Defence Road Maintenance Program Water Supply (Public) Waste Removal Water Supply (Private) Waste Management Inspection Site Public Toilet (Maintain) Public Transportation (Fare) Master Plan Graveyards (Registrate) Street Watering Average score: awareness of Pourashava's services (total sample) Not recognized Recognized Source: JICA Survey Team Figure 1: Residents Awareness of Paurashavas Services (2) Residents satisfaction with the services provided by Paurashavas This section shows the findings on the residents satisfaction with the Paurashavas mandatory services. The JICA Survey Team asked the residents whether they were satisfied with the public services provided by the Paurashavas. A typical question is How would you rate your satisfaction with the drainage service provided by the Paurashava? The respondents chose a single answer from the following options: 1) very dissatisfied (Score: 1); 2) dissatisfied (Score: 2); 3) satisfied (Score: 3); and 4) very satisfied (Score: 4). The average score of all the services is Thus the residents satisfaction is not very high because the score of 2.0 means dissatisfied and 3.0 satisfied. Based on the results in (1) and (2) above, it is fair to say that there is room for improvement in the services. Figure 2 presents an overview of the residents satisfaction. The services with a score of 3.0 or more, i.e., those that the residents are satisfied with, are limited to birth registration, infection diseases, and approval of a new street in private land. Many services had a score of 2.5 or less, indicating that the residents are not satisfied with them. 2

74 Birth Registration Infection Diseases New Street Public Transportation (license) Private Market Public Market (Build) Bulding Plan Public Market (Maintain) Master Plan Slaughter House Inspection Building Graveyards (Registrate) Road Maintenance Program Inspection Site Graveyards (Maintain) Arboliculture Public Street (Build) Traffic regulation Public Street (Maintain) Traffic Contorl Drainage (Maintain) Water Supply (Private) Civil Defence Waste Management Public Toilet (Maintain) Waste Collection Public Toilet (Build) Public Transportation (Fare) Street Light Drainage (Build) Waste Removal Street Watering Water Supply (Public) Dissatisfied Satisfied Average score: satisfaction with Pourashava's services (total sample) Source: JICA Survey Team Figure 2: Residents Satisfaction with Paurashavas Services (3) Services to be highly prioritized Given their limited financial and human resources, Paurashavas should focus on improving priority public services to increase residents satisfaction. The public services that should be improved with high priority are those that are regarded as important but residents are not satisfied with. Such public services are as follows: (i) waste management; (ii) street light; (iii) water supply (public); (iv) public toilet (construction); (v) public toilet (maintenance); (vi) public street (construction); (vii) public street (maintenance); (viii) drainage (construction) (ix) waste removal; and (x) drainage (maintenance). The services above are given high priority from the following two findings: 1) Matrix of Importance and Satisfaction 3 (See Figure 3 below) and 2) Comparison of importance among core functions 4. The Section 4 in Figure 3 means that the services or functions in the section are essential but the residents satisfaction with them is low. Accordingly, the services in the section should be prioritized for improvement. 3 The vertical axis means the score of satisfaction of each function (Maximum possible score: 4). The horizontal axis means the score of importance of each function (Maximum possible score: 4). Both scores are the average of those given by the residents. 4 Article 50 of the Paurashava Act defines Responsibility and Function of Municipality and the second schedule of the Act provides 64 Detailed Functions of Municipality to elaborate Article 50. Among those detailed functions, the JICA Expert Team selected those that are considered mandatory ones and plotted them in the graph. The team asked the respondent From the following options, please select the five important services for your life and tried to clarify the differences in importance among the core functions. 3

75 Satisfaction Low High Section 2 Section Section 3 Section Importance Low High Source: JICA Survey Team Note: The number to the right of each dot indicates the code number of a service. Figure 3: Matrix of Importance and Satisfaction (4) Residents are willing to pay taxes if the quality of services is improved. The JICA Survey Team asked the respondents the following question: The current tax payment ratio of this Paurashava is not very high. Do you think the tax payment ratio will increase, i.e., more people pay taxes properly, if people are guaranteed to receive better services? More than 70% of the respondents are willing to pay taxes as required by law. Furthermore, about 81% of the respondents who did not pay taxes last year (fiscal year 2012) replied that more people will pay taxes if they are guaranteed to receive better services. Although the respondents answers may not be exactly the same as what they would actually do, the answers indicate some potential to increase tax collection that will lead to higher revenues for the Paurashavas. At present, the situation of holding tax collection varies among the pilot Paurashavas. According to another survey by the JICA Survey Team, the approximate annual average holding tax (HT) collection rates for the last three fiscal years 5 are as follows 6 : 73% in Shailkupa; 67% in Bakerganj; 83% in Sengarchar; 27% in Ulipur; 33% in Atghoria; 10% in Kanaighat; and 66% in Pakundia. An annual average rate for the three fiscal years is over 65% in four Paurashavas but less than 33% in the other three Paurashavas, which are two C category ones and a B category one. In short, there is still room for improvement in tax collection. 5 Fiscal years: 2010, 2011 and The HT collection rate is calculated as follows: [Current collection + Arrear collection] / [Current demand + Arrear demand]. It may not be appropriate to compare the HT collection rates among Paurashavas because some Paurashavas did not capture arrear demand. 4

76 (5) Other findings Possibility of gender difference in residents preference on services As shown in the following table, the differences by gender are not substantial in general. There is no major difference between the female and male survey respondents on awareness, satisfaction and importance of the Paurashavas services. Table 1: Summary of Gender-Wise Results Gender Awareness Satisfaction Importance Female Low (0.32) High(2.44) Low (3.31) Male High (0.40) Low (2.40) High (3.37) Source: JICA Survey Team In some services, however, the results show significant differences between women and men. For example, women seem to put more importance on public toilets than men. This implies that the approaches to women for improvement of some services should be different from those to men. The category of Paurashava may affect residents demand. As shown in the table below, there is not much difference on satisfaction and importance among the different categories of Paurashavas. However, there are noticeable differences on awareness among the categories. The reason is not clear, but it is possible that awareness should be of much higher level than 0.45 to have residents feel highly satisfied with the services, and the quality of services is also important for gaining high satisfaction of residents. Table 2: Summary of Category-Wise Results Category Awareness Satisfaction Importance A B C Source: JICA Survey Team Besides the above-mentioned general differences, there is an interesting finding from the analysis of (i) Matrix of Importance and Satisfaction and (ii) Comparison of importance among core functions. The priority on the services of civil defense and traffic control (regulation) increases incrementally from Category C, B and finally A. The service on civil defense is counted as the fifth highest priority service for Category A Paurashavas in the Matrix of Importance and Satisfaction. A typical Category A Paurashava is highly populated with unfamiliar faces and sees more traffic congestion than Paurashavas of the other categories. This implies that the Paurashava category may affect residents demand. For example, the residents of Category B and C Paurashavas may require services on basic needs, while those in Category A Paurashavas may demand more services on security and safety. 4. Recommendations based on the findings Based on the findings above, the JICA Expert Team submits the following recommendations on formulating the Strategy for Paurashava s Capacity Development. (1) Paurashavas should improve the capacity to provide the services on the following: waste management; street light; water supply (public); public toilet (construction); public toilet (maintenance); public street (construction); public street (maintenance); drainage (construction); waste removal; and drainage (maintenance). The analysis of this survey results revealed that high priority should be placed on the following ten services: waste management; street light; water supply (public); public toilet (construction); public toilet (maintenance); public street (construction); public street (maintenance); drainage (construction); waste removal; and drainage (maintenance). Improvement in those services can help increase residents satisfaction with all the services provided by Paurashavas. Therefore, the ten services above need to be emphasized in future capacity development of Paurashavas. 5

77 In reality, however, necessity and feasibility should be scrutinized. The selection of the services above is entirely based on the voices of residents who are unfamiliar with the administrative aspects of Paurashavas. How to strengthen those services also depends on their essence, and further analysis is needed. (2) Increasing residents satisfaction through better services supported by increasing revenue As seen above, the residents willingness to pay taxes was confirmed to a certain extent, with the precondition that the services provided by Paurashavas improve. Therefore, there is good potential for increasing holding tax collection rates and using the tax as a financial source for better services. 6

78 Baseline Survey for Strengthening Paurashava Governance Project Final Report September 2014

79 Strengthening Paurashava Governance Project Draft Report for Baseline survey Table of contents 1 Introduction Background Objective Methodology and Data Collection Targeted Area/ Paurashava Sampling Questionnaire Implementation setting and research method Research schedule Framework of Analysis Measuring policy Measuring priorities Findings of Analysis Socioeconomic Profiles of the Respondents Age Education Occupation/ employment status Income Residents Perception on Paurashava Services Awareness on the service Satisfaction on the service Importance of the service Relation between importance and satisfaction Residents choices on Paurashava services Willingness to pay for Paurashava services Conclusion Summary of findings Suggestion from the findings Annex Annex 1 Code on the services Annex 2 Table: summary of score (awareness degree) Annex 3 Table: summary of score (satisfaction degree) Annex 4 Table: summary of score (importance degree) Annex 5 Table: summary of score (importance from overall responses) Annex 6 Table: summary of score (matrix importance and satisfaction) Annex 7 Table: comparison (awareness of Paurashava s services) by gender Annex 8 Table: comparison (awareness of Paurashava s services) by category Annex 9 Table: comparison (satisfaction with Paurashava s services) by gender Annex 10 Table: comparison (satisfaction with Paurashava s services) by category Annex 11 Table: comparison (importance of Paurashava s services) by gender Annex 12 Table: comparison (importance of Paurashava s services) by category... 44

80 Strengthening Paurashava Governance Project Draft Report for Baseline survey List of tables Table 2-1 List of sample Paurashava for the survey... 2 Table 2-2 Paurashava and gender-wise sample size... 3 Table 2-3 Paurashava s functions listed in Paurashava Act Table 2-4 Summary structure of questionnaire... 5 Table 2-5 Schedule of the survey... 6 Table 3-1 Interpretation on matrix of importance and satisfaction... 8 Table 4-1 Distribution of age group, comparing with HIES Table 4-2 Distribution of education level, comparing with Census Table 4-3 Distribution of employment status, comparing with Census Table 4-4 Household income distribution, comparing with HIES Table 4-5 Finding on citizens awareness on Paurashava s services Table 4-6 Finding on citizen s perception, satisfaction with Paurashava s services Table 4-7 Finding on citizen s perception, importance of Paurashava s service (individual) Table 4-8 Finding on citizen s perception, importance of Paurashava s service (overall) Table 4-9 Findings from the matrixes of importance and satisfaction Table 4-10 List of services in each section of matrix (Figure 4-5) Table 4-11 Summary of high prioritised services from each analysis (total sample) Table 4-12 Willingness to pay the tax Table 4-13 Experience and willingness Table 5-1 Summary of gender wise results Table 5-2 Summary of category wise results List of figures Figure 3-1 Framework of matrix of importance and satisfaction... 8 Figure 4-1 Citizen s awareness on Paurashava s service (total sample) Figure 4-2 Citizen s satisfaction with Paurashava s service (total sample) Figure 4-3 Citizen s perception, importance of Paurashava s service (individual) (total sample) 16 Figure 4-4 Citizen s perception, importance of Paurashava s service (overall) (total sample) Figure 4-5 Matrix of importance and satisfaction (total sample)... 21

81 Strengthening Paurashava Governance Project Draft Report for Baseline survey Abbreviations and acronyms BBS HIES JICA LGD NOBIDEP PD SPGP Bangladesh Bureau of Statics Household Income and Expenditure Survey Japan International Cooperation Agency Local Government Division Northern Regional Bangladesh Integrated Development Project Project Director Strengthening Paurashava Governance Project List of local terms Paurashava Municipality

82 Strengthening Paurashava Governance Project Draft Report for Baseline survey 1 Introduction 1.1 Background Bangladesh is experiencing rapid urbanization. It is reported that by 2015 the number of urban poor will have grown by one million since 2008 despite the declining poverty rate on a national level. Mindful of such a rapid urbanization, the Bangladesh government has put forward a policy of revitalizing local economies by strengthening local administration and other means in its Sixth Five-Year Plan (2011/ /16) as part of its efforts to reduce poverty and achieve balanced development. In 2014, the Bangladesh government approved the National Urban Sector Policy, which is designed to strengthen urban governance as well as promote economic development with infrastructure development and urban environmental conservation, with a view to sustainable urbanization and a decentralized and participatory urban development process. In Bangladesh, local governments in urban areas are divided into City corporations and Paurashavas (municipalities), depending on the scales of their population and tax revenue. These urban local governments have a larger scope of responsibility than their rural counterparts. With limited service delivery by the central government, they assume such important functions as city planning, local infrastructure development, and the delivery of public services essential for local communities, including water supply and solid waste management. Unlike City corporations, which govern large cities, Paurashavas, which are located nearer to rural areas, are expected to play additional roles, including promoting local industries, invigorating physical distribution in rural areas, and serving as a centre for developing the local economy as a whole. Most of the Paurashavas, however, are unable to envision such roles intrinsic to local governments, because of both the lack of financial and human resources and the inadequate capacities of elected representatives and officials as well as municipal machinery. They lack the capacity to deliver public services based on a mid- to long-term strategy or development plan, and in many Paurashavas, municipal management is not efficient and service delivery is often haphazard. The situation is particularly serious in small Paurashavas. The Bangladesh government, recognizing both the importance of supporting small Paurashavas and the hitherto unaddressed need for developing a capacity development system for such Paurashavas, asked Japan for a technical cooperation project. On the Bangladesh government s request, JICA has started the technical cooperation called Strengthening Paurashava Governance Project (SPGP) since February 2014, in order to provide support to Paurashavas to improve their service level. 1.2 Objective The objective of this baseline survey was to check the status of Paurashava s residents satisfaction and expectation of the public services that were or should be provided by the Paurashavas. The survey was conducted as part of the SPGP activities. The results of this baseline survey will be fed in the strategy for strengthening Paurashava s governance prepared by Government of Bangladesh with the support of SPGP. 1

83 Strengthening Paurashava Governance Project Draft Report for Baseline survey 2 Methodology and Data Collection 2.1 Targeted Area/ Paurashava The SPGP project selected seven Paurashavas as the pilot intervening areas. In addition to these seven Paurashavas, three more Paurashavas have been selected as the control areas for the survey. The criteria for the selection were as follows: To select at least one pilot Paurashava for each Division; To select two pilot Paurashavas from the Paurashavas targeted in the JICA loan project, named the Northern Bangladesh Integrated Development Project (NOBIDEP), and those two Paurashavas are one from Category B and the other from Category C; To exclude the Paurashavas targeted in other projects related to the capacity development of Paurashava; and To select at least one Paurashava from each Paurashava category. Table 2-1 shows the list of sample Paurashava. Table 2-1 List of sample Paurashava for the survey S/N Pilot or Control Name of Division Name of District Name of Upazila Name of Paurashava (Category) 1 Pilot Barisal Barisal Barisal Bakerganj (B) 2 Pilot Chittagong Chandpur Chandpur Chengarchar (B) 3 Pilot Dhaka Kishorganj Kishorganj Pakundia (C) 1 4 Pilot Khulna Jhenaidah Jhenaidah Shoilkupa (A) 5 Pilot Rajshahi Pabna Pabna Atghoria (C) 6 Pilot Rangpur Kurigram Kurigram Ulipur (B) 1 7 Pilot Sylhet Sylhet Sylhet Kanaighat (C) 8 Control Khulna Jessore Jessore Keshabpur (A) 9 Control Chittagong Chittagong Chittagong Banshkhali (B) 10 Control Rajshahi Joypurhat Joypurhat Khetlal (C) Source: JICA Survey Team Note 1. Pakundi and Ulipur Paurashava are the Paurashavas from the NOBIDEP. 2.2 Sampling The random sampling was adopted for this survey. The sample size was 70 residents per Paurashava. Then the targeted sample size in total was 700. The JICA Survey Team took gender and geographic location aspects into consideration in order to make sample more impartial. The sampling number was determined on the basis of number of residents and gender disparity in each Ward of Paurashava based on the data of the Population and Housing Census 2011 (hereinafter Census 2011 ). Each Paurashava is divided into nine Wards as electoral zones. The team picked up the sample randomly by using the list of households withholding tax number in each Ward. The lists were obtained from the Paurashava authority. 2

84 Strengthening Paurashava Governance Project Draft Report for Baseline survey Table 2-2 shows the overall view of sample size. The final total sample size is 706. Table 2-2 Paurashava and gender-wise sample size S/N Name of Paurashava Female Male Total 1 Atgoria(C) Bakerganj(B) Banshkhali(B) Chengachar(B) Kanaighat(C) Keshabpur(A) Khetlal(C) Pakundia(C) Shoilkupa(A) Ulipur(B) Total Source: JICA Survey Team 2.3 Questionnaire (1) Framework The survey team looked into the Paurashava Act 2009 (hereinafter Act 2009 ) deeply to specify the services being provided or to be provided by the Paurashavas. Article 50 of Act 2009 defines Responsibility and Function of Municipality, and the second schedule of Act 2009 indicates Detail Functions of Municipality. The second schedule explains the 64 functions. Among those 64 functions, some functions are defined as mandatory functions and others as optional functions. In an unofficial English translated version of Act 2009, the mandatory function is written as Paurashavas shall do, and the optional function as Paurashavas may do. The survey team found 23 out of those 64 functions as mandatory function. Some mandatory functions have sub-functions. For example, one function called Public toilets has two sub-functions: the construction of Public toilets and the maintenance of Public toilets. Including those sub-functions, this survey covered 33 functions. First of all, the survey team researched the awareness. That is to say, the team checked to what a degree residents recognized that various services were provided by Paurashava. Then, the team collected responses on two types of residents perception on the Paurashava functions, which were: satisfaction and importance. In the context of this survey, satisfaction was referred to as to what extent the respondent was satisfied with the services, and importance as to what extent the service was important for the respondent. For both perceptions, the overall and individual aspects were collected. The overall aspect is means as the satisfaction earned from and importance given to the public service in total. The individual aspect means the levels of satisfaction and importance on the specific services separately. Table 2-3 shows the functions listed in second schedule of Act The underlined functions are mandatory for Paurashava. 3

85 Strengthening Paurashava Governance Project Draft Report for Baseline survey I) Public health 1. Responsibility for Health Systems 2. Insanitary Buildings 3. Waste Removal, Collection&Management 4. Public Toilet 5. Births, Deaths and Marriage Registration 6. Infectious Diseases 7. Promotion of Public Health 8. Hospitals and Dispensaries 9. Medical, Aid and Medical Education, etc. Table 2-3 Paurashavas Functions Listed in Paurashava Act 2009 II) Water supply & drainage III) Food and beverage IV) Animals 10. Water Supply 19. Articles of Food and 24. Animal Husbandry 11. Private Sources of beverage 25. Stray Animals Water-Supply 20. Milk Supply 26. Animal Homes and 12. Drainage 21. Public Markets Farms 13. Drainage Schemes 22. Private Markets 27. Registration of the 14. Bathing and Washing 23. Slaughter Houses Sale of Cattle Places 29. Dangerous Animals 15. Dhobi Ghats and 31. Disposal of carcasses Washer Man 16. Public Water Sources 17. Public Ferries 18. Public Fisheries V) Town planning VI) Building control VII) Streets VIII) Public safety 32. Master Plan 33. Site Development Schemes 34. Execution of Site Development Schemes 35. Erection and re-erection of buildings 36. Completion of Buildings, Alterations of Buildings, etc. 37. Regulation of Buildings 38. Public Streets 39. Streets 40. General Provisions about Streets 41. Street-Lightings 42. Street Watering 43. Traffic Control 44. Public Transportation 45. Fire Fighting 46. Civil Defence 47. Floods 48. Dangerous and Offensive Articles and Trades 49. Graveyard and Cremation Ground IX) Trees, parks, gardens and forests X) Education and culture XI) Social welfare X) Development 50. Arboriculture 51. Gardens 52. Open spaces 53. Forests 54. Nuisances Pertaining to Trees & Plantations 55. Tanks & Low-Lying areas 56. Education 57. Compulsory Education 58. General Provisions about Education 59. Culture 60. Libraries 61. Social Welfare 62. Development Plans 63. Community Development Planning 64. Commercial Schemes Source: Second Schedule of Paurashava Act 2009 Note 1: The underlined responsibility and function are mandatory for Paurashava. (2) Process The survey team developed the questionnaire in the following order: 1) the international consultants of the SPGP drafted the concept and the basic structure of the questionnaire; 2) the survey team developed the draft of the questionnaire; 3) the survey team conducted the pre-tests firstly on the English version in Singair Paurashava on 1 st of May, 2014, and secondly on the Bangla version in Pakundia Paurashava on 8 th of May, 2014; and 4) the survey team consulted the final draft with the Project Director (PD) of the SPGP to get his approval. (3) Overview The questionnaire had six sections: 1) basic information of the interview; 2) basic information of respondent; 3) perception on Paurashava services (individual response); 4) Perception on Paurashava service (overall response); 5) perception on Paurashava service (service quality); and 6) Willingness to pay the tax. Table 2-4 shows the summary of questionnaire. 4

86 Strengthening Paurashava Governance Project Draft Report for Baseline survey S/N Section Topic 1 A Basic Information of the interview 2 B Basic information of the respondent 3 C Perception on Paurashava service (individual response) 4 D Perception on Paurashava service (overall response) 5 E Perception on Paurashava service (service quality) Table 2-4 Summary Structure of Questionnaire Objective To record the information of interview, such as who conducted the survey in which Paurashava at what time To keep the basic information of respondents, such as age, gender, occupation, education level and livelihood status To collect the respondents perception, such as awareness, satisfaction and importance on Paurashavas service To gather the respondents priority on the Paurashava s service To obtain the respondents perception, on Paurashavas service quality, such as quality of service provider and service information 6 F Willingness to pay the tax To get the respondents willingness on tax payment if the quality of service improves Source: JICA Survey Team 2.4 Implementation setting and research method (1) Members and functions of the JICA Survey Team The JICA Survey Team was composed of one chief researcher, two assistant researchers, and ten enumerators. The two groups were headed by assistant researcher to conduct field survey efficiently. The chief researcher engaged in the tasks specified below accompanied by two assistant researchers and ten enumerators assigned by the international consultant. The tasks are as follows: Task 1. Preparing the survey, e.g. developing; Task 2. Collecting information from the residents; Task 3. Making data set; Task 4. Analysing collected information; Task 5. Identifying important services for the residents of Paurashavas; and Task 6. Preparing a survey report. Before visiting the Paurashavas, the chief researcher consulted the visit with the PD of PGSP and got his approval first. And then, the chief researcher called the mayors of the respective Paurashavas to inform him the team s visit. (2) Training of enumerators The chief researcher and the assistant researchers gave the lecture to the enumerators on the Act 2009, Paurashavas services, data collection and data entry strategies or techniques, and interpersonal communication. The enumerators also accompanied the pre-test of the questionnaire in order to get trained in the field. (3) Data entry The survey team used EPI DATA version 10 for the data entry. The assistant researcher prepared the template for data entry. Enumerators entered the data. The assistant researcher checked the quality of the deliverables from each enumerator. 5

87 Strengthening Paurashava Governance Project Draft Report for Baseline survey (4) Analysis The survey team used STATA for the data analysis. The assistant researcher prepared tables and figures for analysis and chief research analysed them. For the purpose of computation, the survey team used the codes assigned to different types of services. The list of codes can be found in Annex Research schedule Table 2-5 shows the schedule of the field survey and data entry. Table 2-5 Schedule of the survey S/N Month Week Day Team A Team B 1 April st pre-test in Singair Paurashava 1 st pre-test in Singair Paurashava 2 May nd pre-test in Pakundia Paurashava 2 nd pre-test in Pakundia Paurashava Ulipur Paurashava Pakundia Paurashava Atgharia Paurashava Bakerganj Paurashava Data entry Data entry 6 June Shailkupa Paurashava Khetlal Paurashava Keshabpur Paurashava Chengerchar Paurashava Bashkhali Paurashava Kanaighat Paurashava Data entry and data cleaning Data entry and data cleaning Survey: JICA Survey Team 6

88 3 Framework of Analysis 3.1 Measuring policy Strengthening Paurashava Governance Project Draft Report for Baseline survey The survey team researched mainly two aspects of perception on the services provided by Paurashavas, namely satisfaction and importance. Satisfaction means how much the local residents are satisfied with the Paurashava services. Importance means how important those services are for residents regardless of the degree of satisfaction. The survey team quantified those two aspects by applying four grade measurements. In the case of satisfaction, the respondents answered either 1) very dissatisfied; 2) dissatisfied; 3) satisfied; or 4) very satisfied. To the question on importance, the respondents replied either 1) very low; 2) low; 3) high; or 4) high. The average was used for analysis. In the case of importance, the average was calculated with the following equation. The similar equation was applied for the case of satisfaction. Average = (number of respondents very low 1 + number of respondents low 2 + number of respondents high 3 + number of respondents very high 4) / (number of total respondents number of respondents do not know number of respondents not applicable ) The following example shows how the average was calculated in this survey. For example: Average (importance): 3.09 = ( ) / ( ) Average (satisfaction): 1.91 = ( ) / ( ) Importance Do not Not Total Average Very low Low High Very high Know applicable Satisfaction Do not Not Very dissatisfied Dissatisfied Satisfied Very satisfied Know applicable 1 Total Average Note 1. When the respondent replied do not know to the question on Awareness, the option not applicable was applied for the question of satisfaction. Hereafter, average (importance) and average (satisfaction) are named importance degree and satisfaction degree in that order. 7

89 Strengthening Paurashava Governance Project Draft Report for Baseline survey 3.2 Measuring priorities The survey team used the Matrix of Importance and Satisfaction to measure the residents priority on the services. The degree of Importance is expressed by x-axis and satisfaction degree by y-axis. The services are divided into four sections by the average of both degrees, dot-line as shown in Figure 3-1. Each service item is plot in the matrix based on two scores calculated in the way shown in the previous section (3.1). High Satisfaction degree Section 2 Low importance/ High satisfaction Section 3 Low importance/ Low satisfaction Section 1 High importance/ High satisfaction Section 4 High importance/ Low satisfaction Source: JICA Survey Team Low Importance Degree High Figure 3-1 Framework of matrix of importance and satisfaction The analysis was done to define which service fitted into which section. Table 3-1 is the summary of interpretation of the matrix (Figure 3-1). The scores were calculated based on the distance from the intersection of auxiliary lines. The priorities were ranked in the following order: Section 4, Section 1 and 2, and Section 3. In other words, the improvement of services in the fourth section should be given high priority. As the auxiliary axes were lined out in an artificial manner, the service near the auxiliary axes should be carefully interpreted. Table 3-1 Interpretation on Matrix of Importance and Satisfaction Section Importance Satisfaction Interpretation 1 High High The service provider should continue the services in this section as they provide them now. 2 Low High The service provider can consider the reallocation of resource for the services in this section to others. 3 Low Low The service provider does not need to put additional effort for the services in this section. 4 High Low The service provider should concentrate on the services in this section to improve overall satisfaction. Source: JICA Survey Team 8

90 4 Findings of Analysis Strengthening Paurashava Governance Project Draft Report for Baseline survey 4.1 Socioeconomic Profiles of the Respondents The survey team checked the key socio-economic features of the respondents in this study: 1) age; 2) education; 3) occupation; and 4) income from the Paurashavas. The general profiles of the respondents were more or less similar to the representation in the Household Income and Expenditure Survey done by the Bangladesh Bureau of Statics (BBS) in 2010 (HIES 2010), and Census Age The average age of the respondents in this very study was In all categories of Paurashavas, the largest number of respondents of this survey belonged to two age groups: and years. Table 4-1 shows the respondents profile in terms of age with the distribution of age group in HIES This survey sample s main age group is slightly higher than the HIES s sample, as the survey covered only adult age. The larger number of samples in HIES is in the age group 0-9 and Range (year) Table 4-1 Distribution of age group, comparing with HIES 2010 This survey HIES 2010 Total Rural Urban Code Total Male Female Total Male Female Total Male Female Total Male Female over Average NA 1 NA NA NA NA NA NA NA NA Total Source: Based on GoB (2010) HIES 2010, Table 122 Note 1: NA means that the information is not available in the Table 122 of HIES Note 2: The dataset has one missing value for female s age information Education 9

91 Strengthening Paurashava Governance Project Draft Report for Baseline survey Seven categories of the educational level are used in this survey ranging from no class attended to master degree and above. Table 4-2 presents the summary of respondents profile in educational level and the distribution of Census 2011 s sample in education level. Except the category no class, the distribution of this survey sample is similar to the distribution pattern of urban area in Census 2011, as the first largest representative educational category is secondary and higher secondary, and the second is primary education. The Census 2011 data for Occupational Status of Population counts only the population aged 15 years and above and working, while the survey sample included the respondent who were not working. Education Level Table 4-2 Distribution of Education Level, Comparing with Census 2011 This survey Census 2011 Total Rural Urban Code Total Male Female Total Male Female Total Male Female Total Male Female 1 No class Primary Jr. Secondary Secondary H. Secondary Graduate Master Total Source: Based on GoB (2011) Census 2011, Socio-economic and Demographic Report, Table P12 Note 1. The secondary and higher secondary are grouped in the same category in the Census Occupation/ employment status Table 4-3 summarizes the occupational profile of respondents and shows the distribution of employment status in Census Family helper is the largest number of occupation of the respondents which are around 43% of the respondents and the second largest occupational representation is self-employee 1 (non-agriculture). The ration of family helper is different between this survey and Census 2011, because of different definitions of the term family helper. The Census 2011 presents that the first and second highest distribution in urban area are Employee and Self-employee 1 (non-agriculture), whereas those of rural area are Self-employee 2 (agriculture) and Self-employee 1 (non-agriculture) respectively. Excluding family helper, Self-employee 1 (non-agriculture) is the first largest group and Self-employee 2 (agriculture) the second in this survey. Thus, this survey sample s distribution on employment status has mixed patterns of urban and rural area. Table 4-3 Distribution of employment status, comparing with Census 2011 Employment This survey Census 2011 status 1 Total Rural Urban Code Total Male Female Total Male Female Total Male Female Total Male Female 1 Employer Employee Self-employee Self-employee Family helper Others Total Source: GoB (2011) Census 2011, Socio-economic and Demographic Report, Table P11 Note 1. Self-employee 1 means Self-employee (agriculture), and Self-employee 2 denotes Self-employee (non-agriculture). 10

92 Strengthening Paurashava Governance Project Draft Report for Baseline survey Income For this section, the unit of analysis was the family income as a whole, not the individual income of the respondents. Table 4-4 explains the respondent income condition and household income pattern in HIES The average income of total sample is BDT 10,403. The largest number of the respondents have family income that ranges between BDT 5,000 and 7,499 and the second largest group belongs to the BDT 10,000 to 12,499 income group. The survey sample has similar distribution to the HIES The largest ration is between 2,500-7,499 (this survey) or 7,999 (HIES 2010). Table 4-4 Household income distribution, comparing with HIES 2010 Code Range (BDT) Total Total Rural Urban , , , , , , , , , , Total Average 10, Source: Based on GoB (2010) HIES 2010 Table 1 Note 1. The classification of HIES 2010 is slightly different from this survey s one and up to 7,

93 Strengthening Paurashava Governance Project Draft Report for Baseline survey 4.2 Residents Perception on Paurashava Services Awareness on the service This section shows the result of question on residents awareness on the Paurashavas services related to its main functions. The survey team asked to the respondent Does Paurashava (PS)provide XXX service? XXX stood for any of the main functions of the Paurashavas. The respondent had the right to choose single answer from the following options: 1) yes; 2) no; and 3) do not know. The option 1) yes was coded (1), and other options were coded (0) to calculate the average. The higher the service was scored, the more the dwellers were aware the Paurashava did provide each service. The score 0.5 and more could imply the respective services were known to the majority of the respondents. Figure 4-1 displays the overview of residents awareness 1. The services with high score (0.5 and more) are Birth registration, infectious diseases, Public market (construction), Public transport (license), Public street (construction), Checking building plan, Public market (maintenance), Slaughter house, and public street (maintenance). These services with high score contain not only services which do not need big expenses but also those related to infrastructure. Birth Registration Infection Diseases Public Market (Build) Public Transportation (license) Public Street (Build) Bulding Plan Public Market (Maintain) Slaughter House Public Street (Maintain) Street Light Traffic regulation Private Market Arboliculture New Street Drainage (Build) Inspection Building Graveyards (Maintain) Public Toilet (Build) Traffic Contorl Drainage (Maintain) Waste Collection Civil Defence Road Maintenance Program Water Supply (Public) Waste Removal Water Supply (Private) Waste Management Inspection Site Public Toilet (Maintain) Public Transportation (Fare) Master Plan Graveyards (Registrate) Street Watering Average score: awareness of Pourashava's services (total sample) Source: JICA Survey Team Figure 4-1 Residents Awareness on Paurashavas Service (total sample) 1 The JICA Survey Team conducted the baseline survey on Paurashavas capacity to provide the services. The team of said baseline survey requested the Paurashavas officials to assess to what extent the Paurashavas provided each service. The survey team observed that more than two third of the sample Paurashavas defined the following services as Paurahava does not provide the service or Paurashava provides the service but very little : Inspection site, Inspection building, Authorization of new street, Establishment of Paurashava police, Graveyard (maintain), Water supply (private), Street watering, Public transportation (fare), and Private market. Please refer the report Capacity Development Needs Assessment Survey on Paurashavas for the detail information. For the reference, the index of correlation was 0.44 between the rate of Paurashava officials self-assessment and the rate of residents awareness on each service. 12

94 Strengthening Paurashava Governance Project Draft Report for Baseline survey Table 4-5 summarises the more detailed finding based on the average score of each group of analysis that were namely total sample, gender and the category of Paurashava, shown in the Table of Annex 2. Table 4-5 Finding on Residents Awareness on Paurashavas Services S/N Column 1 Score Services with high score 2 from the top rank Note Total 1 Total sample 0.36 Birth registration, Infectious diseases, Public market (building), Public transport (license), Public street (building), Checking building plan, Public market mandatory (maintain), Slaughter house, Public street (maintain) Gender 2 Female 0.32 Birth registration, Infectious diseases, Public market (building), Public street (building), Public transport (license), Checking building plan, Public street (maintain), Slaughter house 3 Male 0.40 Birth registration, Infectious diseases, Public market (building), Public transport (license), Checking building plan, Public market (maintain), Public street (building), Slaughter house, Public street (maintain), Private market Only about one third of services of functions for Paurashava are recognized to be in practice by residents. Men seem to be aware of the Paurashava s functions and works more than women are 4. Category 4 A 0.45 Birth registration, Infectious diseases, Building plan, Public street (build), Public transport (license), Public market (build), Slaughter house, Public street (maintain), Public market (maintain), Street light, Graveyards (maintain), Waste collection, New street (private) 5 B 0.40 Birth registration, Infectious diseases, Public market (build), Public street (build), Public transport (license), Building plan, Public market (maintain), Slaughter house, Public street (maintain), Street light Residents living in bigger Paurashavas seem to recognize the Paurashavas functions and efforts more than those in smaller ones 5. 6 C 0.28 Birth registration, Infectious diseases, Public market (build), Public transport (license), Public street (build), Building plan, Public market (maintain) All 3 7 All columns The scores on two main functions named birth registration and infectious diseases are the first and second highest in any group. Source: JICA Survey Team Note 1. Titles of the Column are extracted from the titles of column of Table (Annex 2). Note 2. The service with high score means the service scoring more than 0.5. Note 3. The team compared the score of Total, Gender and Category. Note 4. For the detail test result, please refer to Annex 7. The difference is statistically significant for 20 out of 33 functions. Note 5. For the detail test result, please refer to Annex 8. The difference is statistically significant for 7 out of 33 functions. 13

95 Strengthening Paurashava Governance Project Draft Report for Baseline survey Satisfaction on the service This section shows the results of the question on residents satisfaction on the Paurashavas services related to its main functions. The survey team asked the respondents How would you rate your satisfaction with the current XXX service provided by the Paurashavas? XXX stood for any of the functions of the Paurashavas. The respondents choose a single answer from the following options: 1) very dissatisfied; 2) dissatisfied; 3) satisfied; and 4) very satisfied. When the respondents selected the option do not know in the question on Awareness on the Paurashavas services, they were not requested to answer the question on satisfaction. The option 1); 2): 3) and 4) were coded (1), (2), (3), and (4) in series, and the other answers termed do not know and not applicable were coded as missing value. The average figures were calculated without counting those missing values. It meant that the higher the figure was scored, the more interviewees were satisfied with respective services. Figure 4-2 presents the overlook of residents satisfaction. The services with high sore (3.0 and more) and high levels of satisfaction are only Birth registration, Infection diseases, and Approval of new street in private land. Many of the services are below 2.5 and not at the satisfactory level. Birth Registration Infection Diseases New Street Public Transportation (license) Private Market Public Market (Build) Bulding Plan Public Market (Maintain) Master Plan Slaughter House Inspection Building Graveyards (Registrate) Road Maintenance Program Inspection Site Graveyards (Maintain) Arboliculture Public Street (Build) Traffic regulation Public Street (Maintain) Traffic Contorl Drainage (Maintain) Water Supply (Private) Civil Defence Waste Management Public Toilet (Maintain) Waste Collection Public Toilet (Build) Public Transportation (Fare) Street Light Drainage (Build) Waste Removal Street Watering Water Supply (Public) Average score: satisfaction with Pourashava's services (total sample) Source: JICA Survey Team Figure 4-2 Residents Satisfaction with Paurashavas Services (total sample) 14

96 Strengthening Paurashava Governance Project Draft Report for Baseline survey Table 4-6 summaries the more detailed finding on residents satisfaction based on the scores in the Table of Annex 3, showing the score of levels of satisfaction of each analytical group. Table 4-6 Finding on Residents Perception, Satisfaction with Paurashavas Services S/N Column 1 Score Services Note Total 1 Total sample 2.42 High sore (3.0 and more): Birth registration, Infection diseases, and Approval of new street in the private land. Lower score (2.0 and less): Water supply (public), Street watering, Waste removal, Drainage (building), and Street light Gender 2 Female 2.44 lower score (2.0 and less): Water supply (public), Waste removal, Street watering, Drainage (build) 3 Male 2.40 lower score (2.0 and less): Street watering, Water supply (public), Waste removal, Street light, Public transport (fare), Drainage (build) Category 4 A 2.49 lower score (2.0 and less): Street light, Street watering, Public transport (fare) 5 B 2.46 lower score (2.0 and less): Waste Removal The levels of satisfaction with the service items shown in the left are relatively high and further emphasis on these services may not be needed. For the same services, such as traffic regulation and civil defence, female respondents tended to demonstrate more satisfaction with the Paurashavas functions and services than male ddid 3. Residents living in bigger Paurashavas tended to be more satisfied with some of the Paurashavas services 4. 6 C 2.34 lower score (2.0 and less): Water supply (public), Street light, Street watering, Waste management, Waste removal, Drainage (build), Waste collection, Public toilet (maintain), Public toilet (build) All 2 7 All columns The scores on two main functions named birth registration and infectious diseases are the first and second highest in any group. In general, the residents of Paurashava were not satisfied with the current situation of Paurashavas services. Source: JICA Survey Team Note 1. Titles of the Column are extracted from the titles of column of Table (Annex 3) Note 2. The team compared the score of Total, Gender and Category. Note 3. For the detail test result, please refer to Annex 9. The differences found between the responses given from male and female respondents for some services like Traffic regulation and Civil defence are statistically significant. Note 4. For the detail test result, please refer to Annex 10. The differences among categories for some services like Waste removal and Waste management are statistically significant. 15

97 Strengthening Paurashava Governance Project Draft Report for Baseline survey Importance of the service The survey concerning the perception on importance of the services was conducted in two ways: 1) individual responses which the respondent answered the questions on each service individually, and 2) overall responses which the respondent selected five most important services from all services. (1) Individual response This section shows the result of question on residents expectations on the Paurashavas services related to its main functions. The survey team asked the respondent How would you rate the importance of Paurashava s service related to XXX function? XXX stood for any of the main functions of the Paurashava. The respondents were to choose a single answer from the options: 1) very low; 2) low; 3) high; and 4) very high. The survey team accepted the answer do not know. The option 1), 2), 3) and 4) were coded (1), (2), (3), and (4) respectively, and the other answers termed do not know or do not want to answer were coded as missing value. The average was estimated without counting missing value samples. The higher the figure of the service was scored, the more residents considered the respective Paurashavas function and service were important. The score 3.0 and more implied the respondents considered that the Paurashavas function and service were important, and for those that scored 3.5 and more, it was concluded that they thought services were very important. Figure 4-3 shows the overall picture of residents perception on the importance of Paurashava services. Only the service of Graveyards got less than 3 points and most of services were regarded as important by residents. In that sense, all the compulsory services stipulated in the Paurashava Act were recognized as important by residents. Public Street (Build) Infection Diseases Water Supply (Public) Street Light Birth Registration Public Street (Maintain) Public Toilet (Build) Public Toilet (Maintain) Civil Defence Drainage (Build) Arboliculture Road Maintenance Program Drainage (Maintain) Traffic regulation Public Transportation (license) Traffic Contorl Public Market (Maintain) Waste Removal Waste Management Public Market (Build) Water Supply (Private) Graveyards (Maintain) Master Plan Public Transportation (Fare) Slaughter House Waste Collection Inspection Building Private Market Street Watering Inspection Site Bulding Plan New Street Graveyards (Registrate) Average score: importance of Pourashava's services (total sample) Source: JICA Survey Team Figure 4-3 Residents Perception of Importance of Paurashavas Services (individual) (total sample) 16

98 Strengthening Paurashava Governance Project Draft Report for Baseline survey Table 4-7 explains the more detailed finding on said perceptions. The details of the scores are shown in the Table (Annex 4) Table 4-7 Finding on Residents Perceptions on Importance of Paurashavas Services (individual) S/N Column 1 Score Services with high scores 2 from the top Note Total 1 Total sample 3.34 Public street (build), Infectious diseases, Water In general, residents supply (public), Street light, and Birth registration considered that all the services to be provided by Paurashava by law were important in general. Gender 2 Female 3.31 Public street (build), Infectious diseases, Water supply (public) 3 Male 3.37 Public street (build), Water supply (public), Street light, Birth registration, Public street (maintain), Infectious diseases, Public toilet (build) Category 4 A 3.40 Public street (build), Infectious diseases, Street light, Public street (maintain), Water supply (public), Birth registration, Public toilet (maintain), Public toilet (build), Arboriculture, Civil defence, Traffic regulation, Graveyards (maintain) 5 B 3.34 Public street (build), Water supply (public), Street light, Birth registration, Infectious diseases, Public street (maintain) 6 C 3.32 Public street (build), Infectious diseases, Water supply (public) All 3 7 All columns The score of two main functions namely graveyards (registration) and new street (private) are the first and second lowest in all groups. For some services, male tended to think more that the Paurashavas services were important than female did 4. Residents in bigger Paurashavas tended to recognize more the importance of Paurashavas services than others in general 5. The services for graveyards (registration) and authorization of new street in private land were relatively less important for the residents. Source: JICA Survey Team Note 1. Titles of the Column are extracted from the titles of column of Table (Annex 4). Note 2. High scores are those scoring more than 3.5. Note 3. The team compared the score of Total, Gender and Category. Note 4. For the detail test result, please refer to Annex 11. The differences found between the responses from male and female respondents for some services like Public toilet and Public stree t are statistically significant. Note 5. For the detail test result, please refer to Annex 12. Although the differences between category B and C are not significant, for same services like Public toilet (maintaenance), Public streets (construction) the differences between category A and C, and between category A and C are statistically significant. (2) Overall responses The survey team asked the respondents Among the following options, please select the five most important services for your life. The respondents were allowed to make multiple responses from the list of options. 17

99 Strengthening Paurashava Governance Project Draft Report for Baseline survey The score of importance in this survey is shown by the share they obtained among different service. The percentage of each service item was calculated by dividing the number of respondents choosing the service by total sample number. For example, if 100 samples (respondents) selected service A as his or her choice, the score was 14%, which was equivalent to 100 samples divided by 706, the number of total samples. If the score of a service was more than 50%, it was interpreted that the majority of respondents thought the service was important. The higher the figure of the service was scored, the more interviewees preferred the particular service. Figure 4-4 presents the outlook of the overall responses on the question the five most important services. It is highly noticeable that according to the way this survey was conducted, residents preferences are very much concentrated on a limited number of services. The top six services with highest scores are Water supply (public), Drainage, Street lighting, Waste management, Public toilet, and Public streets. Water Supply Street-Lightings Drainage Waste Removal, Collection and Management Public Toilet Public Streets Streets No answer Graveyard and Cremation Ground Arboriculture Infectious Diseases Births, Deaths and Marriage Registration Civil Defense Traffic Control Private Sources of Water-Supply Master Plan Slaughter houses Public Markets Public Vehicles Execution of Site Development Schemes Street Watering Erection and re-erection of buildings Private Markets Completion of Buildings, Alterations of Buildings, etc Multiple response: importance (total sample) Source: JICA Survey Team Figure 4-4 Residents Perception of Importance of Paurashavas Services (overall) (total sample) 18

100 Strengthening Paurashava Governance Project Draft Report for Baseline survey Table 4-8 summarizes the more detailed findings based on the scores shown in the table (Annex 5). Table 4-8 Findings on Residents Perception on Importance of Paurashavas Services (overall) S/N Column Top five Services Note Total 1 1 Total sample 1. Water supply (public) (69.9) 2. Drainage (51.2) 3. Street lighting (51.2) 4. Waste management (47.4) 5. Public toilet (46.8) 2 6. Public street (46.8) 2 Gender 2 Female 1. Water supply (public) (67.6) 2. Street-lightings (51.3) 3. Public toilet (50.4) 4. Drainage (48.2) 5. Waste management (47.6) 3 Male 1. Water supply (public) (72.3) 2. Drainage (54.3) 3. Street-lightings (51.1) 4. Public street (48.3) 5. Waste management (47.1) Category 4 A 1. Water supply (public) (68.6) 2. Street-lightings (54.3) 3. Public toilet (53.6) 4. Drainage (53.6) 5. Waste management (52.9) 5 B 1. Water supply (public) (68.7) 2. Drainage (49.3) 3. Waste management (47.2) 4. Public streets (46.5) 5. Public toilet (44.7) 6 C 1. Water supply (public) (71.9) 2. Street-lightings (56.9) 3. Drainage (52.0) 4. Public streets (51.2) 5. Public toilet (45.6) All 3 7 All column The top five services in the other groups are more or less similar to the column Total. Source: JICA Survey Team Note 1. Titles of the Column are extracted from the titles of column of Table (Annex 5). Note 2. These services have the same score. Note 3. The survey team compared the score in total, gender and category. Water supply (public), Drainage, Street light, waste management and public (toilet) were identified as the priority services by citizens. The differences between female and male choices are more obvious in Public toilets and public streets. Water supply (public) is significantly the highest priority regardless of categories. 19

101 Strengthening Paurashava Governance Project Draft Report for Baseline survey Relation between importance and satisfaction The survey team analysed the residents priority on the basis of the matrix of importance and satisfaction. The explanation on how to interpret the matrix is provided in the section 3 entitled framework of analysis. In short, the quality of services in the section 4 of the matrix should be improved. Section 4 is the section where highly important services with low levels of satisfaction are identified. Table 4-9 explains the finding based on the score in the table (Annex 6). The services that ranked among the top five of all the samples in section 4 are Water supply (public), Street light, Waste removal, Drainage drainage (construction), and Public toilet (construction). Table 4-9 Findings from the Matrixes of Importance and Satisfaction S/N Column 1 Services with high score (Top five in section 4) Implication Total 1 Total sample 1. Water supply (public) (0.54) 2. Street light (0.46) 3. Waste removal (0.46) 4. Drainage (building) (0.44) 5. Public toilet (building) (0.39) Gender 2 Female 1. Water supply (public) (0.58) 2. Drainage (building) (0.47) 3. Street light (0.46) 4. Public toilet (building) (0.44) 5. Public toilet (maintain) (0.36) 3 Male 1. Water supply (public) (0.51) 2. Street light (0.47) 3. Waste removal (0.46) 4. Drainage (building) (0.43) 5. Public toilet (building) (0.36) Category 4 A 1. Street light (0.64) 2. Public toilet (building) (0.50) 3. Drainage (building) (0.45) 4. Water supply (public) (0.45) 5. Civil defence (0.42) 5 B 1. Water supply (public) (0.48) 2. Waste removal (0.46) 3. Public Transport (fare) (0.45) 4. Drainage (building) (0.43) 5. Street light (0.33) 6 C 1. Water supply (public) (0.65) 2. Street light (0.53) 3. Waste management (0.48) 4. Waste removal (0.46) 5. Drainage (building) (0.45) All 2 7 All columns Overall the services for water supply, street light, waste removal/ management, drainage (build), 3. Public Transport (fare) and civil defence are ranked Source: JICA Survey Team Note 1. Titles of the Column are extracted from the titles of column of Table (Annex 6). Note 2. The survey team compared the score in total, gender and category. In general, residents have high demand on those services, and Paurashavas are reqireed to strengthen these services. Residents have high demand on water supply regardless of gender difference. Females have higher demand for Public toilet. Residents have high demand for water supply regardless of category of Paurashavas. Drainage is required more in Category B and C. Resident in bigger city are thought to be more aware of civil defence and Traffic control (regulation). Waste removal/ management is required more in Category B and C. 20

102 Strengthening Paurashava Governance Project Draft Report for Baseline survey Figure 4-5 is the matrix of total sample and Table 4-10 summarises the services in each section. 3.5 Section 2 Section Satisfaction Section Section Importance Source: JICA Survey Team Note: Annex 2 presents the code of each service. Figure 4-5 Matrix of Importance and Satisfaction (total sample) Table 4-10 List of Services in Each Section of Matrix (Figure 4-5) Section 1 Section 2 Section 3 Section 4 High Importance Low Importance Low Importance High Importance High Satisfaction High Satisfaction Low Satisfaction Low Satisfaction Code Main Function Score Code Main Function Score Code Main Function Score Code Main Function Score 6 Birth_reg autho_newstreet street_watering water_public infection priv_market pub_trans_fare street_light trans_license pub_market_buil waste_col waste_remv pub_mrkt_main autho_building water_private drainage_buil main_program grave_regist grave_main Pub_toilet_buil inspect_building Pub_toilet_main master_plan waste_mgt slaughter_house civil_defence site_inspection pub_street_main drainage_main pub_street_buil traffic_control traffic_regulation arboliculture 0.10 Source: JICA Survey Team Note: Annex 2 presents the code of each service. 21

103 Strengthening Paurashava Governance Project Draft Report for Baseline survey Residents choices on Paurashava services Table 4-11shows the summary of findings in the case of total sample. Table 4-11 Summary of High Prioritised Services from Each Analysis (total sample) S/N Top ranking subjects in overall responses on Matrix of importance and satisfaction importance of the services (Annex 5) 1 perception (Section 4) (Annex 6) 2 1 Water supply Water supply (public) * 2 Street light Street light* 3 Drainage Waste removal* 4 Waste removal, collection and management Drainage (building) * 5 Public toilet Public toilet (building) * 6 Public streets Public toilet (maintain) * 7 Authorization of new streets Waste management* 8 No answer Civil defense* 9 Graveyard and cremation ground Public Street (maintain)* 10 Arboriculture Drainage (maintain)* 11 Infectious diseases Public street (build)* 12 Births registration Traffic control 13 Civil defence Traffic regulation 14 Traffic control Arboriculture Source: JICA Survey Team Note 1. Please refer to column Total. Note 2. Please refer to column Total and Section 4. The Section 4 in Importance-Performance Analysis identifies those services of high importance with low level of satisfaction, explained in section Services with* are relatively highly scored (more than 0.25). The left side of the above table is the ranking based on overall responses (multiple choices) on the importance of services. There are clear differences among the services up to 8th and others. The right side of the table shows the ranking of services in the Section 4, which means the group of very important but less qualified (less satisfied) services. Considering the substantial differences among upper rank services and others in the left side, we identified the following ten services as the services to be strengthened and entitled them as Priority services. 1) Water supply (public) 2) Street light 3) Waste removal 4) Drainage (construction) 5) Public toilet (construction) 6) Public toilet (maintenance) 7) Waste management 8) Public Street (maintenance) 9) Drainage (maintenance) 10) Public street (construction) 22

104 Strengthening Paurashava Governance Project Draft Report for Baseline survey 4.3 Willingness to pay for Paurashava services The survey team asked the respondents the following question. The current tax payment ration of this Paurashava is not very high. Do you think the tax payment ration will increase, i.e., more people pay tax properly, if people are guaranteed to receive better services? The survey team collected the figure of last year s tax collection rate. The holding tax is imposed on properties such as house, which is not the same as resident tax. The coverage of holding tax among citizens is large enough if most residents pay it accordingly. The respondent were to choose a single answer from the options: 1) yes; 2) no; and 3) do not know. The missing values occurred in Kethlal Paurashava, as this Paurashava was newly established and it has not collected tax yet. Table 4-12 shows the result of responses. More than 70% of the respondents show their willingness to pay the tax adequately. Table 4-12 Willingness to pay the tax Answer Count Percentage 1 Yes No Do Not know Missing value Total Source: JICA Survey Team Table 4-13 shows the result of responses taking the experiences of tax payment into account. It is worth noting that about 81% of respondents who did not pay taxes last year (fiscal year 2012) replied that more people will pay taxes if they are guaranteed to receive better services. Did you pay the tax last year? Table 4-13 Experience and Willingness Do you think tax payment ratio will increase, i.e., more people pay taxes properly, if people are guaranteed to receive better services? Yes No Do not know Missing Total Percent 1 Yes No Do not know Missing Total Source: JICA survey team Note 1. The percentages are estimated the number in the column Yes divided by the number in the column Total. 23

105 Strengthening Paurashava Governance Project Draft Report for Baseline survey 5 Conclusion This section firstly summarizes the findings, and secondly brings up the suggestions from those findings. 5.1 Summary of findings (1) Residents awareness of the services provided by Paurashava Only about one third of services identified as mandatory functions of Paurashavas are recognized to be in practice by residents. This is not only because residents are unaware of the existence of services but also Paurashavas do not always conduct the services which are defined as mandatory in the Paurashava Act. (2) Residents satisfaction with the services provided by Paurshava In the four grade evaluation on residents satisfaction, the average of the all services is It can be interpreted that residents satisfaction is not very high considering that 2 and 3 mean dissatisfied and satisfied respectively. Combining the findings of (1) and (2), it can conclude that the current situation of insufficient provision of services by Paurashavas needs to be improved. (3) Residents recognition of importance of services provided by Paurshava This survey team used two methods to measure residents recognition of importance: individual and overall response. In the former, the team asked residents satisfaction on all the compulsory Paurashava functions individually, and in the latter, the team inquired what each resident thought as the five most important Paurashava functions. In other words, individual response confirmed the importance in absolute term, and overall response identified the importance of various services in relative sense. In the results of individual response, most of the services are regarded as important. The average of the all services is 3.34 and all the services except Graveyard (registration) get over 3.0 in the four grade evaluation on residents recognition of importance. The results of overall response revealed a difference of relative importance among services. (4) Identification of services to be highly prioritized The following ten services are ranked as high priorities in the two studies: 1) Comparison of importance among core functions; and 2) Matrix of Importance and Satisfaction. It can be concluded that residents satisfaction with Paurashavas services can be enhanced if Paurashavas improve the quality of those services. 1) Water supply (public) 2) Street light 3) Waste removal 4) Drainage (building) 5) Public toilet (building) 6) Public toilet (maintain) 7) Waste management 8) Public Street (maintain) 9) Drainage (maintain) 24

106 Strengthening Paurashava Governance Project Draft Report for Baseline survey 10) Public street (build) (5) Possibility of gender difference in residents preference on services In general, the differences by gender are not substantial, as shown in the following table. There is no major difference between female and male survey respondents on awareness, satisfaction and importance of the Paurashavas services. Table 5-1 Summary of Gender-Wise Results Gender Awareness 1 Satisfaction 1 Importance 1 Female Low (0.32) High(2.44) Low (3.31) Male High (0.40) Low (2.40) High (3.37) Source: JICA Survey Team Note 1. The figure of each cell is taken from the line average and the column total sample in Annex 3 (Awareness), Annex 4 (Satisfaction), and Annex 5 (Importance). High and low is relative in comparing variables between male and female s mean value. For a more detailed comparison, please refer to Annex 9 and Annex 11. For some services, however, the gender-wise results (Table 4-5, Table 4-6, and Table 4-7) show the differences between female and male s responses are significant. For example, female seem to put more importance on public toilets than men did in two studies: 1) multiple answers on importance of the services; and 2) matrix of importance and satisfaction perception. This can imply that the approaches taken for improving some specific services should not be exactly the same for women and men. (6) Category of Paurashava may affect residents demands. As shown in Table 5-2, there is not much difference on satisfaction and importance among the different categories of Paurashavas. However, there is noticeable difference on awareness among the categories. The reason is not clear but it is possible that awareness should be much higher level than 0.45 to have residents feel highly satisfied with the services and the quality of services is also important for gaining high satisfaction of residents. Table 5-2 Summary of Category-Wise Results Category Awareness 1 Satisfaction 1 Importance 1 A B C Source: JICA Survey Team Note 1. The figure of each cell is taken from the line average and the column total sample in Annex 3 (Awareness), Annex 4 (Satisfaction), and Annex 5 (Importance). High and low is relative in comparing variables between male and female s mean value. For a more detailed comparison, please refer to Annex 10 and Annex 12. Besides the above-mentioned general difference, there is an interesting finding from the analysis of Comparison of importance among core functions (Table 4-8) and the Matrix of Importance and Satisfaction (Table 4-9). The priority on the service of Civil defense and Traffic control (regulation) increases incrementally from Category C, B and finally A. The service on civil defense is counted as the fifth highest priority services for Category A Paurashava in the Matrix of Importance and Satisfaction. A typical Category A Paurashava is highly populated with unfamiliar face and see more traffic congestion than other categories. This implies that the category of Paurashava may affect residents demand. For example, the residents of Category B and C Paurashava may require services on basic needs, while those in Category A Paurashavas may demand more service on security and safety. 25

107 Strengthening Paurashava Governance Project Draft Report for Baseline survey (7) Residents are willing to pay tax if the quality of services is improved. The survey team asked the respondents the following question: The current tax payment ratio of this Paurashava is not very high. Do you think the tax payment ratio will increase, i.e., more people pay taxes properly, if people are guaranteed to receive better services? More than 70% of the respondents shown their willingness to pay taxes. Furthermore, about 81% of respondents, who did not pay tax last year (fiscal year 2012), replied that more people will pay taxes if they are guaranteed to receive betters services. Although the respondents answers may not be exactly the same as what they actually do, the answers indicate at least some potential to increase tax collection that will lead to an increase in the Paurashava s revenue. 26

108 Strengthening Paurashava Governance Project Draft Report for Baseline survey 5.2 Suggestion from the findings Based on the findings above, the JICA Expert Team proposes the following recommendations on formulating the Strategy for Paurashava s Capacity Development: (1) Paurashavas should improve the capacity to provide the services on the following: Water supply; Drainage; Street light; Waste management, Public toilet and Public streets in priority. Considering the insufficiency of personnel and financial resources currently faced by Paurasahvas, it is recommended that Paurashavas concentrate on selected the services. The findings of this survey revealed that high priority should be placed on the following 10 services: ; Street light; removal; (construction); public toilet (construction), (maintenance), management; (maintenance), (maintenance), Public street (construction).improvement in those services can help increase residents satisfaction with all the services provided by Paurashavas. Therefore, the ten services above need to be emphasized in future capacity building of elected representatives and staff of Paurashavas. In reality, however, necessity and feasibility should be scrutinized, as the survey was entirely based on the voices of residents who were not familiar with the administrative aspects of Paurashavas. (2) Increasing residents satisfaction through better services supported by increasing revenue At moment, the situation of holding tax collection varies among pilot Paurshavas. According to another survey conducted by JICA Expert Team, the average annual rate for the last three fiscal years is over 65% in four Paurashavas in contrast to less than 33% in the other three Paurashavas, out of which two belong to category C and one to category B 2. This can imply that the Paurashavas, especially those of category B and C have room to increase their own revenues from adequate holding tax collection. At the same time, residents willingness to pay taxes was confirmed to a certain extent, with the precondition that the services are provided properly, although respondents answers may not be exactly the same as their actual behaviour. Such increase in revenue can be used for the implementation of services of high priority as confirmed in the survey. Thus to improve the capacity to provide the key services listed in (1), might become the leverage to bring about a positive cycle of good services leading to satisfied residents and eventually to increasing residents support to the local government. 2 The average annual holding tax collection rates for the last three fiscal years are approximately: Shailkupa 73% ; Bakerganj 67%; Sengarchar 83%; Ulipur 27%; Atghoria 33%; Kanaighat 10%; and Pakundia 66%. 27

109 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 1 Codes of the services 1. Codes for single response Code Main Functions Abbreviation 1 Waste Removal waste_remv 2 Waste Collection waste_col 3 Waste Management waste_mgt 4 Public Toilet (Build) Pub_toilet_buil 5 Public Toilet (Maintain) Pub_toilet_main 6 Birth Registration Birth_reg 7 Infectious Diseases Infection 8 Water Supply (Public) water_public 9 Water Supply (Private) water_private 10 Drainage (Build) drainage_buil 11 Drainage (Maintain) drainage_main 12 Public Market (Build) pub_market_buil 13 Public Market (Maintain) pub_market_main 14 Private Market priv_market 15 Slaughter House slaughter_house 16 Master Plan master_plan 17 Inspection Site site_inspection 18 Bulding Plan autho_building 19 Inspection Building inspect_building 20 Public Street (Build) pub_street_buil 21 Public Street (Maintain) pub_street_main 22 Road Maintenance Program main_program 23 New Street autho_newstreet 24 Street Light street_light 25 Street Watering street_watering 26 Traffic Contorl traffic_control 27 Traffic regulation traffic_regulation 28 Public Transportation (license) pub_trans_license 29 Public Transportation (Fare) pub_trans_fare 30 Civil Defence civil_defence 31 Graveyards (Maintain) grave_main 32 Graveyards (Registrate) grave_regist 33 Arboliculture arboliculture Source: JICA Survey Team 2. Codes for multiples responses Code Main functions Code Main functions 1 Waste Removal, Collection & Management 13 Erection and re-erection of buildings 2 Public Toilet 14 Completion and Alterations of Buildings, etc 3 Births, Deaths and Marriage Registration 15 Public Streets 4 Infectious Diseases 16 Streets 5 Water Supply 17 Street-Lightings 6 Private Sources of Water-Supply 18 Street Watering 7 Drainage 19 Traffic Control 8 Public Markets 20 Public Vehicles 9 Private Markets 21 Civil Defence 10 Slaughter houses 22 Graveyard and Cremation Ground 11 Master Plan 23 Arboriculture 12 Execution of Site Development Schemes Source: JICA Survey Team 28

110 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 2 Table: summary of score (awareness degree) I 1 Total Female Male A B C II Main function Score Main function Score Main function Score Main function Score Main function Score Main function Score Birth Registration Infection Diseases Public Market (Build) PublicTransport (license) Public Street (Build) Birth Registration Infection Diseases Public Market (Build) Public Street (Build) PublicTransport (license) Building Plan 0.67 Building Plan Public Market (Maintain) 0.60 Public Street (Maintain) Birth Registration Infection Diseases Public Market (Build) PublicTransport (license) Birth Registration Infection Diseases Building Plan Building Plan Slaughter House 0.54 Slaughter House Public Street (Maintain) Street Light Traffic regulation Public Market (Maintain) Traffic regulation 0.46 Public Market (Maintain) Public Street (Build) Slaughter House Public Street (Maintain) 0.74 Public Street (Build) PublicTransport (license) Public Market (Build) Slaughter House Public Street (Maintain) Public Market (Maintain) Birth Registration Infection Diseases Public Market (Build) Public Street (Build) PublicTransport( license) Birth Registration Infection Diseases Public Market (Build) PublicTransport (license) Public Street (Build) Building Plan 0.71 Building Plan 0.58 Public Market (Maintain) Slaughter House Public Street (Maintain) Public Market (Maintain) Public Street (Maintain) Slaughter House Private Market 0.50 Street Light 0.59 Street Light 0.52 Private Market Arboriculture 0.38 Street Light Private Market 0.38 Street Light 0.35 New Street Arboriculture 0.37 New Street New Street Drainage (Build) Inspection Building Graveyards (Maintain) Inspection Building Traffic Control Graveyards (Maintain) 0.31 Private Market 0.26 Drainage (Build) Public Toilet (Build) Traffic regulation Graveyards (Maintain) Waste Collection 0.52 Traffic regulation 0.46 Traffic regulation Arboriculture 0.44 New Street New Street 0.50 Drainage (Build) 0.40 Arboriculture Arboriculture 0.36 Inspection Building Drainage (Build) 0.38 Private Market 0.45 Drainage (Maintain) 0.50 Private Market Inspection Building Public (Build) Toilet Inspection Building Graveyards (Maintain) Public Toilet (Build) 0.36 Arboriculture 0.40 New Street 0.36 Street Light

111 Strengthening Paurashava Governance Project Draft Report for Baseline survey I 1 Total Female Male A B C II Main function Score Main function Score Main function Score Main function Score Main function Score Main function Score 18 Public (Build) Toilet 0.29 Drainage (Build) Traffic Control 0.27 Civil Defense Drainage (Maintain) Waste Collection Road Maintenance Civil Defense Water Supply (Public) Waste Removal Water Supply (Private) Waste Management 28 Inspection Site Public Toilet (Maintain) PublicTransport (Fare) Public Toilet (Build) Water Supply (Private) Water Supply (Public) Waste Collection Drainage (Maintain) Road Maintenance Graveyards (Maintain) Drainage (Maintain) Road Maintenance Waste Collection Traffic Control 0.27 Water Supply (Private) Water Supply (Public) Inspection Building Road Maintenance Traffic regulation 0.39 Traffic Control Waste Removal 0.24 Traffic Control Waste Management Water Supply (Public) Public Toilet (Build) Waste Management 0.19 Waste Removal 0.14 Civil Defense 0.22 Inspection Site Inspection Site Waste Management PublicTransport (Fare) Public Toilet (Maintain) Public Toilet (Maintain) Drainage (Maintain) Graveyards (Maintain) 0.36 Civil Defense Waste Collection 0.26 Road Maintenance Drainage (Build) Civil Defense Traffic Control Waste Removal Civil Defense Inspection Site 0.19 Waste Removal Master Plan 0.08 Master Plan Graveyards(Reg istration) 33 Street Watering Street Watering 0.05 Graveyards(Reg istration) Water Supply (Private) Master Plan 0.11 PublicTransport (Fare) Graveyards(Re gistration) 0.04 Street Watering 0.06 Public Toilet (Maintain) Graveyards(Reg istration) 0.10 Master Plan 0.09 Water Supply (Public) Public Toilet (Maintain) Waste Management Water Supply (Private) Drainage (Maintain) Road Maintenance PublicTransport (Fare) Waste Collection Waste Removal Inspection Site Master Plan 0.12 PublicTransport (Fare) 0.08 Street Watering 0.08 Street Watering 0.08 PublicTransport (Fare) 0.06 Graveyards(Regi stration) Water Supply (Private) Water Supply (Public) Inspection Site 0.08 Public Toilet (Maintain) Waste Management Master Plan 0.04 Graveyards(Reg istration) Street Watering 0.02 Average 0.36 Average 0,32 Average 0.40 Average 0.45 Average 0.40 Average 0.29 Source: JICA Survey Team NOTE 1. In the line I, each heading means as follows: 1) Total: samples in total; 2) Female: female samples; 3) Male: male samples; 4) A: samples in Category A Paurashava; 5) B: samples in Category B Paurashava; and 6) C: samples in Category C Paurashava 30

112 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 3 Table: summary of score (satisfaction degree) I 1 Total Female Male A B C II Main function Score Main function Score Main function Score Main function Score Main function Score Main function Score 1 2 Birth Registration Infectious Diseases Birth Registration Infectious Diseases Birth Registration Infectious Diseases 3 New Street 3.01 New Street 3.03 New Street PublicTranspor t(license) 2.99 Public Transport(licen se) 5 Private Market 2.97 Private Market Public Market (Build) 2.95 Public Market (Build) Private Market PublicTranspor t(license) Public Market (Build) 7 Building Plan 2.91 Building Plan 2.93 Building Plan PublicMarket( Maintain) 9 Master Plan Slaughter House Inspection Building Graveyards(Re gistration) Road Maintenance 2.85 Master Plan PublicMarket( Maintain) Slaughter House Inspection Building 2.86 PublicMarket( Maintain) Slaughter House Infection Diseases Birth Registration Public Market (Build) PublicTranspor t(license) Birth Registration Infectious Diseases Birth Registration Infectiousf Diseases New Street 3.05 Private Market PublicTransport (license) New Street 3.04 Private Market 2.94 PublicTranspor t(license) PublicMarket (Build) 2.96 Private Market 3.01 Building Plan 2.92 New Street 2.93 PublicMarket( Maintain) Building Plan Master Plan Inspection Site Inspection Site Graveyards (Maintain) 16 Arboriculture Public (Build) Street Graveyards(Re gistration) Road Maintenance Arboriculture Traffic regulation Graveyards (Maintain) Inspection Building Graveyards(Re gistration) Road Maintenance Graveyards(Re gistration) Slaughter House Public (Build) Market PublicMarket( Maintain) Building Plan PublicMarket( Maintain) Master Plan 2.73 Master Plan Inspection Building Inspection Site 2.66 Slaughter House Inspection Site 2.45 Graveyards (Maintain) 2.39 Arboriculture Public (Build) Street Graveyards (Maintain) Inspection Building Road Maintenance Graveyards(Reg istration) Road Maintenance Inspection Building Slaughter House Road Maintenance Graveyards(Re gistration) Inspection Site 2.51 Inspection Site Master Plan 2.56 Arboriculture Waste Management Drainage (Maintain) Traffic regulation Public (Build) Street Graveyards (Maintain) Arboriculture Traffic regulation

113 Strengthening Paurashava Governance Project Draft Report for Baseline survey I 1 Total Female Male A B C II Main function Score Main function Score Main function Score Main function Score Main function Score Main function Score Traffic regulation Public Street (Maintain) Public (Build) Street Public Street (Maintain) Traffic Control 2.18 Civil Defense Drainage (Maintain) Water Supply (Private) 2.17 Traffic Control Civil Defense Waste Management Public Toilet (Maintain) Waste Collection Public (Build) Toilet PublicTranspor t (Fare) Drainage (Maintain) Water Supply (Private) Public Toilet (Maintain) Waste Management PublicTranspor t (Fare) Waste Collection Public (Build) Toilet Traffic regulation Drainage (Maintain) Water Supply (Private) Public Street (Maintain) 2.21 Public (Build) Street 2.42 Graveyards (Maintain) Arboriculture 2.30 Traffic Control Traffic Control Waste Management Public Toilet (Maintain) Public (Build) Toilet Waste Collection Public Street (Maintain) Water Supply (Private) Public Toilet (Maintain) Traffic regulation Public Toilet (Maintain) Drainage (Maintain) Public Street (Maintain) Waste Management 2.22 Public (Build) Street Public Street (Maintain) PublicTranspor t(fare) Civil Defense Traffic Control Civil Defense Traffic Control 2.16 Street Light Civil Defense 2.06 Civil Defense Street Light 1.99 Street Light Drainage (Build) 1.98 Drainage (Build) Waste Collection Drainage (Build) Public Transport (Fare) Street Light Waste Removal 1.95 Waste Removal 1.97 Waste Removal Street Watering 1.93 Street Watering Water Supply (Public) 1.91 Water Supply (Public) Water Supply (Public) Water Supply (Public) Drainage (Build) Waste Removal 2.04 Public (Build) Toilet PublicTranspor t (Fare) Street Watering 1.91 Public (Build) Toilet Water Supply (Private) Waste Collection Drainage (Build) Water Supply (Public) Water Supply (Private) Drainage (Maintain) Public (Build) Toilet Public Toilet (Maintain) Waste Collection Drainage (Build) Waste Removal Waste Management Street Watering 2.00 Street Watering 1.85 PublicTransport (Fare) 1.90 Street Watering 1.89 Street Light 1.89 Waste Removal Street Light 1.82 Water Supply (Public) Average 2.42 Average 2.44 Average 2.40 Average 2.49 Average 2.46 Average 2.34 Source: JICA Survey Team NOTE 1. In the line I, each heading means as follows: 1) Total: samples in total; 2) Female: female samples; 3) Male: male samples; 4) A: samples in Category A Paurashava; 5) B: samples in Category B Paurashava; and 6) C: samples in Category C Paurashava

114 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 4 Table: summary of score (importance degree) I 1 Total Female Male A B C II Main function Score Main function Score Main function Score Main function Score Main function Score Main function Score 1 Public Street Public Street Public Street Public Street Public Street Public Street (Build) (Build) (Build) (Build) (Build) (Build) Infectious Infectious Water Supply Infectious Water Supply Infectious Diseases Diseases (Public) Diseases (Public) Diseases Water Supply Water Supply Water Supply Street Light 3.54 Street Light 3.62 Street Light 3.52 (Public) (Public) (Public) Street Light 3.51 Birth Birth Public Street Birth Birth Registration Registration (Maintain) Registration Registration Birth Public Street Water Supply Infection 3.51 Street Light Registration (Maintain) (Public) Diseases 3.50 Street Light Public Street Public Street Infectious Birth Public Street Public Street (Maintain) (Maintain) Diseases Registration (Maintain) (Maintain) Public Toilet Public Toilet Public Toilet Road 3.46 Civil Defense Drainage (Build) 3.47 (Build) (Build) (Maintain) Maintenance Public Toilet Public Toilet Drainage Public Toilet Public Toilet Public Toilet (Maintain) (Maintain) (Build) (Build) (Build) (Build) Civil Defense 3.44 Public Toilet Public Toilet Public Toilet Drainage Arboriculture (Build) (Maintain) (Maintain) (Build) Drainage (Build) 3.43 Arboriculture 3.40 Civil Defense 3.46 Civil Defense 3.54 Arboriculture 3.43 Civil Defense Arboriculture Road Maintenance Drainage (Maintain) Traffic regulation PublicTransport (license) Traffic Control Public Market(Maintai n) Drainage (Build) Traffic regulation Water Supply (Private) Drainage (Maintain) 3.37 Road Maintenance Arboriculture Traffic Control Waste Removal 3.35 PublicTransport (license) Road Maintenance Waste Management Drainage (Maintain) 3.34 Waste Removal Public Market(Maintai n) PublicTransport (license) Public (Build) Market Waste Management Traffic regulation Graveyards (Maintain) 3.54 Civil Defense 3.43 Public Toilet (Maintain) Waste Removal 3.38 Traffic Control Slaughter House 3.49 Traffic Control 3.37 Master Plan Drainage (Maintain) Water Supply (Private) PublicTransport (license) Public Market(Maintai n) Drainage (Build) Drainage (Maintain) Road Maintenance Public Transport (Fare) Public (Build) Waste Management Market PublicTranspor t(license) Waste Management Drainage (Maintain) Public Market(Maintai n) Traffic regulation

115 Strengthening Paurashava Governance Project Draft Report for Baseline survey I 1 Total Female Male A B C II Main function Score Main function Score Main function Score Main function Score Main function Score Main function Score 19 Public Waste Waste PublicTransport( 3.35 Market(Maintai 3.31 Traffic Control Management Management license) n) 3.33 Arboriculture Public (Build) Market Water Supply (Private) Graveyards (Maintain) Master Plan PublicTransport (Fare) Public (Build) Graveyards (Maintain) Market 3.30 Master Plan Waste Removal 3.30 PublicTransport (Fare) Slaughter House 3.27 Traffic regulation Graveyards (Maintain) Waste Collection PublicTransport (Fare) Road Maintenance Public (Build) Market PublicTransport (Fare) Graveyards (Maintain) Public Market(Maintain ) Traffic regulation 3.33 Waste Removal Master Plan 3.35 Waste Collection Traffic Control 3.35 Water Supply (Private) 25 Slaughter House 3.30 Master Plan 3.27 Slaughter House 3.33 Waste Removal 3.33 Master Plan Waste Collection Inspection Building Private Market 3.21 Waste Collection Private Market 3.16 Inspection Building Water Supply (Private) Inspection Building Waste Collection Inspection Building Slaughter House 3.26 Public Market (Build) Water Supply (Private) Waste Collection Public Transport (Fare) Slaughter House Graveyards (Maintain) Building Plan 3.24 Private Market Private Market 3.25 Inspection Site 3.23 Private Market 3.24 Street Watering Street Watering 3.18 Street Watering 3.14 Street Watering 3.23 Street Watering 3.21 Inspection Building 30 Inspection Site 3.17 Inspection Site 3.13 Building Plan 3.23 Private Market 3.14 Inspection Site Building Plan 3.16 Inspection Building 31 Building Plan 3.17 Building Plan 3.11 Inspection Site 3.20 Building Plan 3.03 Street Watering 3.17 Inspection Site New Street 3.05 New Street 3.04 New Street 3.05 New Street 2.94 New Street 3.04 New Street Graveyards(Reg istration) 2.88 Graveyards(Reg istration) 2.92 Graveyards(Reg istration) 2.85 Graveyards(Reg istration) 2.77 Graveyards(Regi stration) 2.89 Graveyards(Re gistration) Average 3.34 Average 3.31 Average 3.37 Average 3.40 Average 3.34 Average 3.32 Source: JICA Survey Team NOTE 1. In the line I, each heading means as follows: 1) Total: samples in total; 2) Female: female samples; 3) Male: male samples; 4) A: samples in Category A Paurashava; 5) B: samples in Category B Paurashava; and 6) C: samples in Category C Paurashava

116 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 5 Table: summary of score (importance from overall responses) I 1 Total Female Male A B C II Main function Score Main function Score Main function Score Main function Score Main function Score Main function Score 1 Water Supply Water Supply Water Supply Water Supply Water Supply Water Supply (Public) (Public) (Public) (Public) (Public) (Public) 2 Drainage 51.2 Street-Lightings 51.3 Drainage 54.3 Street-Lightings 54.3 Drainage 49.3 Street-Lightings Street-Lightings 51.2 Public Toilet 50.4 Street-Lightings 51.1 Public Toilet Waste Management 5 Public Toilet 46.8 Waste Management 47.2 Drainage Drainage 48.2 Public Streets 48.3 Drainage 53.6 Public Streets 46.5 Public Streets 51.2 Waste Management 47.6 Waste Management 47.1 Waste Management 52.9 Public Toilet 44.7 Public Toilet Public Streets 46.8 Public Streets 45.4 Public Toilet 43.1 Public Streets 38.6 Street-Lightings 44.0 Waste Management 7 New Streets 34.5 New Streets 30.7 New Streets 38.3 New Streets 29.3 New Streets 34.9 New Streets No answer 21.0 No answer 23.7 No answer 18.3 Graveyard 21.4 No answer 26.4 No answer Graveyard 19.0 Graveyard 20.0 Graveyard 18.0 Arboriculture 19.3 Graveyard 20.8 Graveyard Arboriculture 12.6 Arboriculture Infectious Diseases Births Registration Infectious Diseases Births Registration Births Registration 12.9 Infectious Diseases 17.9 Births Registration 13.2 Civil Defense 12.3 Civil Defense 17.1 Traffic Control Infectious Diseases 12.3 Births Registration Infectious Diseases 11.7 Traffic Control 12.1 Arboriculture 12.0 Arboriculture 10.0 Births Infectious 13 Civil Defense 11.4 Civil Defense 10.4 Traffic Control Civil Defense 9.6 Registration Diseases Water Supply 14 Traffic Control 10.9 Traffic Control 10.1 Arboriculture Civil Defense 10.2 Traffic Control 8.9 (Private) Water Supply Water Supply Water Supply Water Supply Master Plan 7.4 Street Watering (Private) (Private) (Private) (Private) Water Supply 16 Master Plan 6.2 Master Plan No answer 5.7 Master Plan 7.4 Master Plan 6.0 (Private) 17 Slaughter houses 4.8 Public Vehicles 4.8 Slaughter houses 6.0 Slaughter houses 5.0 Public Vehicles 6.7 Slaughter houses 18 Public Markets 4.7 Public Markets 4.2 Public Markets 5.1 Public Markets 4.3 Public Markets 5.3 Public Markets

117 Strengthening Paurashava Governance Project Draft Report for Baseline survey I 1 Total Female Male A B C II Main function Score Main function Score Main function Score Main function Score Main function Score Main function Score 19 Public Vehicles 4.3 Slaughter houses 3.7 Public Vehicles 3.7 Master Plan 4.3 Slaughter houses 3.9 Inspection Site Inspection Site 2.6 Street Watering 2.8 Inspection Site 3.1 Public Vehicles 2.9 Inspection Site 2.5 Public Vehicles Street Watering 2.6 Inspection Site 2.0 Street Watering 2.3 Inspection Site 2.1 Street Watering 1.8 Building Plan Building Plan 1.3 Building Plan 1.7 Building Plan 0.9 Inspection Building 1.4 Building Plan 1.4 Street Watering Private Markets 0.9 Private Markets 1.1 Private Markets 0.6 Private Markets 0.7 Private Markets 0.7 Private Markets 1.1 Inspection Inspection Inspection Inspection Inspection Building Plan Building Building Building Building Building Source: JICA Survey Team NOTE 1. In the line I, each heading means as follows: 1) Total: samples in total; 2) Female: female samples; 3) Male: male samples; 4) A: samples in Category A Paurashava; 5) B: samples in Category B Paurashava; and 6) C: samples in Category C Paurashava

118 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 6 Table: summary of score (matrix importance and satisfaction) I 1 Total Female Male A B C II 2 S Main function Score S Main function Score S Main function Score S Main function Score S Main function Score S Main function Score 1 1 6_Birth_reg _Birth_reg _Birth_reg _infection _Birth_reg _Birth_reg _infection _infection _infection _Birth_reg _infection _infection _pub_trans_li cense _pub_market _main _main_progra m _autho_newst reet _pub_trans_li cense _main_progra m _autho_newst reet _pub_trans_li cense _pub_market _buil _pub_market _main _priv_market _main_progra m _priv_market _autho_buildi ng _pub_market _buil _autho_buildi ng _pub_market _buil _autho_newst reet _pub_trans_li cense _pub_market _main _slaughter_h ouse _pub_market_ buil _main_progra m _grave_main _autho_newstr eet _autho_newst reet _pub_trans_li cense _pub_market _buil _arboliculture _pub_market _main _pub_trans_lic ense _master_plan _main_progra m _priv_market _grave_regist _priv_market _priv_market _grave_regist _grave_regist _pub_market _buil _grave_regist _master_plan _autho_buildi ng _inspect_buil ding _pub_market _main _master_plan _inspect_buil ding _slaughter_h ouse _site_inspecti on _street_water ing _pub_trans_f are _site_inspecti on _slaughter_h ouse _street_water ing _slaughter_h ouse _site_inspecti on _inspect_buil ding _waste_remv _street_water ing _waste_col _waste_col _pub_trans_f are _autho_buildi ng _autho_newst reet _priv_market _grave_regist _autho_buildi ng _autho_buildi ng _site_inspecti on _inspect_buil ding _master_plan _main_progra m _pub_market_ main _grave_regist _master_plan _inspect_buil ding _inspect_build ing _slaughter_ho use _grave_main _master_plan _site_inspecti on _street_water ing _pub_trans_f are _street_wateri ng _site_inspecti on _slaughter_h ouse _street_water ing _waste_col _waste_col _water_private 0.24

119 Strengthening Paurashava Governance Project Draft Report for Baseline survey I 1 Total Female Male A B C II 2 S Main function Score S Main function Score S Main function Score S Main function Score S Main function Score S Main function Score _water_private _pub_trans_f are _grave_main _grave_main _water_private _traffic_contr ol _water_public _water_public _traffic_regul ation _street_light _drainage_bu il _waste_col _waste_remv _water_private _pub_trans_f are _waste_mgt _grave_main _waste_col _grave_main _water_public _water_public _street_light _traffic_regula tion _waste_remv _street_light _street_light _Pub_toilet_bu il _drainage_bu il _Pub_toilet_bu il _Pub_toilet_m ain _Pub_toilet_bu il _Pub_toilet_m ain _waste_remv _drainage_bu il _drainage_bu il _waste_mgt _Pub_toilet_bu il _waste_mgt _water_private _civil_defenc e _civil_defenc e _pub_street_ main _drainage_ma in _pub_street_ buil _traffic_contr ol _traffic_regul ation _drainage_ma in _pub_street_ buil _civil_defenc e _pub_street_ main _traffic_contr ol _Pub_toilet_m ain _pub_street_ main _water_public _pub_trans_fa re _civil_defenc e _traffic_regul ation _Pub_toilet_m ain _pub_street_ main _waste_mgt _pub_street_ buil _traffic_contr ol _pub_street_ buil _arboliculture _drainage_ma in _street_light _water_public _waste_mgt _waste_remv _waste_remv _drainage_bui l _drainage_bu il _Pub_toilet_bu il _street_light _Pub_toilet_m ain _Pub_toilet_bui l _pub_street_m ain _arboliculture _Pub_toilet_ma in _water_private _drainage_mai n _drainage_ma in _drainage_ma in _pub_street_ buil _civil_defence _traffic_contr ol _pub_street_b uil _civil_defenc e _pub_street_ main _traffic_regul ation _arboliculture _traffic_regul _arboliculture _waste_mgt _traffic_contr _arboliculture 0.05 ation ol Source: JICA Survey Team NOTE 1. In the line I, each heading means as follows: 1) Total: samples in total; 2) Female: female samples; 3) Male: male samples; 4) A: samples in Category A Paurashava; 5) B: samples in Category B Paurashava; and 6) C: samples in Category C Paurashava Note 2: in the line II, S denotes section of the matrix

120 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 7 Table: comparison (awareness of Paurashava s services) by gender S/N Main Functions Average Average (Female) (Male) Difference t value 1 Waste Removal *** Waste Collection *** Waste Management *** Public Toilet (Build) *** Public Toilet (Maintain) *** Birth Registration Infectious Diseases Water Supply (Public) Water Supply (Private) Drainage (Build) *** Drainage (Maintain) *** Public Market (Build) *** Public Market (Maintain) *** Private Market *** Slaughter House * Master Plan ** Inspection Site * Bulding Plan *** Inspection Building * Public Street (Build) Public Street (Maintain) Road Maintenance Program *** New Street * Street Light ** Street Watering Traffic Control Traffic regulation Public Transportation (license) *** Public Transportation (Fare) Civil Defense Graveyards (Maintain) * Graveyards (Registration) Arboriculture Source: JICA Survey Team 39

121 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 8 Table: comparison (awareness of Paurashava s services) by category S/N Main Functions Average Average Average (A) (B) (C) All 1 A vs B 1 A vs C 1 B vs C 1 1 Waste Removal Waste Collection Waste Management Public Toilet (Build) Public Toilet (Maintain) Birth Registration Infectious Diseases Water Supply (Public) Water Supply (Private) Drainage (Build) Drainage (Maintain) Public Market (Build) Public Market (Maintain) Private Market Slaughter House Master Plan Inspection Site Building Plan Inspection Building Public Street (Build) Public Street (Maintain) Road Maintenance Program New Street Street Light Street Watering Traffic Control Traffic regulation Public Transportation (license) Public Transportation (Fare) Civil Defense Graveyards (Maintain) Graveyards (Registration) Arboriculture Source: JICA Survey Team 40

122 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 9 Table: comparison (satisfaction with Paurashava s services) by gender S/N Main Functions Average Average (Female) (Male) Difference t value 1 Waste Removal Waste Collection Waste Management Public Toilet (Build) Public Toilet (Maintain) Birth Registration Infectious Diseases Water Supply (Public) Water Supply (Private) Drainage (Build) Drainage (Maintain) Public Market (Build) Public Market (Maintain) Private Market Slaughter House * Master Plan Inspection Site ** Building Plan Inspection Building ** Public Street (Build) Public Street (Maintain) Road Maintenance Program New Street Street Light Street Watering Traffic Control Traffic regulation *** Public Transportation (license) Public Transportation (Fare) * Civil Defense *** Graveyards (Maintain) Graveyards (Registration) Arboriculture Source: JICA Survey Team Note 1. P-value: * p<0.05, ** p<0.01, *** p<

123 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 10 Table: comparison (satisfaction with Paurashava s services) by category S/N Main Functions Average Average Average (A) (B) (C) All 1 A vs B 1 A vs C 1 B vs C 1 1 Waste Removal Waste Collection Waste Management Public Toilet (Build) Public Toilet (Maintain) Birth Registration Infectious Diseases Water Supply (Public) Water Supply (Private) Drainage (Build) Drainage (Maintain) Public Market (Build) Public Market (Maintain) Private Market Slaughter House Master Plan Inspection Site Building Plan Inspection Building Public Street (Build) Public Street (Maintain) Road Maintenance Program New Street Street Light Street Watering Traffic Control Traffic regulation Public Transportation (license) Public Transportation (Fare) Civil Defense Graveyards (Maintain) Graveyards (Registration) Arboriculture Source: JICA Survey Team Note 1. P-value 42

124 Strengthening Paurashava Governance Project Draft Report for Baseline survey Annex 11 Table: comparison (importance of Paurashava s services) by gender S/N Main Functions Average Average (Female) (Male) Difference t value 1 Waste Removal ** Waste Collection Waste Management Public Toilet (Build) *** Public Toilet (Maintain) ** Birth Registration Infectious Diseases Water Supply (Public) Water Supply (Private) Drainage (Build) ** Drainage (Maintain) Public Market (Build) * Public Market (Maintain) ** Private Market * Slaughter House Master Plan ** Inspection Site Bulding Plan ** Inspection Building *** Public Street (Build) Public Street (Maintain) *** Road Maintenance Program *** New Street Street Light * Street Watering * Traffic Control Traffic regulation Public Transportation (license) Public Transportation (Fare) Civil Defense Graveyards (Maintain) Graveyards (Registration) Arboriculture Source: JICA Survey Team Note 1. P-value: * p<0.05, ** p<0.01, *** p<

125 Strengthening Paurashava Governance Project Draft Report for Baseline survey S/N Annex 12 Table: comparison (importance of Paurashava s services) by category Main Functions Average (A) Average (B) Average (C) All 1 A vs B 1 A vs C 1 B vs C 1 1 Waste Removal Waste Collection Waste Management Public Toilet (Build) Public Toilet (Maintain) Birth Registration Infectious Diseases Water Supply (Public) Water Supply (Private) Drainage (Build) Drainage (Maintain) Public Market (Build) Public Market (Maintain) Private Market Slaughter House Master Plan Inspection Site Bulding Plan Inspection Building Public Street (Build) Public Street (Maintain) Road Maintenance Program New Street Street Light Street Watering Traffic Control Traffic regulation Public Transportation (license) Public Transportation (Fare) Civil Defense Graveyards (Maintain) Graveyards (Registration) Arboriculture Source: JICA Survey Team Note 1. P-value 44

126 Summary of the Administrative Needs Assessment Survey Report Strengthening Paurashava Governance Project (SPGP) September 2014

127 Summary of the Administrative Needs Assessment Report 1. Objective The survey is intended to: 1) Clarify the gap between the statutory and actual functions of Paurashavas in regard with mandatory functions 1 and Analyze the background of poor performance of those mandatory functions; and 2) Assess the depth of the major administrative problems and identify challenges ; and 3) Propose approaches to address those identified gap and challenges. 2. Survey method The Survey was conducted by interviewing the elected representatives and officials of the seven pilot Paurashavas of SPGP, which are an A category Paurashava and three Paurashavas each of B and C category 2. Required information was collected also from documents gathered from those Paurashavas. Interviewees of each Paurashava include: the Mayor, a few Councilors, the Secretary, the Assistant/Sub-Assistant Engineer, the Accountant, a few tax officials (Tax Assessors and Collectors), and an official leading the health and conservancy section 3. The Survey Team 4 selected the most appropriate interviewee(s) for each question and took their answers as representing the Paurashava s view. The survey method is described below: (1) Clarification and analysis of the performance gap 5 on mandatory functions The following information was collected and analyzed: a) Self-assessment of Paurashavas their performance; b) Specific activities that they are engaged in to perform each mandatory function; c) The level of their performance (e.g., coverage); and d) Causes of insufficient performance (if their performance is insufficient) (2) Identification of administrative challenges Based on the findings of prior studies, the JICA Expert Team had hypothetically set the following eight major administrative issues that hamper revenue increase of Paurashavas and undermine efficient execution of their administrative work: Low capacity to collect holding tax Insufficient and inequitable allocation of grants from the Government Absence of development plans Ineffective formulation of annual budget Ineffective execution of annual budget Manpower shortage Insufficient monitoring and evaluation of Paurashava s work Insufficient administrative knowledge and skills of Paurashava officials and elected representatives The following information was collected from the seven Paurashavas and analyzed. a) Quantitative and qualitative data based on set indicators to assess the extent of the issues 1 These are functions interpreted as mandatory in view of Article 50 and the second schedule of the Paurashava Act The pilot Paurashavas are: Shailukupa (Jenaidah Disctrict, A category); Bakerganj (Barisal District, B category); Sengarchar (Chandpur District, B category); Ulipur (Kurigram District, B category); Atgoria (Pabna District, C category); Kanaighat (Sylhet District, C category); and Pakundia (Kishorganj District, C category). 3 The number of Councilors and tax officials who joined the interview varies among Paurashavas and therefore they were asked to provide consensus answers among themselves that represent their position/section s view. 4 The Survey Team consists of two local consultants as researchers and a Japanese Expert supervising the process. 5 Gap between the current performance and expected performance 1

128 b) Factors behind those issues 3. Constraints on the analysis Although the Survey Team had planned to collect quantitative data to assess the level of the pilot Paurashavas performance on mandatory functions, they were not able to provide reliable data. Therefore the objective assessment of their capacity regarding mandatory functions based on quantitative data was not possible. 4. Major findings 4-1. Clarification and analysis of the performance gap on mandatory functions 1) Overview of Paurashavas performance on mandatory functions According to the self-assessment of the Paurashavas respondents, Paurashavas performance varies from one mandaotry function to another. Table 1 shows the overall status of the seven Paurashavas performance on the mandatory functions. The status by function is determined by score calculated based on the self-assessment of Paurashava officials. Each answer of Paurashava was given a score (4: Yes, sufficiently; 3: Yes, to a certain extent; 2: Yes, but very little; and 1: No) and the average score was given in the table. The survey team determined the general status of Paurashavas performance. A score of 1 means that the function is not performed (service is not provided). A score of >1 and 2 can be interpreted poorly performed, >2 and 3, moderately performed, and >3 and 4, sufficiently performed. 2

129 1 2 Table 1: Comparative Status of Paurashavas Performance on Mandatory Functions Mandatory Function Corresponding item in the second schedule Score Status Regulation and control of private sources of water 11. Private sources of water supply supply 1 No service Inspection and control of execution of land 34. Execution of land development schemes development schemes 1 No service 3 Approval of construction of new streets 39. Streets 1 No service 4 Watering of public streets 42. Street watering 1 No service 5 Registration of private graveyard and cremation ground 6 Collection of waste 7 Disposal of waste 49. Graveyard and cremation ground 3. Waste removal, collection and management 3. Waste removal, collection and management 1 No service 1.9 Poor 1.7 Poor 8 Provision of public toilets 4. Public toilet 2 Poor 9 Maintenance and cleaning of public toilets 4. Public toilet 2 Poor 10 Prevention and control of infectious diseases 6. Infectious diseases 1.7 Poor 11 Water supply 10. Water supply 1.9 Poor 12 Establishment of public markets 21. Public markets 1.7 Poor 13 Licensing and regulation of private markets 22. Private markets 1 Poor 14 Provision and maintenance of slaughter houses 23. Slaughter houses 2 Poor 15 Formulation of a Master Plan 32. Master plan -* Poor 16 Inspection of completed buildings 36. Completion of buildings, alteration of buildings, etc. 1.3 Poor 17 Lighting of public streets 41. Street lighting 1.7 Poor 18 Control of traffic 43. Traffic control 1.4 Poor 19 Regulation of traffic 43. Traffic control 1.4 Poor 20 Licensing of non-motorized vehicles 44. Public vehicles 1.9 Poor Fixing of the rate of fares for public transportation (non-motorized) Maintenance and administration of public graveyard and cremation ground 23 Removal of waste 44. Public vehicles 1.3 Poor 49. Graveyard and cremation ground 3. Waste removal, collection and management 1.1 Poor 2.7 Moderate 24 Construction of public drains 12. Drainage 2.4 Moderate 25 Maintenance of public drain 12. Drainage 2.4 Moderate 26 Management of public markets 21. Public market 2.9 Moderate 27 Approval of building plans 35.Construction and re-construction of buildings 2.6 Moderate 28 Construction of public streets 38. Public streets 2.1 Moderate 29 Maintenance of public streets 38. Public streets 2.3 Moderate 30 Execution of road maintenance & development programme 38. Public streets 2.7 Moderate 31 Civil defense of the municipality 46.Civil defense 2.4 Moderate 32 Plantation and protection of trees on public streets and other public places 33 Birth, death and marriage registration 50. Plantation 2.7 Moderate 5. Birth, death and marriage registration 3.7 Sufficient Source: SPGP Survey Team *No Paurashava has prepared or is preparing the Master Plan by itself. LGED is preparing the Master Plan for four of the Paurashavas. No attempt has been made to prepare the Master Plan for the three C category Paurashavas. 3

130 According to the status given in the table above, the mandatory functions upon which no services are provided by the Paurashavas are as follows: Inspection and control of execution of site development schemes; approval of construction of new streets; registration of graveyard and cremation ground; regulation of private water sources; watering of public streets; and licensing and regulation of private markets. The three main reasons for not conducting these functions are: i) lack of demand from the residents; ii) the Paurashavas ignorance of these mandatory functions; and iii) absence of guidelines to perform these functions. Though some Paurashavas cite lack of funds for not conducting some functions such as inspection and control of execution of land development schemes, the Survey Team s observation is that the prime necessity for conducting the core functions is not funds and that the Paurashavas may not have the motivation to provide the services. The functions performed poorly by the Paurashavas include: Formulation of a Master Plan; maintenance and administration of graveyard and cremation ground; inspection of completed buildings; fixing of the rate of fares for non-motorized vehicles; control of traffic; regulation of traffic; disposal of waste; lighting of public streets; prevention and control of infectious diseases; establishment of public markets; water supply; collection of waste; licensing of non-motorized vehicles; provision of public toilets; maintenance and cleaning of public toilets; and provision and maintenance of slaughter houses. The main reasons for poor performance of the Paurashavas on these functions are: i) their ignorance of the functions; ii) absence of guidelines; iii) lack of people s demand; and iv) lack of funds. These functions are necessary for the residents to maintain acceptable aesthetic, hygienic, and sound health and psychological standards. These functions can give the resident a feeling of quality urban living standards that the Paurashavas seem to pay less attention to. Some functions found to be performed by the Paurashavas moderately include: Construction of public streets; maintenance of public streets; civil defense of the municipality; construction of public drains; maintenance of public drains; approval of building plans; execution of road maintenance and development programme; removal of waste; plantation and protection of trees on public streets and other public places; and management of public markets. The functions the Paurashavas perform moderately are mainly those pertaining to infrastructure development/maintenance and planning activities. Since Annual Development Programme (ADP) grants are allocated mainly for infrastructure development/maintenance, all of the seven Paurashavas perform these activities to some extent. However these activities require far more funds, a lack of finance is the predominant reason for not performing these functions sufficiently. The main reasons for not sufficiently performing other two important functions of Paurashavas, namely removal of waste and civil defense, are lack of demand of the residents on the former and lack of manpower and guidelines on the latter. The only function that is found to be performed sufficiently by the Paurashavas is birth, death and marriage registration. It is closely monitored by the Government of Bangladesh (GOB) through Deputy Commissioner (DC). Paurashavas are to send birth and death registration report to the DC office every month. Moreover, this work costs little; in contrast, it generates income as the recipients of birth and death certificates pay fees for the service. The service is also demanded by the residents. According to the Baseline Survey for Strengthening Paurashava Governance Project (hereinafter the 4

131 Baseline Survey ) also conducted by the SPGP team, only about one third of the services of the mandatory functions for Paurashava are recognized to be in practice by residents. There is a positive correlation between the degree of residents awareness and elected representatives and officials of Paurashavas self-assessment of their performance. 2) Performance on priority services In parallel with this survey, SPGP conducted the Baseline Survey on residents perception of Paurasahavas services. The Baseline Survey extracted the following ten priority services 6 from the perspectives of residents of the seven Paurashavas. Waste disposal Public street (construction) Street light Public street (maintenance) Water supply (public) Drainage (construction) Public toilet (construction) Drainage (maintenance) Public toilet (maintenance) Waste removal Considering the close relationship among 3 services such as waste collection, waste disposal and waste removal, we treat 3 related functions as a Waste management. Table 2 shows the reasons that the pilot Paurashavas pointed to for the insufficient performance regarding these ten services. Major reasons of insufficient performances are lack of guideline and lack of finance. The countermeasures to improve the situation will be discussed from theses points of view, accordingly. 6 Ten priority services were selected among mandatory functions, based on the analysis of importance and current satisfaction in the Baseline Survey. In the survey, services and functions that are diagnosed to be important and not realized well were regarded to be highly prioritized. 5

132 Mandatory Functions Disposal of waste Lighting of public streets Water supply Table 2: Reasons for the Insufficient Performance of Ten Priority Services Status Poor Poor Poor Lack of Demand 4 (23.5%) 0 (0.0%) 1 (7.7%) Lack of Guideline/ Don t know what to do 2 (17.6%) 2 (14.3%) 2 (15.4%) Lack of Finance 6 (35.3%) 11 (78.6%) 9 (69.2%) Reason for the insufficient performance Lack of Man power 1 (6.9%) 1 (7.1%) 2 (15.4%) Lack of Skills 1 (6.9%) 2 (14.3%) 1 (7.7%) Other Resident s reluctance to pay for the service: 6 (35.3%) Problem with land acquisition: 2 (17.6%) Don t think it is important: 4 (23.5%) Other: 5 (41.2%) No. of Respon dents* Other: 4 (28.6%) 14 Lack of a pipeline water supply master plan: 2 (15.4%) Other: 3 (23.1%) Provision of public toilets Poor 5 (35.7%) 4 (28.6%) 11 (78.6%) 1 (7.1%) 0 (0.0%) Don t think it is important:2 (14.3%) Land acquisition problems: 2 (14.3%) Other: 1 (7.1%) 14 Maintenance & cleaning of public toilets Poor 1 (10.0%) - 3 (30.0%) 2 (20.0%) 0 (0.0%) Users reluctance to pay the fee: 1 (10.0%) Other: 5 (50.0%) 10** Construction of public streets Maintenance of public streets Construction of public drains Maintenance of public drains Removal of waste Moderate Moderate Moderate Moderate Moderate 0 (0.0%) 0 (0.0%) 0 (0.0%) 0 (0.0%) 11 (61.1%) 4 (28.6%) 9 (64.2%) 5 (35.7%) 1 (7.1%) 1 (5.6%) 13 (92.9%) 14 (100.0%) 12 (85.7%) 12 (85.7%) 5 (27.8%) 1 (7.1%) 2 (14.3%) 0 (0.0%) 1 (7.1%) 0 (0.0%) 2 (14.3%) 3 (21.4%) 1 (7.1%) 0 (0.0%) 4 (22.2%) Lack of plans to develop roadway network: 7 (50.0%) Problem on land acquisition: 2 (14.3%) Insufficiency and ineffectiveness of existing PS s process to develop roadway network: 1 (7.1%) Other: 5 (35.7%) Other: 2 (14.3%) 14 Don t have a drainage master plan: 8 (57.1%) Don t think it is important: 1 (7.1%) Other: 1 (7.1%) Don t think it is important: 1 Other: 2 Don t think it is important: 4 (22.2%) Resident s reluctance to pay for the service: 3 (16.7%) NGO/other service providers do the job: 2 (11.1%) Other: 4 (22.2%) Source: SPGP Survey Team * The respondents of each Paurashava are the Mayor and an official in charge of respective services. Those who answered sufficient on their performance were not included. ** Some respondents did not give answers as they lease out public toilets and do not know about the maintenance status Identification of administrative challenges The Survey Team summarized the findings on the major administrative issues which had been hypothetically set based on prior studies. Those issues are: (1) Low capacity to collect holding tax; (2) Insufficient and inequitable allocation of grants from the Government; (3) Absence of development plans; (4) Ineffective formulation of annual budget; (5) Ineffective execution of annual budget; (6) Manpower shortage; (7) Insufficient monitoring and evaluation of Paurashava s work; (8) Insufficient administrative knowledge and skills of Paurashava officials and elected representatives. (1) Low capacity to collect holding tax (HT) Insufficient HT collection is attributable mainly to the systems of Paurashavas in which officials receive no pressure. Knowledge to increase tax collection without increasing expenses seems to be 6

133 missing. Some Paurashavas are not trying hard to raise their HT collection rate. Officials are not under pressure because of elected representatives reluctance and absence of regular monitoring and reporting. The Council is not functioning well in this regard. Record keeping on tax collection is good, but relevant officials are not aware of the collection status because regular reporting is not required. Paurashavas performance in the main HT assessment activities is generally good. However, the performance on follow-up activities such as interim assessment and reissuance of bills is poor particularly in small Paurashavas. (2) Insufficient and inequitable allocation of grants from the Government The GOB needs a strategy in effective allocation of ADP grants for Paurashavas. Paurashavas are unable to provide a standard level of urban services by ADP grants. Grant allocations are not based on demand. The newly created Paurashavas have limited capacity to increase income from their own income sources and need more attention from the GOB. Special grant allocations are not provided based on Paurashavas performance. The Paurashavas try to maintain communication with influential people for allocation. (3) Absence of development plans The fundamental problem is the lack of Paurashava officials awareness of the benefits and importance of development plans rather than technical or manpower problems. As none of the Paurashavas has had development plans, they do not understand the benefits of development planning. (4) Ineffective formulation of annual budget Paurashavas are not required to prepare realistic budget under the present circumstances. They also do not fully implement the existing accountability mechanisms. Furthermore, GOB-prepared ADP guidelines and budget format may not be applicable to all categories of Paurashavas. Budget is not based on proper projection of income and expenditure plans. Small Paurashavas are unable to follow the ADP guidelines because of lack of funds while large Paurashavas find it difficult to fill the budget format due to lack of budget items given in the format. Although draft budget is discussed in the council meetings, the institutional arrangements to discuss it in the standing committee beforehand are not working. Residents involvement in budget preparation is also limited, even though the Paurashavas have held open-budget meetings. (5) Ineffective execution of annual budget The present workings of Paurashavas do not put officials under pressure to improve their budget execution. There is indeed no institutional arrangement to ensure effective use of resources. Besides, Paurashavas do not have sufficient funds and skills to increase efficiency of budget execution. There is no pressure upon the relevant officials to improve budget execution. The original budget is unrealistic, there is no development plan, and execution status is not properly checked. Reporting to and monitoring by the Council and the Mayor about income and expenditure is not required. External audit does not examine the cost effectiveness aspect, and internal audit is essentially nonexistent. Shortage of manpower and manual accounting may be one of the reasons for the low efficiency of budget execution. The residents are not much involved in budget execution including project selection. 7

134 (6) Manpower shortage Paurashavas lack financial resources to hire a sufficient number of officials. Impact of manpower shortage is particularly acute in the tax collection, engineering and health and conservancy sections. Most of the studied Paurashavas find the existing manpower insufficient in all of the sections because of lack of financial resources. Paurashava officials believe that they need more manpower, particularly in the engineering and tax collection sections. They do not need as much manpower for the health and conservancy sections probably because they do very little work on health and conservancy. (7) Insufficient monitoring and evaluation of Paurashava s work Present monitoring practices are not effective because institutional arrangements for monitoring are not sufficient and not established as a system. Although Paurashavas development undertakings are discussed in the council and checked by the Mayor, the Councilors and the engineers, there is no monitoring standard. Paurashavas activities other than development undertakings are also discussed in the council and personally checked by the Mayor. However, monitoring is carried out ad-hoc and monitoring results are affected by individual judgment. The residents involvement in monitoring is almost none with WLCC and TLCC dysfunctional in this regard. (8) Insufficient administrative knowledge and skills of Paurashava officials and elected representatives (8)-1 Knowledge of elected representative Knowledge of the Councilors about Paurashava s functions and their roles are very limited. The Mayors are well aware of Paurashavas major functions and the roles they are supposed to play. Knowledge of the Councilors about Paurashavas functions is limited. Although their TOR covers a broad range of areas, they do not know about such TOR and their actual roles are confined to a few areas. (8) -2 Knowledge and skills of officials on revenue mobilization and accounting In the perception of taxation officials, the problem they face is lack of power to enforce rules and regulations rather than lack of knowledge or skills while accountants lack knowledge of rules and regulations. Taxation officials believe that they know about relevant rules and regulations and follow them. However they feel that they do not have the authority to enforce those rules in face of the residents reluctance to pay and Mayor s intervention. Accounting is managed based on experience and the will of the Mayor rather than rules and regulations, about which relevant officials are not very much aware of. They do not know exactly what skills they need, but feel that they need training. (8)-3 Knowledge and skills of officials on operation and management of Paurashava s properties Their problems are not only lack of knowledge of relevant rules and regulations but also lack of sufficient power to implement their work based on those rules and regulations. The Paurashavas have some implementation problems because of intervention of elected representatives. There are rules, but most of the Paurashavas do not know about them, and the performance of asset management is based on experience. 8

135 (8)-4 Knowledge and skills of officials on engineering works Their problem is about application of rules and regulations and caused by residents ignorance. They are equipped with basic skills but may need more specific skills that suit individual needs. All engineers are very much aware of rules and regulations that they are required to follow. They face problems during implementation of development undertakings, when a land issue is involved. They also find it difficult to enforce rules and regulations related to approval of private building plans because residents do not know their obligations and intervention of elected representatives. Relevant officials would like to know more about the existing rules and regulations. They have clear demand for specific skills and knowledge, particularly in technical spheres, but their demands vary from one person to another. (8)-5 Knowledge and skills of officials on health and conservancy work The problem is above all lack of the officials attention to health and conservancy work. It is partly affected by manpower shortage. Furthermore, they do not know the rules and regulations and do not have relevant skills. The Paurashavas have minimal jobs related to health and conservancy. Thus they do not feel the need to follow specific rules and regulations. Because they do not know what rules and regulations to follow and what specific activities are required, they do not know what skills they need. Some Paurashavas have few or no officials in the health and conservancy section. 5. Recommendations based on the findings From the empirical evidence, it is clear that the seven studied Paurashavas face a number of challenges in carrying out their mandatory functions as well as in running a local government body. These challenges have been categorized from three capacity points of view. A. Institutional point of view, i.e. at the GOB level. The challenges that are caused by rules, regulations and GOB mechanisms to operate and manage Paurashavas. The Paurashavas activities are found either limited or not done because of absence of required rules and regulations and guidelines, and/or lack of funds. B. Organizational point of view, i.e. at the Paurashava level. The challenges that are caused by the Paurashavas practices. C. Technical point of view, i.e. at the level of individual officials. The challenges that are caused by lack of knowledge of Paurashavas officials and their technical incapacity. The following are the recommendations on capacity development of Paurashavas from these three points of view Approaches to develop Paurashavas capacity on mandatory functions Based on the findings above and also taking the Baseline Survey findings into consideration, the Survey Team recommends to focus capacity development support for Paurashavas on the ten priority services and some additional functions particularly important for urban development. Specifically, the following institutional, organizational and technical interventions are recommended. A. Institutional point of view 1) Development of guideline The survey results suggest the revision or development of operational or technical guidelines can be 9

136 helpful for construction of public streets, maintenance of public streets, construction of public drains, and provision of public toilets. Training based on those guidelines also needs to be provided. Survey Team interpreted that there are already basic guidelines/manuals on these subjects but the review of those and the development of more specific guidelines may be needed. Further investigation will be required in order to grasp the real situation and to identify the exact needs of Paurashava officials. In addition to the eleven priority service areas, there are some other important functions which the Survey Team and JICA Expert Team considers important and on which guidelines seem to be missing. On the following functions the GOB is recommended to provide adequate guidelines to Paurashavas: Formulation of Master Plan The Act stipulates Paurashavas function to prepare a Master Plan. Some Paurashavas including four of the seven studied Paurashavas have prepared or are preparing it. However, it was or is being prepared by LGED-hired consultants and in English language, and Paurashavas have little idea how to take advantage of it. Adequate guidance from the GOB as well as translation into Bangla language will help Paurashavas in planned development of their area. Inspection and control of execution of land development schemes Although this function is not prioritized by the studied Paurashavas, it is an important function for planned urbanization. It is presently not performed by any of the studied Paurashsavas either due to the absence of a Master Plan, which is required to perform this function, or because they do not know what to do. Inspection of completed buildings (No. 36 Completion of buildings, alteration of buildings, etc. ) Although the studied Paurashavas perform approval of building plans, none of them work on inspection of completed buildings to ensure implementation as per approved plans. There are two major reasons for this: lack of manpower and lack of guidelines. Though it is difficult to solve the manpower issue in a short period of time, provision of guidelines coupled with appropriate training will facilitate planned development of Paurashavas. Approval of construction of new streets (No. 37 Streets ) Similarly, none of the studied Paurashavas performs this function. This is also a critical function for planned development of the Paurashavas but clear guidelines are missing. Civil defense (safety) of the municipality The civil defense function of Paurashavas should be more clearly defined and Paurashavas need to be provided with guidelines accordingly. The maintenance of security and discipline of the residents is one of the four main responsibilities stipulated in the Act (Article 50(1)). Nevertheless, the survey found that the civil defense function was no more than local dispute settlements and grievance redresses for the seven Paurashavas. Consequently, they do not seem to feel the need for capacity development with regard to this function. Because the establishment of the Paura Police, which was prescribed by GOB, does not appear to be a realistic option for the majority of Paurashavas for financial constraints, more feasible prescriptions should be considered, particularly for smaller Paurashavas. 2) Financial support Although Paurasahavas are required to raise as much funds as possible from their own sources of income in the first place, the GOB is recommended to provide more financial support for Paurashavas, those of B and C category in particular, to improve the functions above, especially those functions that require a substantial amount of funds. As shown in Table 2, in the functions such as construction of 10

137 public streets, construction of public drains, maintenance of public drains, maintenance of public streets, provision of street lights, provision of public toilets, disposal of waste, removal of waste and water supply, the major constraint for the Paurashavas to perform the functions sufficiently is lack of financial resources. B. Organizational point of view Firstly, needless to say, Paurashavas are recommended to try harder to generate their own financial resources to meet the increasing need for improvement of infrastructures. Secondly, Paurashavas are recommended to enhance the capacity for planning in the field of road and drainage construction. The GOB is also recommended to provide necessary support for capacity development of Paurashavas in terms of planning. In order to utilize the limited financial sources efficiently and effectively, planning is a key area for capacity development. As shown in Table 2, lack of plans to develop a roadway network (50.0%) in Paurashava is the second most crucial reason for the insufficient performance of construction of public streets, following the first reason, i.e., lack of finance (92.9%). Similarly, more than half of the respondents (61.5%) cited lack of a drainage master plan in Paurashava as a reason for the insufficient performance of construction of public drains. C. Technical point of view The GOB is recommended to ensure if rules, regulations, and guidelines required for Paurashavas to perform their mandatory functions are in their hands and guidance and training necessary for them to understand those is provided. In general, the studied Paurashavas did not ascribe their poor performance on mandatory functions to technical incapacity. In fact, the jobs for officials do not seem to require special skills except for engineering-related ones, for which all the engineers were found to be equipped with basic skills as a result of a variety of training courses provided by LGED. What they need is knowledge and understanding of the existing rules and regulations or guidelines and provision of updated or new ones that they believe are missing. The priority services mentioned above should be given focus in this regard. Among mandatory functions other than the ten priority services mentioned above, the Survey Team has identified the following functions that interventions may be needed: Training on approval of building plans (No. 35 erection and re-erection of buildings ) and inspection of completed buildings (No. 36 completion of buildings, alteration of buildings, etc. ) should be provided along with proper guidelines. Both functions are important functions for planned urban development as much as formulation of a Master Plan and inspection and control of land development schemes. Lack of skills was mentioned as one of the reasons for their insufficient performance in four Paurashavas and three Paurashavas respectively though the issues of manpower shortage and ignorance of the residents about their obligation also need to be tackled in a long run. The above-mentioned approaches are summarized in the table below. 11

138 Waste management Primary services Table 4: Summary of proposed approaches A. Institutional perspective B. Guideline Financial resources Provision of public toilets x x Water supply x x Organizational perspective Construction of public drains x x x Maintenance of public drains Formulation of a Master Plan Inspection and control of execution of site development schemes Approval of building plans x x x C. Technical perspective Inspection of completed buildings x x Construction of public streets x x Maintenance of public streets x x Approval of construction of new streets Lighting of public street Civil defense of the municipality x x 5-2. Approaches to deal with the administrative challenges The Survey Team and the JICA Expert Team analyzed major administrative issues that Paurashavas face and recommend the following approaches to tackle those administrative challenges. A. Institutional point of view The following issues require central level institutional (GOB) intervention: GOB grant should be based on minimum demand of Paurashavas. As far as the studied Paurashavas are concerned, the category C Paurashavas, which are relatively new and have low capacity to generate their own revenue, are given a lower amount of GOB grant than that category A Paurashava receives. The basis for grant allocations was found to be not judicious. Predictability of grant allocations also needs to be improved. It will greatly help the Paurashavas to prepare a realistic as well as effective budget based on proper long-term projection of income. Except for an emergency, most of the special grants should be purely based on the performance of the Paurashavas. None of the studied Paurashavas were found to receive special grants on a performance basis. This leads to unhealthy competition among the Paurashavas. The preparation of a development plan should be mandatory to ensure more effective allocation of limited financial resources. It can also serve as a tool for monitoring of Paurashavas activities. The Paurashava officials should be provided with clear guidelines on how to prepare a development plan. For realistic and applicable budget, the guidelines can be specific for each category of Paurashava or accommodating to different financial situations of Paurashavas to support effective and efficient budget preparation. The guidelines should be such that ensure the residents participation in the budget formulation process The common guidelines for budget formulation are not followed by all categories of Paurashavas. Training and enforcement by LGD to follow the current budget guideline and budget format would be also needed. There should be specific guidelines and rules on internal audit, by which Paurashava accounts and audit standing committee implements internal auditing. Guidance from LGD and training might be also needed because current practices of internal audit of Paurashavas depend entirely on an x x 12

139 individual mayor s will and therefore its effectiveness is questionable. Besides, there is no other institutional arrangement to internally ensure efficient use of financial resources by Paurashavas. There should be standard mechanisms as well as guidelines for monitoring Paurashavas activities. Although the Council plays a certain role in monitoring, the role of the standing committee is not clear. The involvement of the residents in monitoring is also very limited though mechanisms and means for that such as WLCC and TLCC as well as the citizen report card system are in place. The GOB should take measures to strengthen those accountability mechanisms. Facilitation of peer learning among Paurashavas may be an option in this regard. The circular regarding the roles of the Councilors needs to be revised in a manner that define more in detail their roles and responsibilities in the Council, standing committees and other Paurashava activities. They know little about their roles and responsibilities and the circular issued in 2002 is too vague in content and covers every sphere of development. B. Organizational Point of view There are a number of institutional mechanisms to ensure Paurashavas accountability. However, many of them are not set up or not working well. Some reform efforts are required for the Paurashavas for better governance practice and the GOB needs to direct and facilitate such efforts. These reforms are recommended as follows: Based on the organogram, individual Paurashavas should work out an optimal staff structure with job description for each post in accordance with their own need and financial capacity. For that purpose, it is necessary to have medium-term plans prioritizing activities. For effective and efficient budget formulation, the existing system and practices should be entirely reformed. There is no pressure on the Paurashavas to prepare a realistic budget in the current budget formulation system. In addition, the current accountability mechanisms should be strengthened. The activation of the standing committee on Establishment and finance and the enhancement of TLCC are urgent issues. The monitoring and evaluation of Paurashavas internal revenue and surplus should be strengthened. Pressure upon the revenue sections employees by the Mayor and/or Councilors can improve revenue income of the Paurashavas. This can be done by enhancing monitoring of tax collection as well as revenue collection from other sources. Monitoring on revenue surplus is also important for securing available fund at Paurashavas, as some Paurashavas might increase expenses (e.g., salary expenses) when tax revenue increased. To improve existing accountability mechanism of Paurashavas budget execution, standing committees and the WLCC and TLCC need to be activated. Councilors involvement should be maximized for budget execution. Efficiency and effectiveness of budget mostly depend on the accountability to the people through some defined mechanism. In addition to the Council, standing committees, WLCC, TLCC, an open budget meeting, and disclosure of the budget to the public are the important institutional arrangements of accountability of budget to the people. C. Technical Point of View: It is found from the survey that both elected and employed Paurashava officials have some knowledge gaps 7. By giving training and orientation on the Act, rules and regulations as well as some activities, these knowledge gaps can be overcome and Paurashavas capacity can be improved. Broad areas for technical intervention are recommended as follows: 7 Gap between the current knowledge and required knowledge to perform duties sufficiently 13

140 For elected representatives Orientation on basics of the Paurashava administration. Subjects may include the Paurashava Act and related basic rules and regulations, workings of Paurashavas including accountability mechanisms and roles of standing committees, roles of stakeholders including the residents, and responsibilities of elected representatives. Monitoring and evaluation of Paurashava activities including roles of the Council, standing committees and TLCC and WLCC and performance of Paurashava officials. Internal audit (for the Mayor and standing committee members) For Paurashava officials Development planning Budget preparation and projection Monitoring and reporting of budget execution and internal revenue and surplus (including computerized taxation) Accounting and record keeping (including computerized accounting) Monitoring and evaluation of development undertakings and other Paurashava activities Resident s participation in monitoring of Paurashavas activities including budget formulation and execution Existing rules and regulations, especially new ones on any important areas and those required for operation and management of Paurashavas properties and health and conservancy services. The above mentioned approaches are summarized in the table below. Table 5: Relationship between administrative challenges and 3 levels of approaches Administrative issues Low capacity to collect holding tax (HT) A. Institutional perspective B. Organization al perspective x C. Technical perspective Elected representativ es Paurashava officials Insufficient and inequitable amount of grants from the Government x Absence of development plans x x Ineffective formulation of annual budget x x x Ineffective execution of annual budget x x x x Manpower shortage Insufficient monitoring and evaluation of Paurashava s work Insufficient administrative knowledge and skills of Paurashava officials/elected representatives x x x x x x 14

141 ADMINISTRATIVE NEEDS ASSESSMENT SURVEY ON PAURASHAVAS Strengthening Paurashava Governance Project (SPGP) November 2014

142 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Abbreviations and Acronyms ADP BCG BDT BMDF CIA DC DDLG DPHE FY GOB HT IMCI JICA LGD LGED MLGRD MLSS NILG NOBIDEP OCAG PPR REB RHD SAE SI SPGP TA TC TLCC UTIDP WLCC Annual Development Programme Bacillus Calmette-Guerin Bangladesh Taka Bangladesh Municipal Development Fund Central Intelligence Agency of the United States Government Deputy Commissioner Deputy Director Local Government Department of Public Health Engineering Fiscal Year Government of Bangladesh Holding Tax Integrate Management of Childhood Illness Japan International Cooperation Agency Local Government Division Local Government Engineering Department Ministry of Local Government, Rural Development and Cooperatives Member of Lower Subordinate Staff National Institute of Local Government Northern Bangladesh Integrated Development Project Office of Comptroller and Auditor General Public Procurement Rules Rural Electrification Board of Bangladesh Roads and Highways Department Sub-Assistant Engineer Superintendent Strengthening Paurashava Governance Project Tax Assessor Tax Collector Town Level Coordination Committee Upazila Towns Infrastructure Development Project Ward Level Coordination Committee

143 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Table of Contents Chapter One: Introduction Background Objective Methodology of the study Constraints on the analysis...3 Chapter Two: Review of the Paurashava Act Chapter Three: Profile of Studied Paurashavas Shailkupa Paurashava Bakerganj Paurashava Sengarchar Paurashava Ulipur Paurashava Atghoria Paurashava Kanaighat Paurashava Pakundia Paurashava Chapter Four: Analysis of empirical evidence - Findings on Mandatory Functions of the Paurashava Paurasahavas performance on mandatory functions Functions related to infrastructure development/planning and implementation of urban development plan including building control Functions for maintenance of security and discipline Functions related to water supply and drainage Functions related to sanitation Functions related to waste management Functions related to birth and death registration Functions related to Traffic management planning for better transport management, passenger shade, road light, parking place, bus stand and bus stop Functions related to public health, environment conservation and tree plantation Functions related to establishment and management of markets and slaughter houses Comparison of Paurashavas performance on mandatory functions Overview of Paurasahavas performance on mandatory functions Paurasahavas performance on priority services Perception of elected representatives and officials of priority functions for capacity development Chapter Five: Analysis of Empirical Evidence - Findings on Administrative Issues of the Paurashava Revenue of the Paurashava Allocation of GOB grant Development plans of the Paurashava Paurashava s budget formulation Paurashava s budget execution Paurashava s manpower... 46

144 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey 5.7 Monitoring and evaluation of Paurashavas activities Administrative knowledge and skills of Paurashava officials/elected representatives Personal qualification of the Mayor and officials Paurashava expectation from the Ministry Paurashavas priority administrative tasks for improvement Summary of Findings Chapter Six: Recommendations Approaches to develop Paurasahavas capacity on mandatory functions Approaches to deal with the administrative challenges Annexes Annex 1: List of Interviewee Annex 2: Paurasahava Profile Annex 3: Expectation from the Ministry Annex 4: Questions regarding Mandatory Functions of Paurashava Annex 5: Questions regarding major administrative/governance challenges List of Tables Table 1-1: List of pilot Paurashavas of SPGP...2 Table 3-1: Holding tax collection status of Shailkupa Paurashava...7 Table 3-2: Holding tax collection status of Bakerganj Paurashava...8 Table 3-3: Holding tax collection status of Sengarchar Paurashava...8 Table 3-4: Holding tax collection status of Ulipur Paurashava...9 Table 3-5: Holding tax collection status of Atghoria Paurashava Table 3-6: Holding tax collection status of Kanaighat Paurashava Table 3-7: Holding tax collection status of Pakundia Paurashava Table 4-1: Building plan approval coverage in the FY Table 4-2: Water Supply Coverage Table 4-3: Comparative status of Paurashavas performance on mandatory functions Table 5-1: Paurashavas Reasons for low holding tax collection Table 5-2: Coverage of Holding Tax Assessment Table 5-3: Year of the last two general assessment Table 5-4: Manpower in tax assessment and tax collection section of the Paurashavas Table 5-5: Special grant allocation from GOB received by the Paurashavas (BDT million) Table 5-6: Required manpower of the Paurashavas Table 5-7: The manpower in Heath and Conservancy Section of the 7 Paurashavas Table 5-8: Five priority administrative tasks for improvement chosen by Paurashava representatives and officials Table 5-9: Five priority administrative tasks for improvement in order of priority (% of respondents).. 53 Table 5-10: Priority administrative tasks (top three) chosen by different positions Table 5-11: Summary of findings on administrative issues Table 6-1: Summary of proposed approaches... 62

145 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Table 6-2: Relationship between administrative challenges and three levels of approaches List of Figures Figure 5-1: Tax collection rates of the studied Paurashavas (%)...40 Figure 5-2: Contribution of GOB grants in Paurashavas budget (%) Figure 5-3: Actual budget (expenditure) compared to proposed budget of the Paurashavas (%) Figure 5-4: The manpower vacancy rate of the 7 pilot Paurashavas Figure 5-5: Paurashava-wise distribution of respondents choice for the top three priority administrative tasks for improvement Figure 5-6: Priority administrative tasks chosen by elected representatives and officials (% of respondents) Figure 5-7: Choice of the top priority administrative task by position... 55

146 Chapter One: Introduction 1.1 Background Bangladesh possesses a centrally structured government. Though it has some tiers of local government units, they are more in deconcentrated units than of devolutionary character. The tiers of deconcentrated local government units are: Divisions, Zila Parishads at the district level, Upazila Parishads and Union Parishads. Besides these, in urban areas there are two tiers: City Corporations and Paurashavas. All the units are under the guidance and control of the central government, i.e. Ministry of Local Government, Rural Development and Cooperatives (MLGRD). Among the urban local government tiers, Paurashava s coverage is much higher than those of city corporations. At present there are 322 Paurashavas spreading almost all over in Bangladesh. The services delivered by these Paurashavas and the ways the services are delivered are now important issues to the people. Bangladesh is experiencing rapid urbanization with annual population growth rate of 2.92% 1 in urban areas as compared with the national average of 1.59% 2. These draw attention of Government and development partners the quality of service delivery and governance of urban local government units. Mindful of this, the Bangladesh government has put forward a policy of revitalizing local economies by strengthening local administration and other means in its Sixth Five-Year Plan (2011/ /16) as part of its efforts to reduce poverty and achieve balanced development. In 2014, the Bangladesh government drafted the National Urban Sector Policy, which is designed to strengthen urban governance as well as promote economic development and urban environmental conservation with infrastructure development, with a view to sustainable urbanization and a decentralized and participatory urban development process. In Bangladesh, urban local governments, namely, City Corporations and Paurashavas (municipalities), have a larger scope of responsibility than their rural counterparts. With limited service delivery by the central government, they assume such important functions as city planning, local infrastructure development, and the delivery of public services essential for local communities, including water supply and solid waste management. Unlike City Corporations, which govern large cities, Paurashavas, which are located nearer to rural areas, are supposed to play additional roles, including promoting local industries, invigorating physical distribution in rural areas, and serving as a center for developing the local economy as a whole. Most of the Paurashavas, however, are unable to envision such roles intrinsic to local governments, because of both the lack of financial and human resources and the inadequate capacities of elected representatives and officials as well as municipal machinery. They lack the capacity to deliver public services based on a mid- to long-term strategy or development plan, and in many Paurashavas, municipal management is not efficient and service delivery is often haphazard. The situation is particularly serious in small Paurashavas. These circumstances prompted the Bangladesh government to request Japan to extend yen-loan to the project called Northern Bangladesh Integrated Development Project (NOBIDEP), a comprehensive development project involving building the administrative capacity of small Paurashavas and developing basic urban infrastructure. In addition, recognizing the hitherto 1 According to the World Bank urban population refers to people living in urban areas of Bangladesh as defined by national statistical offices which was last measured in 2012, 2 The World Fact Book, Central Intelligence Agency (CIA), accessed on July 23,

147 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey unaddressed need for developing a capacity development system for small Paurashavas, the Bangladesh government asked Japan for a technical cooperation project designed to maximize the effectiveness of NOBIDEP and support capacity building for Paurashavas. A Record of Discussion (R/D) on the project was signed in October 7, 2013 and Strengthening Paurashava Governance Project (SPGP) was launched in February Objective The survey is intended to: 1) Clarify the gap between the statutory and actual functions of Paurashavas in regard with mandatory functions 3 and analyze the background of poor performance of those mandatory functions ; 2) Assess the depth of the major administrative problems and identify challenges; and 3) Propose approaches to address those identified gap and challenges. 1.3 Methodology of the study Data were collected from seven pilot Paurashavas of SPGP, which are an A category Paurasahava and three Paurasahavas eaco of B and C category (Table 1-1). The pilot Paurashavas, one from each Division, have been chosen by the project considering such criteria as absence of major capacity development support, average capacity and potential, one or more from each Paurashava category 4. Name of Division Table 1-1: List of pilot Paurashavas of SPGP Selected Category of the Districts Paurashava Paurashava Distance from District HQ Khulna Division Jenaidah Shailkupa A 35.5 km Barisal Division Barisal Bakerganj B 21.8 km Chittagong Division Chandpur Sengarchar B 45.0 km Rangpur Division Kurigram Ulipur B 18.7 km Rajshahi Division Pabna Atghoria C 10.0 km Sylhet Division Sylhet Kanaighat C 52.6 km Dhaka Division Kishoreganj Pakundia C 17.5 km The Survey was conducted by interviewing the elected representatives and officials of the above seven pilot Paurashavas. Required information was collected also from documents gathered from those Paurashavas. Interviewees of each Paurashava include: the Mayor, a few Councilors, the Secretary, the Assistant/Sub-Assistant Engineer, the Accountant, a few tax officials (Tax Assessors and Collectors), and an official leading the health and conservancy section 5. The Survey Team 6 3 The term mandatory functions mean the functions interpreted as mandatory in view of Article 50 and the second schedule of the Paurasahava Act Article 50 of the Act defines Responsibility and Function of Municipality and the second schedule of the Act provides 64 Detailed Functions of Municipality to perform such responsibility and function. Among those detailed functions, 34 are considered mandatory functions, and the rest are seen as optional. In an unofficial English translation of the Act, those mandatory functions are described with the modal verb shall in the second schedule while others with may. 4 Two out of seven pilot Paurashavas are selected from 18 target Paurashavas of NOBIDEPaurashavaupported by JICA for the purpose of generating synergy between the two projects. 5 The number of Councilors and tax officials who joined the interview varies among Paurashavas and therefore they were asked to provide consensus answers among themselves that represent their position/section s view. 6 The Survey Team consists of two local consultants as researchers and a Japanese Expert supervising the process. 2

148 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey selected the most appropriate interviewee(s) for each question and took their answers as representing the Paurashava s view. The survey method is described below: 1) Clarification and analysis of the capacity gap on mandatory functions To clarify the gap between what Paurashavas are required to do and what they actually do, the following information was collected and analyzed: a) Self-assessment of their performance; b) Specific activities that they are engaged in to perform each mandatory function; c) The level of their performance (e.g., coverage); and d) Causes of insufficient performance (if their performance is insufficient) 2) Identification of administrative challenges Based on the findings of prior studies, the JICA Expert Team 7 had hypothetically set the following eight major administrative issues that Paurashavas face: Major issues that hamper revenue increase Low capacity to collect holding tax (HT) Insufficient and inequitable allocation of grants from the Government Inequitable allocation of special grant Major issues that undermine efficient execution of administrative work: Absence of development plans Ineffective formulation of annual budget Ineffective execution of annual budget Manpower shortage Insufficient monitoring and evaluation of Paurashava s work Insufficient administrative knowledge and skills of Paurashava officials and elected representatives The following information was collected from the seven Paurashavas and analyzed: a) Quantitative and qualitative data based on set indicators to assess the extent of the issues; and b) Factors behind those issues 1.4 Constraints on the analysis Although the Survey Team had planned to collect quantitative data to assess the level of the pilot Paurashavas performance on mandatory functions, they were not able to provide reliable data. Therefore the objective assessment of their capacity regarding mandatory functions based on quantitative data was not possible. 7 The JICA Expert Team means a group of Japanese experts who wrote and edited the report that this summary is based on. 3

149 Chapter Two: Review of the Paurashava Act 2009 The basis of functions and mode of operations of Paurashavas is the Local Government (Paurashava) (amendment) Act What to do and how to do is well depicted in the Act. In this section of the report we will mainly review the Act. The Act is composed of 5 Parts, total 131 articles and 8 schedules. Though the Act has been endorsed by the Honorable President of the People s Republic of Bangladesh on October 6, 2009, except some few articles the Act was given effect from May 14, Part 1 of the Act has two articles. This is an introductory part of the Act which defines the title of the Act and explains sixty-nine works, issues, organizations/ institutions and activities which seem to be relevant with each Paurashava. Part 2 has six chapters from article 3 to 48. This part is mainly about the constitution of the paura (urban) area and establishment of a council. This part begins with the conditions of any rural area to be declared as urban areas and then how to form a council of that urban area. The Paurashava will be an administrative unit of the Government. The Mayor and the Councilors including the female councilors will be elected by the adult franchise of the municipal area for a five year term. Each ward will have a voter list prepared by the Election Commission of Bangladesh and the enlisted adult franchise will vote to elect the councilor and Mayor for the Paurashavas. The qualifications and disqualifications of being elected as a Councilor and Mayor, the election procedure and ways of resolving the disputes regarding election, the rights and responsibilities of Mayor and Councilors are also included in this part. The Government is empowered to appoint administrator to a newly declared urban area as Paurashava as well as to terminate the Mayor and any councilor on defined valid ground. Part 2 also describes the Paurashava s responsibility regarding its properties. The Paurashava is also given authority to acquire roadside land. Part 3 has five chapters from article 49 to 82. It is about suppression of municipality and re-election, responsibilities and functions of municipalities and committees, executive power and conduct of business of Paurashava, officers and employees of municipalities and their provident funds, registration of tutorial schools, coaching centres, private hospitals etc. are the subject matters of part 3 of this Act. Chapter 2 is particularly significant. It is about the responsibilities and functions of Paurashava. The Paurashava functions mentioned in the article 50 of this Chapter are detailed out in the second schedule of the Act (Table 2-1). Under twelve areas, sixty-four functions including mandatory and optional functions are mentioned in the second schedule. Chapter 2 also stipulates the establishment of at least ten standing committees. Chapter 3 is about the executive power and the business to be conducted by the Paurashava. Budget of municipality, taking project under annual development program, creating master plan, appointment employees, conduct different types of contract etc., shall be decided after opinion and decision of respective standing committee. The following table shows the Paurashavas functions and the underlined ones are mandatory functions. 4

150 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey I) Public health 1. Responsibility for Health Systems 2. Insanitary Buildings 3.Waste Removal, Collection&Management 4. Public Toilet 5.Births, Deaths and Marriage Registration 6. Infectious Diseases 7.Promotion of Public Health 8.Hospitals and Dispensaries 9. Medical, Aid and Medical Education, etc. Table 2-1: Paurashava s functions listed in Paurashava Act 2009 II) Water supply & drainage 10. Water Supply 11. Private Sources of Water-Supply 12. Drainage 13. Drainage Schemes 14. Bathing and Washing Places 15. Dhobi Ghats and Washer Man 16. Public Water Sources 17. Public Ferries 18. Public Fisheries 5 III) Food and beverage 19.Articles of Food and beverage 20. Milk Supply 21. Public Markets 22. Private Markets 23. Slaughter Houses IV) Animals 24. Animal Husbandry 25. Stray Animals 26.Animal Homes and Farms 27. Registration of the Sale of Cattle 29. Dangerous Animals 31. Disposal of carcasses V) Town planning VI) Building control VII) Streets VIII) Public safety 32. Master Plan 33.Site Development Schemes 34. Execution of Site Development Schemes IX) Trees, parks, gardens and forests 35. Erection and reerection of buildings 36. Completion of Buildings, Alterations of Buildings, etc. 37. Regulation of Buildings 50. Arboriculture 56. Education 51. Gardens 57. Compulsory Education 52. Open spaces 58. General Provisions 53. Forests about Education 54. Nuisances Pertaining to 59. Culture Trees & Plantations 60. Libraries 55. Tanks & Low-Lying areas 38. Public Streets 39. Streets 40.General Provisions about Streets 41. Street-Lightings 42. Street Watering 43. Traffic Control 44. Public Transportation 45. Fire Fighting 46. Civil Defence 47. Floods 48. Dangerous and Offensive Articles and Trades 49. Graveyard and Cremation Ground X) Education and culture XI) Social welfare X) Development Source: Second Schedule of Paurashava Act 2009 Note 1: The responsibility and function with the underline is mandatory for Paurashava. 61. Social Welfare 62. Development Plans 63. Community Development Planning 64. Commercial Schemes Part 4 of this Act is from Article 83 to 112 and there are 5 chapters in this part. This part is about the inspection, monitoring and supervision of the papers, documents and works of the Paurashavas. The Government has the authority to inspect and monitor Paurashavas activities. This part also includes the financial management, budgeting and accounts of the Paurashavas. Every municipality is prescribed to prepare budget and annual statement of the accounts, which shall be audited by any authority from panel which is approved by capable audit authority. This Part ensures people s participation undertaking infrastructural services for the people. According to the provisions, the Paurashavas are empowered to sign any contract for funding, implementing, maintaining and running any development projects with any public or private organization. This Part also empowers the Paurashavas to impose tax, levy, rate, fees upon household, business, transport etc., in the prescribed manner from twenty-nine areas (mentioned in the third schedule) upon the prior approval of the Government. In Part 4, the citizen s right to information is also stipulated. Part 5 of the Acct is compiled of three chapters and from article 113 to 131. Chapter 1 is about role of the Paurashava for maintenance of law and order. According to the provisions mentioned in this chapter the police of local thana (police station) will assist the Paurashava to maintain Paurashava

151 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey areas law and order and perform duties upon the written request of the Mayor and the Secretary/Chief Executive Officer. The Paurashava is also entitled to appoint Paura Police. The Paurashava is empowered to form a committee with the not more than fifty people and will have dialogue with that committee regarding the issues of Paurashavas services. The Paurashava will protect encroachment of any personal movable or immovable, on, over or under a street, drain or a public place by illegal means. If it happens, the Paurashava has jurisdiction to settle the disputes. 6

152 Chapter Three: Profile of Studied Paurashavas The researchers prepared the profiles of the studied seven Paurashavas (Annex 2: Paurashava Profile) based on information collected from them. Brief summaries of the profiles are given with a focus on two broad categories of administration and co-ordination and budget and accounts. 3.1 Shailkupa Paurashava Administration and Co-ordination Shailkupa Paurashava has been established in 12 th of May 1992 with sq.km. areas of Shailkupa Upazila of Jhenidah District of Khulna Division. It took almost two decades to be upgraded in to A category Paurashava. Now the total number of population is 35,271 and the total number of households is 10,579. The density of population is about 1686 per sq.km. The Council meetings of Shailukupa Paurashava are held every month regularly. According to the officials, the Paurashava has formed all the standing committees except one for fisheries and animal resources and those committees hold meetings regularly. It also has formed the Ward Level Coordination Committee (WLCC) and the Town Level Coordination Committee (TLCC) which meetings are also held frequently. As an A category Paurashava, Shailkupa s manpower shortage is remarkable. The manpower vacancy rate in administration division, engineering division and health division are approximately 35%, 66% and 57% respectively. Budget and Accounts information An average annual budget (actual) of Shailukupa Paurashava amounts to approximately BDT 19 million on revenue account and 13 million on development account for the period of Fiscal Year 2010/11 to 2012/13. As an A Category Paurashava, the revenue income and expenditure of Shailukupa Paurashava are far higher than other studied Paurashavas. They have also shown relatively good performance on holding tax collection (Table 3-1). However, the size of their development income and expenditure, which are very much affected by the amount of special grant from the Government of Bangladesh (GOB), is not as large as that of two of the three B category Paurashavas in the last three fiscal years. Table 3-1: Holding tax collection status of Shailkupa Paurashava FY 10/11 FY 11/12 FY 12/13 Demand Amount 1,821,899 1,824,205 2,567,739 Payment Amount 1,562,306 1, ,559,990 Differences between HT demand and HT payment 259, ,680 1,007,749 Tax Collection Rate in % Bakerganj Paurashava Administration and Co-ordination On 7 th of August 1990 Bakerganj of Barisal District has been declared as Paurashava. In 2012 it was upgraded to B category Paurashava. This Paurashava has been comprised of 6.25 sq.km. area of Bakerganj Upazila. The total population of Bakerganj Paurashava is 29,890 and the total number of households is 3,117. The density of population is 4,782 per sq.km. 7

153 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Bakerganj Paurashava has important administrative mechanisms in place. The Council meeting is held every month. They also have set up most of the important standing committees and both TLCC and WLCC. However, their manpower is far smaller than what is prescribed in the GOB-prepared organogram. Nearly eighty percent of posts are vacant indeed. Budget and Accounts information Bakerganj Paurashava has a large size of development budget (actual) amounting to BDT 18 million on average for the last three fiscal years owing to allocation of special grants from GOB while its revenue income is about 8 million, which is moderate for a B category Paurashava. HT collection rates are relatively high in the last three fiscal years (Table 3-2). Table 3-2: Holding tax collection status of Bakerganj Paurashava FY 10/11 FY 11/12 FY 12/13 Demand Amount 2,084,658 2,352,801 2,126,391 Payment Amount 1,278,538 1,678,288 1,478,352 Differences between HT demand and HT payment 806, , ,039 Tax Collection Rate in % Sengarchar Paurashava Administration and Co-ordination Sengarchar Paurashava has been established in 25 th of May 1998 with sq.km. areas of Matlab North Upazila of Chandpur District of Chittagong Division. It was upgraded to B category in The total number of population is 36,961 and the total number of households is 7,247. The density of population is 1367 per sq.km. The Council meetings of Sengarchar Paurashava are held every month regularly. They have neither standing committees nor WLCC and TLCC. They also have no personnel in the health and conservancy division and vacancy rate is also high in administrative division (82%) and engineering division (90%). Budget and Accounts information The revenue budget (actual) of Sengarchar Paurashava amounts to about BDT 9 million on average for the three fiscal years up to 2012/13, which is almost the same size as Bakerganj s, while their development budget is BDT 12 million, which is substantially smaller than them. Their HT collection rate is the highest among the seven Paurashavas exceeding an average annual rate of 83% for the three fiscal years (Table 3-3). Table 3-3: Holding tax collection status of Sengarchar Paurashava FY 10/11 FY 11/12 FY 12/13 Demand Amount 694, , ,150 Payment Amount 590, , Differences between HT demand and HT payment 103, , Tax Collection Rate in %

154 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey 3.4 Ulipur Paurashava Administration and Co-ordination Ulipur Paurashava has been established in 6 th of October 1998 with sq.km. areas of Ulipur Upazila of Kurigram District of Rangpur Division. Within seven years it was upgraded to B category Paurashava. Their population is 45,933 and the total number of households is 10,301. The density of population of Ulipur Paurashava is about 1642 per sq.km. Council meetings of Ulipur Paurashava are held every month regularly. According to the Paurashava officials, they have formed all the standing committees prescribed in the Act and meeting of those standing committees are held frequently. However, they have not yet formed WLCC and TLCC. There is a large gap between the manpower provided in the organogram and actual manpower as is the case of most Paurashavas. The vacancy rates in administration division, engineering division and health division are approximately 46%, 72% and 68% respectively. Budget and Accounts information The budget size of Ulipur Paurashava is closer to that of Shailukupa, the only A category Paurashava, Their revenue budget (actual) is as large as BDT 14 million on average for the three fiscal years up to 2012/13 and the development budget (actual) 15 million. Their revenue from HT collection is small given very low collection rates (Table 3-4) but they have raised a substantial amount of income from other income sources. Table 3-4: Holding tax collection status of Ulipur Paurashava FY 10/11 FY 11/12 FY 12/13 Demand Amount 1,607,220 3,152,953 3,159,703 Payment Amount 561, , ,467 Differences between HT demand and HT payment 1,045,354 2,649,139 2,217,236 Tax Collection Rate in % Atghoria Paurashava Administration and Co-ordination Atghoria Paurashava has been established in 20 July, 2006 with sq.km. areas of Atghoria Upazila of Pabna District of Rajshahi Division. It is still a C category Paurashava. Now total number of population is 16,412 and total households are 3,207. The density of population of Atghoria Paurashava is about 1563 per sq.km. Council meetings of Atghoria Paurashava are held every month regularly. They have not formed all the standing committees but some important ones. The meetings of those committees are held frequently. WLCC and TLCC have not been formed. Their manpower shortage is serious with manpower vacancy rate in administration division, engineering division and health division are approximately 82%, 93% and 100% respectively. Budget and Accounts information The budget (actual) size of Atghoria Paurashava is the smallest among the studied Paurashavas. Their average revenue budget is BDT 4 million and development budget 6 million for the three fiscal years up to 2013/14. Regular Annual Development Programme (ADP) grants are their only source of 9

155 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey income for development works since they receive no special grant from GOB and their revenue from tax collection is very small with low HT collection rate (Table 5.5). Table 3-5: Holding tax collection status of Atghoria Paurashava FY 10/11 FY 11/12 FY 12/13 Demand Amount 2,353,084 2,919,665 2,572,264 Payment Amount 429,515 1,382, ,221 Differences between HT demand and HT payment 1,923,569 1,536,768 1,715,043 Tax Collection Rate in % Kanaighat Paurashava Administration and Co-ordination Kanaighat Paurashava has been established in 25 October 2005, with 4.04 sq.km. areas of Kanaighatr Upazila of Sylhet District of Sylhet Division. This is the smallest amongst the studied 7 pilot Paurashavas. It is still a C category Paurashava. Its population is 27,078 and total households are 4,027. The density of population of Ulipur Paurashava is about 6,700 per sq.km. Council meetings of Kanaighat Paurashava are held every month regularly. They have not formed most of the standing committees nor TLCC though they have set up WLCC to discuss selection of development projects. Their manpower is exceptionally small with only one official assisted by supporting staff. They do not even have Secretary. Budget and Accounts information Their budget (actual) profile in the recent fiscal years is quite similar to that of Atghoria with BDT 4 million on revenue account and 8 million on development account. They received no special grant from GOB either. Their HT collection (Table 3.6) is also the worst among the seven Paurashavas. Table 3-6: Holding tax collection status of Kanaighat Paurashava FY 10/11 FY 11/12 FY 12/13 Demand Amount N.A. 2,374,811 2,374,811 Payment Amount N.A. 257, ,363 Differences HT demand/payment N.A. 2,117,524 2,140,448 Tax Collection Rate in % N.A Pakundia Paurashava Administration and Co-ordination Pakundia Paurashava has been established in 4 th of Mach 2007 with sq.km. areas of Pakundia Upazila of Koshoreganj District of Dhaka Division. Since then till to date this is still a C category Paurashava. Total number of population is 28,773 and total households are 5,999. The density of population is 2159 per sq.km. Council meetings of Pakundia Paurashava are held every month regularly. According to the officials, they have formed all the standing committees and their meetings are held regularly. They also have formed WLCC and TLCC which meetings are also held frequently. Their manpower against the organogram is very small as is the case with all other studied Paurashavas. Budget and Accounts information The budget of Pakunidia is a little larger than the other two C category Paurashavas owing to good 10

156 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey HT collection status, which made their annual revenue income nearly BDT 7 million in recent years. The size of actual development budget of Pakunidia Paurashava, however, has been constantly as low as BDT 9 million in the three fiscal years up to 2012/13 because regular ADP grants are the only source of income for their development activities. Table 3-7: Holding tax collection status of Pakundia Paurashava FY 10/11 FY 11/12 FY 12/13 Demand Amount 532, ,260,310 Payment Amount 332, , ,315 Differences between HT demand and HT payment 200, , ,995 Tax Collection Rate in %

157 Chapter Four: Analysis of empirical evidence - Findings on Mandatory Functions of the Paurashava 4.1 Paurasahavas performance on mandatory functions The secondary data/information collected from the seven pilot Paurashavas is the empirical evidence of this study. In order to clarify the gap between what they are supposed to do and what they actually do, the following information was collected and analyzed: a) Self-assessment of their performance; b) Specific activities they are engaged in with to perform each mandatory function; c) The level of their performance (e.g. coverage); d) Factors for insufficient performance (if their performance is insufficient) Though the researchers tried to assess performance of the seven Paurashavas on the basis of both their perception and quantitative indicators, they do not have quantitative data to indicate their service coverage regarding most of the mandatory functions. Therefore information presented in this Chapter is based mainly on their perception Functions related to infrastructure development/planning and implementation of urban development plan including building control (1) Formulation of a master plan (No. 32 Master Plan of the second schedule) A municipality shall draw up a Master Plan for the municipality within five years of formation or implementation of this ordinance. Out of seven, only one Paurashava (Shailkupa) has already had Master Plan. Their Master Plan was prepared by LGED s consultant under Upazila Town Infrastructure Development Project (UTIDP). In three Paurashavas (Sengarchar, Ulipur and Bakerganj) Master Plans are being prepared also under UTIDP in consultation with these Paurashavas. For preparing Master Plans participated consultation workshop along with the councilors and local people held by LGED, provided information requested by LGED consultant. The remaining three Paurashavas (Atghoria, Kanaighat and Pakundia) have yet not had any Master Plan. The reasons they mentioned are: lack of guidelines; lack of knowledge about exactly what they need to do; and lack of capacity or manpower. (2) Inspection and control of execution of site development schemes (No. 34 Execution of Site Development Schemes of the second schedule) The execution of a site development Schemes shall be subject to the inspection and control of the municipality and the municipality may give such directions with regard to the execution of the Scheme as may be necessary for the proper development of site. Our interviews revealed that none of the studied Paurashavas was found to inspect and control the execution of site development schemes. Answer Number Paurashavas of No Yes, but very little. Yes, to a certain extent. Yes, sufficiently. 7 (100%) Paurashava category All (A, B, C)

158 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey The reasons for not performing this function are mostly lack of specific guidelines, they do not know what to do regarding site development scheme and how to do it. The other reasons are; shortage of manpower and skills; lack of demand from the citizen; and absence of such scheme in some Paurashavas. (3) Approval of building plans (No. 35 Erection and Re-erecction of Buildings of the second schedule) No person shall erect or re-erect a building or commence to erect or re-erect a building unless the site has been approved, and the building plan has been sanctioned by the municipality. All of the studied Paurashavas answered that they work for approval of building plans but not sufficiently. Answer No Yes, but very little Number of Paurashavas Yes, to a certain extent Yes, sufficiently. 0 3 (42.86%) 4 (57.14%) 0 Paurashava category - All (A, B, C) C - Paurashavas job in this regard as they understand is to check legal papers and land ownership only when they receive the application and to approve fees from the citizen with layout design and legal papers. Then the application will be registered for approval. Layout design and other land related legal papers are examined by the engineers from field visit. The coverage and total number of building approval during last fiscal year were varied from Paurashava to Paurashava. Table 4-1 shows the coverage: Table 4-1: Building plan approval coverage in the FY Paurashava Shailkupa Sengarchar Pakundia Kanaighat Atghoria Ulipur Bakergonj Coverage 88% N.A. 50% 40% 40% 72% Source: SPGP Survey Team The reasons of limited capacity/performance in approval of building plans are mostly lack of manpower and in some cases lack of guidelines though the act says no person shall erect or re-erect a building or commence to erect or re-erect a building unless the site has been approved, and the building plan has been sanctioned by the municipality. (4) Inspection on completed buidlings (No. 36 Completion of Buildings, Alteration of Buildings, etc. of the second schedule) The municipality shall cause every building which has been completed to be inspected according to land use of Master Plan or Land Development Scheme, Design, Risk Probability, etc. on construction/re-construction of buildings. Among the studied Paurashavas only two Paurashavas (Sengarchar and Ulipur) inspect the completed buildings but in small scale. No other Paurashavas inspect completed buildings. Answer No Yes, but very little. Number of Paurashavas Paurashava category Yes, to a certain extent. Yes, sufficiently. 5 (71.4%) 2 (28.6%) 0 0 All (A, B, C) B and C

159 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Sengarchar Paurashava inspects only bazaar side building, major commercial buildings or any buildings constructed beside any major roads. Ulipur Paurashava authority checks to what extent those buildings are in accordance with the site plan and design. Areas of their service Number of Paurashavas Paurashava Category Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava Sador and the adjacent areas The whole area of Paurashava Other 1 (14.29%) (85.7%) C All (A, B, C) It is very clear that Sengarchar and Ulipur Paurashavas inspection works coverage are confined only within the sadar 8 areas and the adjacent areas. These two Paurashavas do not have any record of the number of buildings they inspect in a particular period of time. The reasons for insufficient/not inspecting the completed buildings are mostly lack of manpower and lack of guidelines. Lack of demand from citizen s side is also one of the reasons but to a lesser extent. (5) Construction and maintenance of Public Streets ((1) of No. 38 Public Streets of the second schedule) A municipality shall provide and maintain such public streets and other means of public communication as may be necessary for the comfort and convenience of the inhabitants of the municipality and of the visitors thereto. Construction of Public Streets Every Paurashava constructs public street though not to the level to meet the demand of the citizen. They construct either very little or to a certain extent. Answer No. Yes, but very little. Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 0 6 (85.7%) 1 (14.3%) 0 - All (A, B, C) C - The Paurashavas have had some common activities to construct public streets. The Paurashavas select some roads construction projects according to the demand of the Councilors which are decided in the council meetings. The engineering division designs the project, estimates the costs and submits it to the Council for final approval. After obtaining the final approval from the Council, they go for tendering. All the surveyed Paurashavas stresses lack of financial resources as the main reason for insufficient construction of public streets. No technical issues such as lack of manpower and ignorance of what to do are recognized much by them. Maintenance of Public Streets A municipality shall, in the prescribed manner, prepare and execute a Road Maintenance and Development Programme, which shall form a part of the budget, and the Prescribed Authority may alter or amend the Programme in such manner as it considers necessary. 8 The ward sadar refers to the central area of a Paurasahava. 14

160 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey None of the surveyed Paurashavas has carried out sufficient public street maintenance works. In fact, most of them conduct very little works. For maintenance, they do fill up the whole, repair shoulders and others. The activities regarding public street maintenance is more or less common to all pilot Paurashavas. Answer No Yes, but very little. Yes, to a certain extent Yes, to a certain extent Number of Paurashavas 0 5 (71.4%) 2 (28.6%) 0 Paurashava Category - B and C A and B - Though public street maintenance is common to all 7 pilot Paurashavas but it is also poorly done only because of financial constraints in their perception. (6) Execution of road maintenance and development programme ((2) of No. 38 Public Streets of the second schedule) A municipality shall, in the prescribed manner, prepare and execute a Road Maintenance and Development Programme, which shall form a part of the budget, and the Prescribed Authority may alter or amend the Programme in such manner as it considers necessary. All the 7 pilot Paurashavas have road maintenance and development programme as a part of the annual budget but only Pakundia Paurashava was found to consider their work sufficient. Other Paurashavas execute it on a small scale. Answer No. Yes, but very little. Number of Paurashava Paurashava Category Yes, to a certain extent. Yes, sufficiently 0 3 (42.85%) 3 (42.85%) 1 (14.3%) - B and C All (A, B, C) B All the Paurashavas undertake the road maintenance and development programme as a part of the annual budget wherever necessary, not focusing on any particular area. Covered Areas Number of Paurashavas Paurashava Category Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava sadar and the adjacent area The whole area of Paurashava 7 (100%) All (A, B, C) Other All the Paurashavas mentioned the reasons for insufficient road maintenance and development programme as part of the annual budget is exclusively lack of financial resources. (7) Approval of construction of new streets (No. 39 Streets of the second schedule) No new street shall be laid out except with the previous sanction of the municipality and in conformity with the terms and conditions of such sanction. Among the seven studied Paurashavas none was found to approve construction of new streets. Because the Paurashavas do not think this work is important for them to do. 15

161 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Answer No. Yes, but very little. Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 7 (100%) All (A, B, C) The main reason of Pakundia, Kanaighat and Atghoria Paurashavas for not performing this function is insufficient guidelines with regard to this work. According to Sengarchar and Kanaighat Paurashavas, the organizations such as the Road and Highway Department (RHD) and Local Government Engineering Department (LGED) have a sense of superiority and they do not find it necessary to obtain approval from the Paurashavas for their road construction works. All the seven pilot Paurashavas opined that for this function they lack skills and they do not consider that this is an important work form them Functions for maintenance of security and discipline (1) Civil defense of the municipality (No. 46 Civil Defense of the second schedule) A municipality shall be responsible for the Civil Defense of the municipality, and it shall, in this behalf, perform such functions as may be prescribed. By civil defense, the GOB means maintenance of law and order, protection of the citizen s life and property from the miscreants and encroachers and also protection of the government/local government s property. For these purposes, the Paurashavas would have its own police force to be called Paura Police. All the studied Paurashavas claim that they perform civil defense works but not sufficiently. Although civil defense functions are not clearly defined in the Paurashava Act, they mainly work to settle local disputes or redress grievances. Sometimes they seek cooperation from local thana (police station). Answer No. Yes, but very little. Number of Paurashava Paurashava Category Yes, to a certain extent. Yes, sufficiently 0 4 (57.1%) 3 (42.91%) 0 - B and C All (A, B, C) - No Paurashava is found to perform this work sufficiently. Moreover, the activities the Paurashavas perform by the name of civil defense and what GOB perceives as civil defense functions do not seem to be identical. However, the reasons given by the Paurashavas for insufficient activities on civil defense range from lack of civic demand to lack of manpower, lack of guidelines, lack of skill, lack of Mayors authority, depending on Paurashavas. None of the 7 Paurashava established Paura Police indeed and the Paurashavas work with GOB agencies (local police station) for security of the citizens. Though their civil defense activities are limited, they cover the entire Paurashavas for whatever they do for civil defense. 16

162 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Area covered Number of Paurashava Paurashava Category Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava sadar and the adjacent areas The whole area of Paurashava Other 2 (28.6%) (57.1%) 1 (14.3%) B and C - - All (A, B, C) C (2) Maintenance and administration and registration of burial and cremation ground (No. 49 Graveyard and Cremation Ground of the second schedule) A municipality may provide suitable places for the burial and cremation of the dead, and shall take necessary measures for the proper maintenance and administration of such burial and cremation ground. The Government may, by notification in the official Gazette, declare that any burial or cremation ground which is open to public for burial or cremation shall vest in a municipality and thereupon such burial or cremation ground shall vest in the municipality, and the municipality shall take all measures necessary for the proper maintenance and administration thereof. Every burial or cremation ground which is not administered by a municipality shall be registered with the municipality and shall be subject to regulation, supervision and inspection by the municipality in such manner as the by-laws may provide. No new burial or cremation ground shall be established within a municipality, except under a license granted by the municipality, and in conformity with the conditions of such license. Except Ulipur Paurashava, no Paurashava neither maintains nor administers graveyard/burnyard established by Paurashava or GOB. Ulipur Paurashava considers their work in this area is also insufficient. They only repair and keep clean one graveyard and one burnyard when needed. No Paurashava works on registration of graveyards/burnyards not administered by Paurashava. Maintenance Answer Number of Paurashavas Paurashava Category No. 6 Paurashava (85.7 %) Yes, but very little. 1 Paurashava (14.3 %) Yes, to a certain extent. Yes, sufficiently All (A, B, C) B - - No graveyard/ burnyard established by Paurashava/GOB Registration Answer No Yes, but very little. Number or Paurashavas Paurashava Category 7 Paurashava (100%) All (A, B, C) Category of Paurashava Yes, to a certain extent. Yes, sufficiently No Paurashava No Paurashava No Paurashava The main reason for not maintaining and registering graveyard/burnyard is that they do not think it is an important work for the Paurashava. Sengarchar Paurashava replied that the citizens do not have demand and do not bother registering their graveyard and burnyard. Kanaighat Paurashava mentioned a different reason. They are a new Paurashava and not capable to own graveyard/ burnyard. 17

163 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Functions related to water supply and drainage (1) Water supply (No. 10 Water Supply of the second schedule) A Municipality shall, within the limits of the funds at its disposal, provide, or cause to be provided, to the municipality a supply of wholesome water sufficient for public and private purposes. Among the seven Paurashavas Shailkupa, Pakundia and Bakerganj Paurashava arrange supply of safe water but Pakundia and Bakerganj Paurashava arrange on a small scale while Shailkupa, the only A category Paurashava, finds their work sufficient. No other Paurashavas arranges water supply. Answer No Yes, but very little Number of Paurashavas Paurashava Category Yes, to a certain extent Yes, sufficiently 4 (57.14 %) 1 (14.3%) 1 (14.3%) 1 (14.3%) B and C C B A Only Shailkupa Paurashava has both water pipeline and tube-well to provide water supply while Pakundia and Bakergonj Paurashavas supply only through tube-well. The household coverage is shown in Table 4-2 below: Table 4-2: Water Supply Coverage Mode of Water Supply Shailkupa Pakundia Bakerganj Pipeline 8.1% (700 households) No pipeline No pipeline Tube-well No record available No record available Source: SPGP Survey Team Approximately 10% (420 households) Areas covered Number of Paurashavas Paurashava Category Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava sadar and the adjacent areas The whole area of Paurashava Other (No service) 3 (42.9%) (57.14%) All (A, B, C) B and C The reason for insufficient arrangement of supply of safe water is mainly lack of financial resources. Sengarchar, Pakundia, Kanaighat and Ulipur Paurashava have specifically mention about financial lacking. In addition to financial lacking, Atghoria Paurashava pointed out lack of water sources and lack of knowledge what to do for supply of safe water as reasons. On the other hand Bakergonj Paurashava cannot provide safe water supply sufficiently because of lack of equipment and electricity problem. The Department of Public Health Engineering (DPHE) of the GOB provides support to four Paurashavas for supply of safe water. DPHE establishes tube wells for both drinking and irrigation purposes. It is also undertaking development of water supply network master plan. (2) Regulation of private water sources (No.11 Private Sources of Water Supply of the second schedule) All private sources of water-supply within a municipality shall be subject to control, regulation and inspection by the Municipality. 18

164 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey None among the seven studied Paurashavas control and regulate private water sources. Answer No. Yes, but very little. Number of Paurashavas Paurashava Category 19 Yes, to a certain extent. Yes, sufficiently 7 (100%) All (A, B, C) The main reason for not controlling private water sources is that they do not think it is important work for the Paurashava. For Kanaighat Paurashava, lack of financial resources is the main reason. Actually none of the Paurashavas knows what to do to control private water sources. (3) Construction and maintenance of public drains (No.12 Drainage of the second schedule) A Municipality shall, within the limits of the funds at its disposal, provide an adequate system of public drains in the municipality and all such drains shall be constructed, maintained, kept, cleared and emptied with due regard to the health and convenience of the public. All the Paurashavas have carried out drain construction and maintenance works. All of the seven Paurashavas opined that they work to a certain extent or very little on this function. Answer No. Yes, but very little. Construction Number of Paurashava Paurashava Cateogry Maintenance Number of Paurashava Paurashava Cateogry Yes, to a certain extent. Yes, sufficiently 0 6 (85.7%) 1 (14.3%) 0 - All (A, B, C) B (57.1%) 3 (42.9%) 0 - All (A, B, C) B and C - For drain construction the Paurashavas conduct survey and place the survey report before Paurashava council meeting, then prepare design and estimates and for tendering for pacca and katcha drain. The Paurashavas also provide pipe lines temporarily to remove stagnant water and channelize the existing natural drainage system. Major activities conducted for maintenance of public drains are to provide slabs, change slabs, repair or re-construct side walls of existing pucca drains, provide new connections and clean every day. All the seven Paurashavas mentioned lack of financial resources for insufficient performance regarding construction of public drains. Shailkupa, Kanaighat and Ulipur Paurashavas also pointed out that the absence of a drainage master plan prevents them to do comprehensive work. In addition to this, Kanaighat Paurashava does not know exactly what to do Functions related to sanitation (1) Provision and maintenance of public toilets (No.4 Public Toilet of the second schedule) A municipality shall provide and maintain, in sufficient number and in proper situation, public latrines and urinals for the separate use of each sex, and shall cause the same to be kept in proper order, and to be properly cleaned. Most of the studied Paurashavas work for provision of public toilets. On the other hand, for

165 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey maintenance, four of them answered that they do nothing. This may be because the public toilets Paurashavas provide are maintained and cleaned by private companies to which Paurashavas have leased out public toilets. Provision Answer No. Yes, but very little. Number of Paurashavas Paurashava Category Maintenance Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 1 (14.3%) 5 (71.4%) 1 (14.3%) 0 B All (A, B, C) C - 4 (57.1 %) 1 (14.3%) 0 2 (28.57 %) All (A, B, C) B - B and C The Paurashava coverage of public toilets construction is only the bazaar areas or bus stand which are adjacent to Paurashava sadar. The number of each Paurashava s public toilets is two at the maximum. Since most of the existing public toilets are basically located in Paurashava sadar and the adjacent areas, the number of existing public toilets can be considered lower than the demand. Areas Covered Construction Number of Paurashava Paurashava Category Maintenance Number of Paurashava Paurashava Category Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava sador and the adjacent areas The whole area of Paurashava Other 1 (14.3%) 0 4 (14.3%) 1 (14.3%) 1 (14.3%) C - B and C A C 4 (57.4%) 1 (14.3%) (28.6%) B and C C - - A and C Two most significant reasons for insufficient arrangement of public toilets in their perception are lack of demand and lack of financial resources. Some Paurashava also mentioned lack of citizen s demand and lack of manpower to perform the function Functions related to waste management (1) Waste removal and collection (No.3 Waste Removal, Collection ad Management of the second schedule) A municipality shall make adequate arrangements for the removal of refuse from all public streets, public latrines, urinals, drains, and all buildings and land vested in the municipality and for the collection and proper disposal of such refuse. Only Shailkupa Paurashava answered they have sufficient arrangement for removal of waste from the public places. The other Paurashavas think they perform this function either to certain extent or very little. For collection, their performance is worse. Three out of the seven Paurasahavas do not work on waste collection. 20

166 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Removal Answer No Yes, but very little. Number of Paurashava Paurashava Category Collection Number of Paurashava Paurashava Category Yes, to a certain extent Yes, sufficiently 1 (14.3%) 1 (14.3%) 4 (57.1 %) 1 (14.3%) B C B and C A 3 (42.9%) 2 (28.6%) 2 (28.6 %) 0 B and C B and C A and B - Paurashavas involve sweepers who remove wastes from the bazaar area using vans. Although some large Paurashavas work with NGO or any private bodies in waste removal/collection, none of the studied Paurashavas involve NGOs in this regard. The Paurashavas remove waste only from the bazaar areas which are adjacent to Paurashava sadar. Only Shailkupa Paurashava could provide approximate figure of removal coverage, which is 25% of the total waste. Three out of the 4 Paurasahavas which work for waste collection does that only around the bazaar areas of the Paurashava sadar. Areas covered Removal Number of Paurashavas Paurashava Category Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava Sador and the adjacent areas The whole area of Paurashava 1 (14.3%) 0 6 (85.7%) 0 0 B - All (A, B, C) - - Other Collection Number of Paurashavas Paurashava Category 0 1 (14.3%) 3 (42.9%) 0 3 (N.A.) - B All (A, B, C) - B and C Lack of citizens demand is found as the basic reason of insufficient removal of waste from the public places. Moreover, there are financial constraints as well. Mostly, B and C category Paurashavas are located in rural areas. The citizens of those Paurashavas do not need Paurashava s arrangement for collection and removal of the wastes as they can manage it themselves. Moreover, the citizens are also not habituated to let the work done by the Paurashavas. Regarding disposal of waste, all the Paurashavas recognize that they do not work for it or work very little. Answer No Yes, but very little Number of Paurashavas Paurashava Category 21 Yes, to a certain extent Yes, sufficiently 5 (71.4%) 2 (28.57%) 0 0 B and C A and B - - No Paurashava has designated dumping sites. Some Paurashavas dump the garbage in the low lands and some in the nearby river bank. These places are determined by the Paurashavas and they do not bother obtaining public consent for it. However the Paurashavas take into consideration

167 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey whether it might create problems in the adjacent areas. The reasons for insufficient/improper waste disposal are lack of citizen s demand and lack funds. The Paurashavas are not able to incur the cost necessary for purchase of land and preparation of the lands for waste dumping Functions related to birth and death registration (1) Birth, death and marriage registration (No.5 Birth, Death and Marriage Registration of the second schedule) Municipality shall register all Births, deaths and marriages within the limits of the municipality an information of such Births, deaths and marriages shall be given by such persons or authorities, and shall be registered in such manner, as the by-laws may provide. Most of the studied Paurashavas claim that they work for birth and death registration sufficiently while no Paurashava works for marriage registration. Although work involved in registration is almost the same in all Paurashavas getting concerned councilor to testify application from citizens and issuing certificates-, Three Paurashavas (Shailkupa, Sengarchar and Pakundia since 2011) out of the seven Paurashavas, the registration process is computerized Answer No Yes, but very little Number of Paurashavas Paurashava Category 22 Yes, to a certain extent Yes, sufficiently 0 1 (14.3%) 0 6 (85.7.3%) - C - All (A, B, C) In most of the Paurashavas birth and death registration coverage is very good ranging from 75% to 100% according to figures given by them though Ulipur and Sengarchar Paurashavas do not have such records. The only Paurashava that does not consider their work on birth and death registration sufficient attribute their poor performance to lack of manpower and citizens ignorance Functions related to Traffic management planning for better transport management, passenger shade, road light, parking place, bus stand and bus stop (1) Lighting of public streets (No.41 Street Lighting of the second schedule) A municipality shall take such measures as may be necessary for the proper lighting of the public streets and other public places vesting in the municipality by oil, gas, electricity or such other illuminant as the municipality may determine. Only three Paurashava provide street light but in a very small scale though this is one of the most demanded services by the citizens. They obtain approval from the Rural Electricity Board (REB) and then go for tendering to install lights. The Paurashavas do not install light pole. They provide lights only on the pole installed by the REB. Answer No. Yes, but very little. Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 4 (57.1 %) 1 (14.3%) 2 (28.6%) 0 B and C C A - Coverage of street lighting of these Paurashavas is only bazaar as well as Paurashava sadar areas.

168 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Shailkupa Paurashava have provided a total of 127 street lights on 14.5 km of roads on the core area of the Paurashava while the Bakerganj have provided 200 lights. Other Paurashavas could not provide the figure. In most of the cases the reasons for insufficient/not providing street light are lack of financial resources. Shortage of manpower and lack of skills are not significant factors. (2) Watering of public streets (No.42 Street Watering of the second schedule) A municipality shall take such measures as may be necessary for the watering of public streets for the comfort and convenience of the public, and may, for this purpose, maintain such vehicles, staff and other apparatus as may be necessary. The interview survey revealed that none of the studied Paurashava works for watering public streets. Answers No. Yes, but very little. Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 7 (100%) All (A, B, C) There are various reasons for not watering public streets such as lack of demand from the citizen, lack of manpower, lack of financial resources. Some Paurashavas are not even aware that watering public street is their responsibility. The studied Paurashava mentioned various reasons. Sengarchar, Ulipur and Bakerganj Paurashavas claimed that they have financial constraints and Pakundia and Ulipur Paurashavas consider that lack manpower and lack of demand from the people are the reasons. The other Paurashavas do not know how to provide the service. (3) Control and regulation of traffic (No.43 Traffic Control of the second schedule) A municipality shall, by by-laws, make such arrangements for the control and regulation of traffic as may be necessary to prevent danger to, and ensure the safety, convenience and comfort of, the public. Only three Paurashavas (Shailkupa, Kanaighat and Bakerganj) work on traffic control but on a very small scale. Traffic regulation is only looked after by two Paurasahavas though not sufficiently. The traffic control and regulation works of these Paurashavas are conducted along with local police and sometimes by the muster role people in bazar areas, bus stand or/and in front of schools/ colleges during public examinations. Control Answer No. Yes, but very little. Number of Paurashavas Paurashava Category Regulation Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 4 (57.1 %) 3 (42.9%) 0 0 B and C All (A, B, C) (71.4 %) 1 (14.3%) 1 (14.3%) 0 All (A, B, C) C C - The coverage of traffic control and regulation in the Paurashava is mainly Paurashava sadar and the adjacent areas of Paurashava sadar only. 23

169 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Areas Covered Number of Paurashavas Paurashava Category Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava sadar and the adjacent areas The whole area of Paurashava Other (42.9%) 0 4 (57.1 %) - - All (A, B, C) - B and C Irrespective of categories, no Paurashavas perform traffic control and maintenance activities sufficiently. The reasons are mainly lack of demand of the citizen and lack of manpower. The other reasons include lack of guidelines and lack of financial resources. (4) Licensing of vehicles ((1) of No.44 Public Vehicles of the second schedule) No person shall keep or let for hire or drive or propel within the limits of a municipality any public vehicle, other than a motor vehicle, except under a license granted by the municipality. Most of the Paurashavas do not work for licensing of vehicles. Only Shailkupa Paurashava opined that they perform it sufficiently, Ulipur and Bakergonj Paurashavas works to a certain extent. No C category Paurashavas is found to work for licensing of vehicle while the only one studied Paurashava has found to work licensing sufficiently Answer No. Yes, but very little. Number of Paurashavas Paurashava Category 24 Yes, to a certain extent. Yes, sufficiently 4 (57.14 %) 1 (14.3%) 1 (14.3%) 1 (14.3%) B and C B B A These Paurashavas only give license to the non-motorize vehicles (rickshaw and van). The rickshaw/van owner applies to the Mayor in a plain paper and the license inspector inspects it and provides a license. The coverage of licensing of these Paurashavas is not more than 60%. The reasons for insufficient work are lack of demand of the citizens and the citizens do not bother getting licenses. Moreover the Paurashavas people do not find the service important. (5) Setting of the rate of fares for the use of public transportation ((3) of No.44 Public Vehicles of the second schedule) A municipality shall, in such manner as by-laws may provide, and with the previous approval of the Prescribed Authority, fix the rates of fares for the use of public vehicles, and no person plying a public vehicle shall charge a fare in excess thereof. Most of the Paurashavas do not work for setting rates of fares of public transports. Only Bakerganj Paurashava is found to do some work in this regard. They invite rickshaw pullers to the Paurashava office and the Mayor and councilors sit together with them to decide the fares but it is hardly followed. Answer No. Yes, but very little. Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 6 (85.71 %) 0 1 (14.3%) 0 All (A, B, C) - B - The Paurashavas attribute their insufficient performance to lack of citizens demand and also they do not consider it important work for them.

170 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Functions related to public health, environment conservation and tree plantation (1) Prevention and control of infectious diseases (No.6 Infectious Diseases of the second schedule) A Municipality shall adopt such measures to prevent infectious diseases and to restrain infection within the municipality as the rules and by-laws may provide. Less than half of the studied Paurashavas to a certain extent works for controlling infectious diseases. Shailkupa Paurashava provides BCG vaccine to control tuberculosis. Pakundia Paurashava gives immunization to combat water phobia in collaboration with other agency and Bakerganj Paurashava works along with the Upazila Health Complex. Answer No. Yes, but very little. Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 4 (57.14%) 1 (14.3%) 2 (28.;6%) 0 B and C A B and C - These three Paurashava do not work in specific areas but needful areas of the Paurashava. Accoroding to Shaikupa Paurashava, their BCG vaccination coverage is approximately 95%. Other Paurashavas could not provide any figures regarding coverage of their services. Areas covered Number of Paurashavas Paurashava Coverage Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava sadar and the adjacent areas The whole area of Paurashava Other 2 (28.6%) (14.3%) 4 (57.1 %) B and C - - A B and C The major reason for insufficient work for controlling infectious diseases is lack of manpower. Among other reasons lack of citizens demand is also significant. Though the Shailkupa Paurashava does not have Medical Officer, their manpower is better than other Paurashavas. (2) Plantation and protection of trees on public streets and other public places (No.50 Arboriculture of the second schedule) A municipality shall plant trees on public streets and other public places within the municipality and take all such stepaurashava protection of trees. Except Sengarchar and Ulipur Paurashavas all other Paurashavas work for plantation and protection of trees on public streets and other places. They do not plant trees by themselves but lease out the road sides to the local people for tree plantation. Among these Paurashavas who have leased out tree plantation works to the local people, Shailkupa, Kanaighat and Bakerganj Paurashavas find their work sufficient. Answer No. Yes, but very little. Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 2 (28.6%) 1 (14.3%) 1 (14.3%) 3 (42.9%) B and C B C All (A, B, C) The Paurashavas which work for plantation and protection of trees on public streets and other places 25

171 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey covers whole areas of Paurashava. Area Covered Number of Paurashavas Paurashava Category Other Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava sadar and the adjacent areas The whole area of Paurashava 2 (28.6%) 2 (28.6%) (42.9%) B and C B and C - - All (A, B, C) The Paurashavas which cannot work for plantation and protection of trees raised lack of financial resources as the main reason. This response is not convincing as Paurashava like Kanaighat which is financially most weak among the studied Paurashavas is able to do it sufficiently. Moreover, leasing out the work to the local people does not require financial resources. Perhaps the actual reason is that they do not give priority to it or they do not consider that it is their work Functions related to establishment and management of markets and slaughter houses (1) Establishment, maintenance and development of public markets (No.21 Public Markets of the second schedule) Responsibility to establish, maintain and development of public markets situated in municipal area goes to municipality. Only three Paurashavas work for establishment of public markets in any way while all of the seven Paurashavas engage in maintenance of their markets. Pakundia, Ulipur and Bakerganj Paurashava consider their work on maintenance of their markets sufficient indeed. Paurashava s activities include assessment of demand considering prospective income of the Paurashava, selection of a site and construction of facilities. Answer No. Yes, but very little. Yes, to a certain extent. Yes, sufficiently Establishment Number of Paurashavas 4 (57.14%) 1 (14.3%) 2 (28.6%) 0 Paurashava Category B and C B A and B - Maintenance Number of Paurashavas 0 4 (57.14%) 0 3 (42.9%) Paurashava Category 0 All (A, B, C) - B and C As markets are generally set up in busy areas, the area coverage of two of the three Paurashavas that work on establishment of public markets is confined to Paurashava sadar and the adjacent areas. The maintenance coverage of three Paurashavas is almost 100 percent. Areas Covered Number of Paurashavas Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava sadar and the adjacent areas The whole area of Paurashava Other (28.6%) 1 (14.3%) 4 (57.14%) 26

172 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Paurashava Category - - A and B B B and C Lack of financial resources is the only reason for their insufficient work on this function. The A category Paurashava cannot work for construction and maintenance of public markets in the whole areas of Paurashava and they cannot sufficiently work for maintenance of public markets while the B and C category Paurashavas are doing it sufficiently. This is mainly because markets of smaller category Paurashavas are generally smaller in number as well as size and are easier to maintain. (2) Licensing and regulation of private markets (No.22 Private Markets of the second schedule) No private market shall be established or maintained within a municipality except under a license granted by the municipality and in conformity with the conditions of such license. None of the seven Paurashavas works on this function. Answer No. Yes, but very little. Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 7 (100%) All (A, B, C) It seems that neither the Paurashavas nor the citizens are aware of what they are supposed to do. The reasons mentioned by the Paurashava for not performing this function are: market owners do not bother obtaining license; they do not have guidelines; and do not know exactly what we need to do. Even the A category Paurashava (Shailkupa) could not institutionalize licensing to establish private markets. (3) Provision and maintenance of slaughter houses (No.23 Slaughter Houses of the second schedule) A municipality shall provide and maintain at such site or sites within or without the limits of the municipality as the Prescribed Authority may approve one or more slaughter-houses for the slaughter of animals for sale. Except Sengarchar and Bakerganj all other Paurashavas have established slaughter house though only Shailkupa and Pakundia Paurashavas are confident that they have done it sufficiently. Maintenance work (keep clean, repair sheds etc.) of these slaughter houses are taken care of by the people who regularly have meat business in the markets. Answer No. Yes, but very little. Number of Paurashavas Paurashava Category Yes, to a certain extent. Yes, sufficiently 2 (28.6%) 3 (42.9%) 0 2 (28.6%) B and C B and C - A and B In order to establish and maintain a slaughter house, the Paurashavas construct pavements and sheds and some of them appoint a moulana (religious person) to slaughter the animals. Those activities are confined in the Paurashava sadar areas. Areas Covered Wherever necessary Only the distant areas from Paurashava sadar Only Paurashava sador and the adjacent areas The whole area of Paurashava Other 27

173 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Number of Paurashavas Paurashava Category (57.14%) 0 3 (42.9%) - - All (A, B, C) - B and C Irrespective of categories, the Paurashavas gave lack of funds as the main reason for not establishing slaughter houses. Some Paurashavas also pointed to absence of guidelines. 4.2 Comparison of Paurashavas performance on mandatory functions Overview of Paurasahavas performance on mandatory functions According to the self-assessment of the Paurashavas respondents, Paurashava s performance varies from one mandatory function to another. Table 4-3 shows the overall status of the seven Paurashavas performance on mandatory functions. The status by function is determined by weight calculated based on the self-assessment of Paurashava Mayors and officials. Each answer of Paurashava was given a score (4: Yes, sufficiently; 3: Yes, to a certain extent; 2: Yes, but very little; and 1: No) and the average score was given in the table. The survey team determined the general status of Paurashavas performance. A score of 1 means that the function is not performed (service is not provided). A score of >1 and 2 can be interpreted poorly performed, >2 and 3, moderately performed, and >3 and 4, sufficiently performed. Table 4-3: Comparative status of Paurashavas performance on mandatory functions Mandatory Function* No Responses from Paurashavas Yes, but very little Yes, to a certain extent Yes, sufficiently Score* Status Regulation of private water sources 7 PS (All ) No PS No PS No PS 1.0 No service Inspection & control of execution of site development schemes 7 PS (All) No PS No PS No PS 1.0 No service Approval of construction of new streets 7 PS (All ) No PS No PS No PS 1.0 No service Watering of public streets 7 PS (All) No PS No PS No PS 1.0 No service Registration of private graveyard and cremation ground 7 PS (All) No PS No PS No PS 1.0 No service Collection of waste 3 PS (B, C) 2 PS (B, C) 2 PS (A, B) No PS 1.9 Poor Disposal of waste 4 PS (B, C) 2 PS (A, C) No PS 1 PS (B) 1.7 Poor Provision of public toilets 1 PS(B) 5 PS (All) 1 PS(C) No PS 2.0 Poor Maintenance & cleaning of public toilets 4 PS (All ) 1 PS(B) No PS 2 PS (B, C) 2.0 Poor Prevention & control of infectious diseases 4 PS (B, C) 1 PS(A) 2 PS (B, C) No PS 1.7 Poor Water supply 4 PS (B, C) 1 PS(C) 1 PS (B) 1 PS (A) 1.9 Poor Establishment of public markets 4 PS (B, C) 1 PS(B) 2 PS (A, B) No PS 1.7 Poor Licensing and regulation of private markets Provision and maintenance of slaughter houses Formulation of Master Plan 7 PS (All) No PS No PS No PS 1.0 Poor 2 PS (B, C) 3 PS (B, C) No PS 2 PS (A, B) 2.0 Poor No PS prepared or is preparing the Master plan by themselves, LGED developed it for 1 Paurasahava (A category) and is developing it for 3 Paurashava (B category). Inspection of completed buildings 5 PS (All ) 2 PS (B, C) No PS No PS 1.3 Poor Lighting of public streets 4 PS (B, C) 1 PS (C) 2 PS (A, B) No PS 1.7 Poor Poor 28

174 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Control of traffic 4 PS (B, C) 3 PS (All ) No PS No PS 1.4 Poor Regulation of traffic 5 PS (All) 1 PS (C) 1 PS (C) No PS 1.4 Poor Licensing of non-motalized vehicles 4 PS (B, C) 1 PS (B) 1 PS (B) 1 PS(A) 1.9 Poor Fixing of the rates of fares for public transportation (non-motorized) Maintenance & administration of public graveyard & cremation ground 6 PS (All) No PS 1 PS (B) No PS 1.3 Poor 6 PS (All ) 1 PS(B) No PS No PS 1.1 Poor Removal of waste 1 PS (B) 1 PS (C) 4 PS (B, C) 1 PS (A) 2.7 Moderate Construction of public drain No PS 5 PS (All) 1 PS (B) 1 PS (B) 2.4 Moderate Maintenance of public drain No PS 4 PS (All) 3 PS (B, C) No PS 2.4 Moderate Maintenance of public markets No PS 4 PS (All ) No PS 3 PS (B, C) 2.9 Moderate Erection and re-erection of building plans(approval of building plans) No PS 3 PS (All) 4 PS (B, C) No PS 2.6 Moderate Construction of public streets No PS 6 PS (All ) 1 PS(C) No PS 2.1 Moderate Maintenance of public streets No PS 5 PS (B, C) 2 PS(A, B) No PS 2.3 Moderate Execution of road maintenance & development programme No PS 3 PS (B, C) 3 PS(All) 1 PS (B) 2.7 Moderate l Civil defense of the municipality No PS 4 PS (B, C) 3 PS (All ) No PS 2.4 Moderate Plantation & protection of trees on public streets & other public places 2 PS (B, C) 1 PS(B) 1 PS(C) 3 PS (All) 2.7 Moderate Birth, death & marriage registration No PS 1 PS (C) No PS 6 PS (All) 3.7 Sufficient Source: SPGP Survey Team * 1 SPGP team identified twenty-four mandatory functions but some of them were broken into mode detailed functions for the sake of the study (e.g. Provision and maintenance of public streets Provision of public streets and maintenance of public streets). Therefore the number of the functions listed in the table is thirty-four. According to the status given in the table above, the mandatory functions upon which no services are provided by the Paurashavas are: inspection and control of execution of site development schemes; approval of construction of new streets; registration of graveyard and cremation ground; regulation of private water sources; watering of public streets; and licensing and regulation of private markets. The three main reasons for not conducting these functions are: i) lack of demand from the residents; ii) the Paurashavas ignorance of these mandatory functions; and iii) absence of guidelines to perform these functions. Though some Paurashavas cite lack of funds for not conducting some functions such as inspection and control of execution of land development schemes, the Survey Team s observation is that the prime necessity for conducting the core functions is not funds and that the Paurashavas may not have the motivation to provide the services. The functions performed poorly by the Paurashavas include: formulation of a Master Plan; maintenance and administration of graveyard and cremation ground; inspection of completed buildings; fixing of the rate of fares for non-motorized vehicles; control of traffic; regulation of traffic; disposal of waste; lighting of public streets; prevention and control of infectious diseases; establishment of public markets; water supply; collection of waste; licensing of non-motorized vehicles; provision of public toilets; maintenance and cleaning of public toilets; and provision and maintenance of slaughter houses. The main reasons for poor performance of the Paurashavas on these functions are: i) their ignorance of the functions; ii) absence of guidelines; iii) lack of people s demand; and iv) lack of funds. These functions are necessary for the residents to maintain acceptable aesthetic, hygienic, and sound health 29

175 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey and psychological standards. These functions can give the resident a feeling of quality urban living standards that the Paurashavas seem to pay less attention to. Some functions found to be performed by the Paurashavas moderately include: construction of public streets; maintenance of public streets; civil defense of the municipality; construction of public drains; maintenance of public drains; approval of building plans; execution of road maintenance and development programme; removal of waste; plantation and protection of trees on public streets and other public places; and management of public markets. The functions the Paurashavas perform moderately are mainly those pertaining to infrastructure development/maintenance and planning activities. Since ADP grants are allocated mainly for infrastructure development/maintenance, all of the seven Paurashavas perform these activities to some extent. However these activities require far more funds, a lack of finance is the predominant reason for not performing these functions sufficiently. The main reasons for not sufficiently performing other two important functions of Paurashavas, namely removal of waste and civil defense, are lack of demand of the residents on the former and lack of manpower and guidelines on the latter. The only function that is found to be performed sufficiently by the Paurashavas is birth, death and marriage registration. It is closely monitored by GOB through Deputy Commissioner (DC). Paurashavas are to send birth and death registration report to the DC office every month. Moreover, this work costs little; in contrast, it generates income as the recipients of birth and death certificates pay fees for the service. The service is also demanded by the residents. According to the Baseline Survey for Strengthening Paurashava Governance Project (hereinafter the Baseline Survey ) 9 also conducted by the SPGP team, only about one third of the services of the mandatory functions for Paurashava are recognized to be in practice by residents. There is a positive correlation between the degree of residents awareness and elected representatives and officials of Paurashavas self-assessment of their performance. Amongst the mandatory functions, the following functions are conducted by all the seven Paurashavas: birth and death registration; construction of public street; provision and maintenance of public toilets; maintenance of public street; maintenance of public drains; execution of road maintenance and development programme; civil defense of the municipality; and approval of building plans. As discussed above, birth and death registration is the central government s priority task and the citizens demand is also there. As far as infrastructure-related functions are concerned, most of the ADP/GOB grants are allocated for infrastructural development purposes. By utilizing the GOB grants and in order to meet citizens demand, all the seven studied Paurahavas perform these activities. The only A category Paurashava (Shailkupa) seems to be more satisfied with their own performance than other Paurashavas are. They find themselves performing the following mandatory functions sufficiently: water supply; removal of waste; birth and death registration; licensing of non-motorized vehicles; plantation and protection of trees on public streets and other places; and establishment of slaughter house. This can be explained mainly by the bigger size of their budget with revenue from a broader tax base and also by giving more attention to income generating functions such as water supply, removal of waste, birth and death registration, and licensing of non-motorized vehicles. 9 The survey was conducted to measure the level of Paurasahava residents satisfaction and expectations on the public services that are or should be provided by the Paurasahavas. 30

176 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey There are also some functions that C category Paurashavas consider they sufficiently conduct. These functions are: maintenance and cleaning of public toilets (Pakundia, Atghoria); disposal of waste (Pakundia); birth and death registration (Pakundia, Kanaighat, Atghoria); plantation and protection of trees on public streets and other places (Kanaighat); maintenance of public markets (Pakundia); and establishment slaughter house (Pakundia). Setting birth and registration function aside, their services are not actually sufficient in terms of volume. However, because the public need for these functions is small at least in their perception or they have a few facilities to take care of, their coverage regarding those services is small enough to do sufficient work. It is surprising to find that birth and death registration work, which does not have direct impact on quality of lives of the people, is found sufficiently done. In contrast, the services through which the citizens living standard can be raised and people can get real urban flavor are found to be provided poorly. Basically providing birth and death registration sufficiently do not distinguish Paurashavas from any rural entity, which also provide that particular service. It is observed that the Paurashavas are not performing functions that match the priority of people as well as the priority of urbanization Paurasahavas performance on priority services In parallel with the administrative needs assessment survey, SPGP conducted the Baseline Survey on residents perception of Paurasahavas services. The Baseline Survey identified the following services for which Paurasahavas need to improve their capacity: waste disposal; street light; water supply (public); public toilet (construction); public toilet (maintenance); public street (construction); public street (maintenance); drainage (construction); waste removal; and drainage (maintenance). Table 4-4 shows the reasons that the pilot Paurashavas pointed to for their insufficient performance regarding those ten services. Major reasons for insufficient performances are lack of guideline and lack of finance. Table 4-4: Reasons for the insufficient performance of Paurashavas on ten major services Reason for the insufficient performance Mandatory Functions Status Lack of Guideline/ Lack of Lack of Not know Demand Finance what to do Lack of Man power Lack of Skills Other No. of Respon dents* Disposal of waste Poor 4 (23.5%) 2 (17.6%) 6 (35.3%) 1 (6.9%) 1 (6.9%) Resident s reluctance to pay for the service: 6 (35.3%) Problem with land acquisition: 2 (17.6%) Don t think it is important: 4 (23.5%) Other: 5 (41.2%) 17 Lighting of public streets Poor 0 (0.0%) 2 (14.3%) 11 (78.6%) 1 (7.1%) 2 Other: 4 (28.6%) 14 (14.3%) Water supply Provision of public toilets Poor Poor 1 (7.7%) 5 (35.7%) 2 (15.4%) 4 (28.6%) 9 (69.2%) 11 (78.6%) 2 (15.4%) 1 (7.1%) 1 (7.7%) 0 (0.0%) Lack of a pipeline water supply master plan: 2 (15.4%) Other: 3 (23.1%) Don t think it is important:2 (14.3%) Land acquisition problems: 2 (14.3%) Other: 1 (7.1%) Maintenance & cleaning of public toilets Poor 1 (10.0%) - 3 (30.0%) 2 (20.0%) 0 (0.0%) Users reluctance to pay the fee: 1 (10.0%) Other: 5 (50.0%) 10** 31

177 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Construction of public streets Moderate 0 (0.0%) 4 (28.6%) 13 (92.9%) 1 (7.1%) 2 (14.3%) Lack of plans to develop roadway network: 7 (50.0%) Problem on land acquisition: 2 (14.3%) Insufficiency and ineffectiveness of existing PS s process to develop roadway network: 1 (7.1%) Other: 5 (35.7%) 14 Maintenance of public streets Construction of public drains Maintenance of public drains Removal of waste Moderate Moderate Moderate Moderate Source: SPGP Survey Team 0 (0.0%) 0 (0.0%) 0 (0.0%) 11 (61.1%) 9 (64.2%) 5 (35.7%) 1 (7.1%) 1 (5.6%) 14 (100%) 12 (85.7%) 12 (85.7%) 5 (27.8%) 2 (14.3%) 0 (0.0%) 1 (7.1%) 0 (0.0%) 3 Other: 2 (14.3%) 14 (21.4%) 1 (7.1%) 0 (0.0%) 4 (22.2%) Don t have a drainage master plan: 8 (57.1%) Don t think it is important: 1 (7.1%) Other: 1 (7.1%) Don t think it is important: 1 (7.1%) Other: 2 (14.2%) Don t think it is important: 4 (22.2%) Resident s reluctance to pay for the service: 3 (16.7%) NGO/other service providers do the job: 2 (11.1%) Other: 4 (22.2%) * The respondents of each Paurashava are the Mayor and an official in charge of respective services. Those who answered sufficient on their performance were not included. ** Some respondents did not give answers as they lease out public toilets and do not know about the maintenance status Perception of elected representatives and officials of priority functions for capacity development The elected representatives and head of divisions of the seven Paurashavas were asked to choose five priority functions for capacity development for Paurashavas, not for themselves, from amongst the sixty-four functions specified in the 2 nd schedule of the Act including twenty-four mandatory functions 10. Those responded in each Paurashava include the Mayor, the Secretary, the Assistant Engineer, officials of the health and conservancy division if any, officials of the tax section and the Councilors. Officials of the health and conservancy division and the tax section respectively chose five functions collectively for their division/section. The interviewed Councilors of each Paurashava also collectively chose five functions and therefore counted as one respondent. Table 4-5 below shows a percentage of respondents who chose a particular function as one of their five priorities. For instance, four respondents out of the total thirty-seven respondents, which accounts for 10.8%, chose public toilet function. The five functions chosen by the highest numbers of the respondents are: 1) Public streets (78.4% of the total number of respondents); 2) Water supply (59.5%); 3) Drainage (51.4%); 4) Street lighting (37.8%); 5) Waste removal, collection and management (29.7%); and 5) Preparation of master plan (29.7%) 10 For this particular questions, the options are not confined to core functions in order to fully grasp functions of their own priority. 32

178 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Areas Public Health Table 4-5: Paurashava-wise priority functions for capacity development Functions Responsibility for Health Systems Waste Removal, Collection & Management Shailk upa Bakerg anj Number of respondents Sengar char Ulipur Atgha ria Kanai ghat Pakun dia Total % of respon dents Public Toilet Birth & Death Registration Promotion of Public Health Water Supply & Drainage Food and beverage Town planning Building Control Streets Public Safety Education & Culture Hospitals and Dispensaries Medical, Aid and Medical Education, etc Water Supply Drainage Articles of Food and Beverage Public Markets Slaughter House Preparation of Master Plan Erection and Re-erection of Buildings Regulation of Buildings Public Streets General Provisions about Streets Street Lighting Fire Fighting Civil Defense Dangerous & Offensive Articles and Trades Graveyard & Cremation Ground Garden Open Space Education Compulsory Education General Provisions of Education Culture Development Plan Developm Community based ent Development Planning Commercial Schemes Total number of respondents There are no significant differences in priority by category. Table 4-6 below shows category-wise results of the voting. Priorities of the A category Paurashava, namely Shailkupa Paurashava, substantially vary among respondents and also seem to hardly represent those of average A category Paurashavas, which would very possibly choose such functions as public streets, waste removal, 33

179 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey collection and management and water supply, in addition to drainage. It is therefore difficult to make meaningful comparison among categories. However, it is worth noting that priorities chosen by respondents of the A category Paurashava significantly vary from person to person with only one function attracting more than ten percent of respondents. As far as B and C categories are concerned, their priorities are strikingly similar. The only conspicuous difference is that master plan and development plan clearly attract more attention in C category Paurashavas, This is probably because all the three B category Paurashavas are expecting a master plan to be develop under a LGED project, which does not cover the three C category Paurashavas. Table 4-6: Priority functions for capacity development chosen by different categories of Paurashavas A Category (1 Paurashava) Priority Functions No. of respon dents % B Category (3 Paurashava) Priority functions Drainage Public Streets Street Lighting Compulsory Education Graveyard & Cremation Ground Dangerous & offensive Articles and Trades General Provisions about Streets Responsibility for Health Systems Waste Removal, Collection & Management No. of respon dents % 34 C Category (3 Paurashava) Priority functions No. of respon dents % Total (7 Paurashava) Priority functions No. of respon dents Public Streets Public Streets Water Supply Water Supply Water Supply Waste Removal, Collection & Management Drainage Promotion of Public Health Street Lighting Public Toilet Birth & Death Registration Hospitals and Dispensaries Medical, Aid and Medical Education, etc Public Markets Graveyard & Cremation Ground Community based Development planning Preparation of Master Plan Regulation of Buildings Drainage Drainage Preparation of Master Plan Street Lighting Street Lighting Development Plan Waste Removal, Collection & Management Compulsory Education Fire Fighting Articles of Food and beverage Erection and re-erection of buildings Regulation of Buildings Waste Removal, Collection & Management Preparation of Master Plan Compulsory Education Development Plan Public Toilet Medical, Aid and Medical Education, etc Community based Development planning Birth & Death Registration Regulation of Buildings Graveyard & Burn yard Community based Development planning Promotion of Public Health % Public Toilet

180 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Preparation of Master Plan Erection and re-erection of buildings Public Streets Compulsory Education Development Plan Responsibilit y for Health Systems Promotion of Public Health Slaughter House Fire Fighting Fire Fighting Open Space Public Toilet Civil Defense Commercial Schemes Promotion of Public Health Birth & Death Registration Hospitals and Dispensaries Graveyard Cremation Ground & Garden Water Supply 0 - Education Culture Articles of Food and beverage Slaughter House Fire Fighting 0 - Civil Defense 0 - Regulation of Buildings 0 - Garden 0 - General Provisions of Education Commercial Schemes Medical, Aid and Medical Education, etc Public Markets Slaughter House General Provisions about Streets Education 0 - Civil Defense 0 - General Provisions of Education 0 - Dangerous & offensive Articles and Trades 0 - Commercial Schemes Responsibility for Health Systems Hospitals and Dispensaries Articles Food beverage Public Markets of and Erection and re-erection of buildings General Provisions about Streets Dangerous & offensive Articles and Trades Birth & Death Registration Medical, Aid and Medical Education, etc Erection and re-erection of buildings Commercial Schemes Responsibilit y for Health Systems Hospitals and Dispensaries Articles of Food and beverage General Provisions about Streets Dangerous & offensive Articles and Trades Public Markets Slaughter House Civil Defense Garden Open Space Culture 0 - Garden 0 - Open Space 0 - Education Development Plan Community based Development Planning Total number of respondents Source: SPGP Survey Team 0 - Open Space 0 - Education Culture 0 - Total number of respondents General Provisions Education Total number of respondents of General Provisions of Education Culture Total number of respondents Table 4-7 below gives idea about the opinions of the respondents according to positions. There are no 35

181 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey significant differences of priorities found among different positions. Public streets was chosen by the highest number of respondents of every position except for health and conservancy official. Water supply also attracted the highest number of the Mayors, the second highest number of the tax section personnel, and the third highest number of the Councilors. Water supply and drainage are also popular choices for all positions but particularly for the Mayors on the former and the councilors on the latter, Noteworthy differences can be seen on some functions. master plan, erection and re-erection of buildings, public toilets and birth and death registration. Master plan is chosen by half of the Mayor and the Engineer while it is not high on the list of respondents in other positions. Erection and re-erection of buildings and regulation of buildings were chosen by half of the Engineers but are given little attention by respondents in other positions. Similarly, public toilet and birth and death registration were chosen almost exclusively by the councilors and by health and conservancy officials respectively. Table 4-7: Priority functions for capacity development chosen by officials of different positions Areas Public Health Water Supply and Drainage Food and beverage Town planning Building Control Streets Public Safety Functions Mayor Engineer Secretary Number of respondents H & C Section Tax Section Councilor Total % of responden ts Responsibility for Health Systems Waste Removal, Collection & Management Public Toilet Birth & Death Registration Promotion of Public Health Hospitals and Dispensaries Medical Aid and Medical Education, etc Water Supply Drainage Articles of Food and Beverage Public Markets Slaughter House Preparation of Master Plan Erection and Reerection of buildings Regulation of Buildings Public Streets General Provisions about Streets Street Lighting Fire Fighting Civil Defense Dangerous & Offensive Articles and Trades Graveyard & Cremation Ground

182 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Education & Culture Developme nt Garden Open Space Education Compulsory Education General Provisions of Education Culture Development Plan Community based Development Planning Commercial Total Number Schemes of Respondents Source: SPGP Survey Team 37

183 Chapter Five: Analysis of Empirical Evidence - Findings on Administrative Issues of the Paurashava The common perception among elected representatives and officials of Paurashavas is that a lack of funds is the cause of insufficient services. However, they also have failed to effectively allocate limited financial resources and efficiently implement administrative activities. Based on findings of prior studies, the project team identified the major administrative issues Paurashavas face in this regard: Major issues that hamper revenue increase Low capacity to collect holding tax (HT) Insufficient amount of grants from the Government Inequitable allocation of special grant Major issues that undermine efficient execution of administrative work Absence of development plans Ineffective formulation of annual budget Ineffective execution of annual budget Manpower shortage Insufficient monitoring and evaluation of Paurashava s work Insufficient administrative knowledge and skills of Paurashava officials/elected representatives This study is intended to assess the depth of the major administrative issues mentioned above and to identify obstacles to improving the situation. For this purpose, the following information was collected from the seven Paurashavas and analyzed: a) Quantitative/qualitative data based on set indicators to assess the depth of the issues b) Factors behind those issues The challenges of these administrative issues of the seven studied Paurashavas have been depicted with empirical evidence. Moreover, the gap between the capacity the Paurashavas are supposed to have and their actual practice has also been analyzed. 5.1 Revenue of the Paurashava There are some challenges of increasing Paurashava revenue. (1) Current situation of holding tax collection The survey results indicate substantial differences in the level of HT collection among Paurashavas. The yearly average HT collection rates for recent three fiscal years are approximately: Shailkupa 73% 11 ; Bakerganj 67%; Sengarchar 83%; Ulipur 27%; Atghoria 33%; Kanaighat 10%; and Pakundia 66% (Figure 5-1) 12. There is a large gap between good performers (Shailkupa, Bakerganj and Pakundia) and poor performers (Ulipur, Atghoria and Kanaighat), which are two C category Paurashavas and a B category one. 11 Shailkupa Paurashava has exempted about 1,000 poor households from HT. They are not on the HT assessment ledger. 12 HT collection rate is calculated as [Current collection + Arrear collection] / [Current demand + Arrear demand]. As some pourashavas did not capture arrear demand, the comparison of HT collection rate among Paurashavas might not be appropriate. 38

184 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Figure 5-1: Tax collection rates of the studied Paurashavas (%) In all the Paurashavas HT collection rates and methods have been found in assessment ledger (Demand registration as per government prescribed format). Almost all the Paurashavas send HT bills to the tax payers by handing over in person. The HT payment processes of the tax payers are mostly in person at Paurashava office though some Paurashavas HT are to be paid at designated banks. All the Paurashavas HT payment records are kept in HT ledger books. This ledger book indicates arrear payment, current payment and current demand. The Paurashavas can calculate the collected HT by integrating the amounts of the ledger books. However the accuracy of records kept in ledger books is open to question as none of them double-check the records and taxation management is not computerized in six of the seven Paurashavas. All the studied Paurashavas attribute insufficient HT collection mainly to the citizens reluctance to pay (Table 5-1). Elected representatives reluctance to collect HT and inefficiency of the concerned employees of the Paurashavas were identified by Mayor and Paurashava officials as the 2 nd major causes of poor HT collection. Beside these, lack of manpower, lack of habit of the dwellers, poverty etc. are also causes of low HT collection in their perception. 39

185 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Table 5-1: Paurashavas Reasons for low holding tax collection Reasons Shailkupa Bakerganj Sengarchar Ulipur Pakundia Kanaighat Atghoria The citizens reluctance to pay Reluctance of elected representatives to collect Inefficiency of collection Improper tax assessment Lack of manpower No payment by GOB agencies Other Lack of supervision and monitoring is also contributing to poor HT collection. It is found that most of the studied Paurashavas do not set target for HT collection and feel little pressure for HT collection. Two Paurashavas were found not to report to Mayor and Secretary about HT collection at all. Though five other Paurashavas report to the Mayor/Secretary or the Council either verbally or in written form about tax collection, only two of them do it on a regular basis. (2) Paurashavas capacity to collect holding tax Improved service delivery by Paurashava mostly depends on Paurashava s capacity to collect HT sufficiently. This study set some indicators to assess whether the seven pilot Paurashavas have sufficient capacity to collect HT. The indicators and findings are as follows: a) Mode of billing Except Shailkupa, no Paurashava s HT billing is computerized. b) Reissuance of tax bills There is no defined schedule set by GOB or themselves to re-issue tax bill according to the studied Paurashavas. Three Paurashavas have found reissuing HT bill quarterly. One Paurashava send bill again if any payee fails to meet the last date of payment. One Paurashava issues tax bill in next FY along with the arrear. Two Paurashavas never reissue bills. c) Compliance of prescribed tax assessment methods The formula of assessing tax bill is more or less the same - they all follow GOB Taxation Rules to calculate annual valuation equal to 10 months house rent, of which 7% is collected as holding tax. They do not collect conservancy, street light and water tax as they do not provide those services. For Government Houses; at the rate of 165 taka/sq ft, they determine the annual valuation only 7% of its Holding Tax is collected. Except Kanaighat all other Paurashavas comply with this HT assessment formula. Kanaighat Paurashava has set standard rent and property value themselves for calculation of annual valuation. d) HT assessment coverage Table 5-2 shows the coverage of HT assessment in FY 2013/14. These figures have been drawn from 40

186 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey the assessment register book and ledger book of the Paurashavas. The coverage of HT assessment is found to be good on the assumption that the total number of holdings is accurate. As long as Paurashavas conduct yearly interim assessment, they cover all holdings subject to tax assessment. However, three Paurashavas (B and C categories) have not conducted any interim assessment since the last general assessment and therefore they do not know how many holdings are left for assessment though the number of new holdings is presumed to be small. Table 5-2: Coverage of Holding Tax Assessment Paurashava Shailkupa Sengarchar Pakundia Kanaighat Atghoria Ulipur No. of holdings subject to be assessed (FY2013/14) No. of holdings assessed in the last general assessment No. of holdings assessed since the last general assessment BaKer ganj 8,669 Not known 6,014 Not known Not known 10,306 3,117 8,593 (2012/13) 7,231 (2005/06) 5,943 (2010/11) 4,027 (2010/11) 3,207 (2008/09) 10,301 (2011/12) 2,980 (2009/10) Coverage 100% N.A. 100% N.A. N.A. 100% 100% Source: SPGP Survey Team e) Frequency of tax assessment Paurashavas are supposed to conduct a general assessment every five years according to the Model Tax Schedule Most of the studied Paurashava are more or less following the provision (Table 5-3). Sengarchar Paurashavas has not conducted any assessment since fiscal year 2005/06 (Table 5-2) since, they claim that, the Mayor was not present due to political instability. Kanaighat Paurashava has not carried out interim assessment either since their first assessment in fiscal year 2010/11 mainly due to lack of manpower. Table 5-3: Year of the last two general assessment Paurashava Shailkupa Sengarchar Pakundia Kanaighat Atghoria Ulipur Bakerganj Ongoing/Last general assessment Previous general 2007/ /02 assessment Source: SPGP Survey Team 2012/ / / /11 None (established in 2007) None (established in 2005) 2013/14 (ongoing) 2011/ /15 (ongoing) 2008/ / /10 f) Number of tax collectors and assessors Tax assessors and tax collectors are the key persons for revenue income of the Paurashavas. They work at the ground level for Paurashavas revenue generation. The following table show the strength of the manpower involved in revenue generation at the ground level. Table 5-4: Manpower in tax assessment and tax collection section of the Paurashavas Paurashava Shailkupa Sengarchar Pakundia Kanaighat Atghoria Ulipur Bakerganj Tax Assessor Asst. Tax Assessor Tax Collector Asst. Tax Collector Source: SPGP Survey Team 41

187 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey The manpower in tax assessment and tax collection section of Paurashavas are not generally fulfilling the designated manpower in their organogram 13. Although the A category Paurashava (Shailkupa) is found with good number of manpower, most of the Paurashavas including Shailkupa Paurashava expressed a need for more tax collectors (six Paurashavas) and tax assessors (two Paurashavas) (See Section 5.6. for details). According to Paurashavas, they need greater number of assessor and collector partly because the tax assessment and collection process is highly manual. However, greater number of assessors and collectors would not always increase the funds available at Paurashavas. Some Paurashavas are avoiding increasing manpower as the increase in manpower would increase salary expenses. At those Paurashavas, officers in charge of other area (such as accountants or engineers) support tax assessment and collection works. 5.2 Allocation of GOB grant Paurashavas service delivery capacity mostly depends on the GOB grants. The pilot Paurashavas perception regarding the GOB grants is focused in this section. The information on the following issues has been gathered for understanding the administrative capacity. All the Paurashavas budgets are mostly covered by GOB grants (Figure 5.2). Bakjerganj Paurashava received the highest GOB grants, which cover most of its budget while Shailkupa has the least GOB contribution in their budget. Note: Khanaigat Paurasahava was not able to provide the data. Figure 5-1: Contribution of GOB grants in Paurashavas budget (%) The GOB allocates Annual Development Programme (ADP) grants regularly to the Paurashavas on the basis of Paurashava category. A, B and C category Paurashavas receive 70, 60 and 50 lac BDT respectively as ADP grants. The seven studied Paurashavas receive ADP grant regularly in every quarter. Only Shailakupa Paurashava s ADP grants were interrupted for the last 2 fiscal years due to being Bangladesh Municipal Development Fund (BMDF) loan defaulter. All of the Paurasahavas opined that they do not receive GOB grants as much as they need to meet the basic needs. In their 13 In their organogram, it is mentioned that the number of manpower in tax assessment section is 5 for A category, 3 for B category and 3 for C category. Similarly, that in tax collection section is 12 for A category, 10 for B category and 7 for C category. 42

188 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey perception, the basic demands which are not met because of insufficient ADP grants are mainly infrastructures such as roads construction and maintenance, drainage construction and maintenance and bridge culvert construction. To meet these basic needs the seven studied Paurashava think that they need five to ten crore BDT in a fiscal year. In addition to regular ADP grants, there is also provision of special grant from GOB to the Paurashavas which are supposed to be allocated either based on performance of the Paurashava or to meet any emergency need. The amounts the Paurashavas received in the last three fiscal years are as follows: Table 5-5: Special grant allocation from GOB received by the Paurashavas (BDT million) Paurashava Shailkupa Sengarchar Pakundia Kanaighat Atghoria Ulipur Bakerganj FY10/ FY11/ FY12/ Source: SPGP Survey Team Four of the Paurashavas received special allocation annually for the past three years but the amounts of allocation vary significantly. None of them received these allocations on the basis of performance. It is on the basis of other ground. The allocation letters do not mention anything about basis of the special grants. We could reveal that it is on the basis of tadbir (persuasion) and personal connection. All the Paurashavas have incorporated these grants with development side of their budget. Most of the Paurashavas opined that the existing criterion of allocating ADP is not judicious. According to their opinion the allocation should be either equally or on a demand basis. In fact, none of the C category Paurashavas has received any special grant except Kanaighat Paurashava which received an amount of 0.5 million in fiscal year 2010/11 while these Paurashavas needed special allocation more than other Paurashavas given the small size of their revenue from their own income sources. 5.3 Development plans of the Paurashava According to the article 50 1(c) of the Paurashava Act, every Paurashava is supposed to have an infrastructure development plan and urban development plan. In this study no Paurashava is found to have development plans. Basically none of them is found to have knowledge about development plans. Only when they were given ideas about what the development plan is, they realize the benefits they would have with development plans. The Paurashavas think that the absence of a development plan has created the following situations: development projects were not selected on a priority basis; it hampers prompt work; some completed development works are found useless; financial planning is difficult; and it leads to lack of coordination among development activities 5.4 Paurashava s budget formulation Every Paurashava prepares a budget in each FY (July June). The study results have confirmed the popular assumption of unreliability of Paurashavas initial budget. The proposed budget of each studied Paurashava was found highly exaggerated. Figure 5.3 shows actual revenue budget and development budget compared to proposed ones. For example, Bakerganj Paurashava s actual revenue budget for fiscal year 2010/11 is about 70% of the proposed budget while their actual development budget (expenditure) is less than 10% of proposed budget. The figure explicitly explains unreliability of proposed budget in all the Paurashavas. The gap is particularly large on development 43

189 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey account, on which actual budget (expenditure) often turned out less than 20% of proposed one. Figure 5-2: Actual budget (expenditure) compared to proposed budget of the Paurashavas (%) Initial budget of Paurashava is unrealistic. Some Paurashavas formulate budget based on such assumptions that HT is collected to the full extent including arrears. Expenditure projection on development works lack foundation too. Paurashavas tend to formulate excessive budget for development based on an assumption that GOB provides a large amount of special grants for them. None of the studied Paurashavas have development plans on which they could otherwise base their budget. The selection of projects is actually done in the budget execution process and therefore estimation of the costs is impossible at the budget preparation stage. The Paurashavas indeed feel little pressure from the public to change those malpractices in view of the way they prepare budget. According to GOB rules and regulations, the budget formulation process of Paurashava is as follows: the standing committee on establishment and finance gives directions to prepare a budget; considering these committee s directions the accounts section prepares a draft budget; the Council discuss the draft budget and finalize it; the budget is presented before invited local people in a open budget meeting ; the budget is approved by the Council and sent to the Ministry (LGD). However, the actual budget formulation processes of the studied Paurashavas show a different picture. Though the 2013/14 budget has been discussed in adequate number of council meetings in all the Paurashava, in most of the Paurashavas, no discussion about budget was held in the standing committee on administration and finance. Only Kanaighat Paurashava was found to have discussed it once in the standing committee meeting 14. Budget is not discussed in open budget meetings either. All Paurashavas but Pakunidia Paurashava have had one open budget meeting in each though no meeting minutes or record of attendance of those open budget meetings was found. The way the Paurashavas conduct open budget meeting do not give any results. They basically inform the people gathering of their draft budget. No Paurashava has been found to revise budget with the comments coming from the open budget meetings. Budget formulation-related guidelines prescribed by GOB are not always followed by Paurashavas in 14 Bakerganj Paurashava has just established the standing committee for FY2014/15. 44

190 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey budget formulation. Though all the Paurashavas answered that they followed both budget and ADP guidelines while preparing budget, only four of them follow fully. The remaining three Paurashavas are not able to follow in terms of sector wise allocation and specific allocation for water and sanitation and for the Kaccha roads because they do not have funds to allocate for those purposes. The situation is similar with regard to adherence to the budget formulation schedule set by LGD. All of the C category Paurashavas have failed to follow the budget formulation schedule, while the only A category Paurashava is able to fully keep it and all of the B category Paurashavas follow it. Pakundia Paurashava attributes the failure to delays in GOB fund transfer while Kanaighat and Atghoria Paurashavas find it unnecessary to follow it. The GOB-prepared budget format are not followed bysome Paurashavas. Five out of the seven Paurashavas answered that they face problems with existing budget format 15. They all answered that budget items in the format need revisions and modifications. 5.5 Paurashava s budget execution The budget execution rates of the studied Paurashavas are very low as can be seen in Figure 5.3 in the above section. However, in the Paurashavas context in which original budget amount is excessive, budget execution rates cannot be an appropriate indicator of their budget execution capacity. The study therefore tries to reveal their execution capacity by looking into the execution processes. Effectiveness of budget execution is affected by whether the Mayor, the secretary and the council are well and timely informed about the expenditure of the Paurashava, quality and frequency of expenditure compilation, mode of accounting system, quality and frequency of audits, and people s participation (involvement of TLCC and WLCC), etc. In all of the Paurashavas, expenditure has been reported to the Mayor, the Secretary and in the Council Meeting. However only in four of the Paurashavas it is reported on a monthly basis while in others it is done as and when required. The accountants compile expenditures every month by manually calculating from the cash book. Six out of the seven Paurashavas do not have computerized accounting system though one of them keeps their daily income and expenditure in computer in addition to cash books. Only Shailkupa Paurashava has a full computerized accounting system. The other six Paurashavas neither have computers nor accounting software, and the accountants have not received such training that can help them to use accounting software. They all claim that a computerized accounting system will improve their accounting management. External audits have been conducted by Office of Comptroller and Auditor General (OCAG) on all of the studied Paurashavas. Most of the Paurashavas received external audits once in every three years. It is found that external audit is done regularly and all Paurashavas have found to receive it at least once in the last five years. There are no significant objections/comments on their accounts found in the recent draft audit reports on any of the seven Purashavas. However, it should be noted that OCAG audits are basically compliance audits with no value for money perspective involved and therefore efficiency of the spending is not investigated. 15 One of the seven could not give comments since the respondent was new. 45

191 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey All Paurashavas but Pakundia Paurashava claim that they conduct internal audits but not regularly and do not follow any specific process. The Mayor requests some financial information from officials, which depends on the Mayor s concern. There are no specific guidelines to conduct internal audit and the Paurashavas do not feel it is necessary. The external audit never check whether Paurashava conduct internal audit. The citizen s participation in budget execution is also limited. Although TLCC and WLCC have been institutionalized by LGD to discuss development issues, the former was formed only in three out of the seven Paurashavas and the latter in four. The effectiveness of those committees is questionable. For instance, project selection, which is generally the largest issue for the citizens, is not discussed much in those committees except in WLCC of Kanaighat Paurashava. 5.6 Paurashava s manpower Every Paurashava is supposed to have manpower as stipulated in the Paurashava s category wise organogram. But it is rarely found. Figure 5-4 shows their manpower against manpower provided in the GOB-prepared organogram. Most of the Paurashavas opined that the existing number of manpower is not sufficient for them. Figure 5-3: The manpower vacancy rate of the 7 pilot Paurashavas In most of the Paurashavas the manpower vacancy rate is the highest in health and conservancy division. Kanaighat Paurashava (C category) is shown the highest manpower vacancy in all three divisions while Shailkupa Paurashava (A category) shows the lowest manpower vacancy in all the three divisions. Table 5-6 shows required manpower of the Paurashavas. In most Paurashava the demand of the Administration Division and that of the Engineering Division are higher particularly for Tax Collectors and Sub-Assistant Engineers. Atghoria Paurashava is satisfied with their existing manpower though they have no body in the accounts section. The accounts section s works are performed by the supporting staff of the Administrative Division. Similarly, in Kanaighat Paurashava, accounting and birth and death registration services are conducted by supporting staff and entrepreneur of Paurashava information service centre 16 respectively. In fact, Kanaighat Paurashava has only one 16 GOB recently made provisions on the Paurashava Service Centre and entrepreneurs to work in the Centre, Paurashavas are 46

192 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey official who is Assistant Engineer and he looks after all work of Paurashava s with assistance of supporting staff. Though the Paurashavas know what type of manpower they do need, they are unbale to appoint mostly because of lack of fund. There are mixed opinions regarding the appropriateness of the manpower mentioned in the organogram. Most of the Paurashavas opined that the manpower shown in the organogram is appropriate. Pakundia, Kanaighat and Bakerganj Paurashavas think that the manpower shown in the organogram are not required because the C and B category Paurashavas do not have that much fund to pay for such number of employees. Table 5-6: Required manpower of the Paurashavas Shailkupa Bakerganj Sengarchar Ulipur Atghoria Kanaighat Pakundia Administration Engineering More than 3 TC 1 MLSS 1 SI of Water 1 Sanitary Inspector 1 Pump Operator 1 MLSS 1 TC 1 Office Assistant 1 Computer Operator 1 SAE (electric) 1 SI of Water 1 Water Operator 1 Lineman; 1 Work Assistant 1 TC 1 SAE 1 TC 1 Assistant TC for each ward (more in sadar area) 1 Assistant TA 1 SAE (electric) 2 SAE (water) 1Assistant, Designer 1 Electricity Technician 1 MLSS 1 Driver for road roller 1 Secretary, 1 TC 1 TA 1 Accountant 1 Cashier 1 License Inspector 1 Bazaar Monitoring Inspector 1 SAE 1 TC 1 Office Assistant 1 SAE (drainage) 1 Work Assistant Health & Conservancy 1 MLSS 1 Vaccinator 1 Health Assistant 1 Immunizer 1 Vaccinator 1 Sanitary Inspector Source: SPGP Survey Team Abbreviations: MLSS: Member of Lower Subordinate Staff, SAE: Sub-Assistant Engineer, SI: Superintendent, TA: Tax Assessor, TC: Tax Collector 5.7 Monitoring and evaluation of Paurashavas activities All the Paurashavas have had mainly two types of activities: development works; and regular serviceoriented routine activities. Both the activities are required to be monitored and evaluated in specific manners. Monitoring and evaluating these activities are significant to raise service and administration standard of the Paurashava. The Paurashavas development projects are monitored collectively by the Council as well as individually by the Mayor, the Councilors and the officials of the Engineering Division though there are not evaluation practices on their projects. The progress of development works is discussed in the Council meetings of most of the studied Paurashavas though not regularly. The Mayor and the allowed to recruit entrepreneurs to provide any information for the citizens using he Information Centre facilities. They are not on Purashava s payroll and receive fees from citizens that receive the service. An entrepreneur recruited by Kanaighat Paurashava takes care of birth and death registration work in addition to information service work and receive some compensation from the Paurashava for the former work. 47

193 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Councilors also observe whether the works are carried out with proper directions but that depends on their interest. The Councilors in fact have very few voices in this regard. The Engineering Division monitors each development work according to the working process by field visit and looks into the quality of materials, ingredients and measurement, etc. They also inspect development works at the completion of the work along with the Councilors. Most of the Paurashavas actually consider the current monitoring processes more or less appropriate but two Paurashavas pointed out problems with the processes such as absence of work planning system, lack of supervision/monitoring format and guidelines. The citizens are not much involved in monitoring of development works. TLCC and WLCC, which have been formed only in four Paurashavas, more or less discuss project selection but do not play much role in monitoring of selected projects. In other Paurashavas, there is no mechanism for citizen s participation in monitoring of Paurashavas development works. Paurashavas non-development activities are also monitored to some extent. The Council of the Paurashavas plays a certain role in this regard. The status of some important activities such as revenue mobilization and birth and death registration is reported in the Councils meetings of most of the studied Paurashavas though not regularly. In contrast, the standing committees were found to be inactive in monitoring Paurashavas activities. Citizen s monitoring through TLCC and WLCC is not practiced in any of the seven Paurashavas. The citizens have played almost no role in monitoring of non-development activities of the studied Paurashavas given the fact that TLCC and WLCC are not active particularly in monitoring or not established. The Mayor or the Councilors in most of the Paurashavas personally monitor Paurashavas activities. The Mayor of Atghoria Paurashava, for example, talks with the concerned officials of the Paurashava to learn the status of the Paurashava s activities. Such monitoring is generally done on an ad-hoc basis. A good example is that tax collection status is checked only before budget preparation in most of the Paurashavas as discussed earlier. Since there is neither development plans nor realistic budget, Paurashavas activities are not monitored based on plans. Therefore, except for the progress of development works, it is hard to tell if their activities are proceeding as planned. There are some GOB actors to monitor and evaluate Paurashavas activities. Deputy Director Local Government (DDLG) of LGD comes to the Paurashava with LGD s monitoring format. He/she talks with the Mayor, examines the relevant documents and gives marks on their performance in a prescribed form and report to the Ministry. The Deputy Commissioner or Additional Deputy Commissioner (General) visits and inspects registers (birth and death), tax collection, etc. Most of the Paurashavas find their evaluation process appropriate but they would like to know the results DDLG sent to the Ministry. If the Paurashavas knew the evaluation result it would help the Paurashava to improve its performance. 5.8 Administrative knowledge and skills of Paurashava officials/elected representatives It is highly significant to have adequate knowledge and skills for the Mayor, the Councilors and the officials to run a local government institution. Although detailed assessment of their knowledge and skills is beyond the scope of the study, it tried to roughly estimate their level of basic knowledge about Paurashavas workings and their skill level. For that purpose, the researchers asked some questions about: to the elected representatives, Paurashavas functions and the statutory roles of themselves; 48

194 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey and to the officials, basic rules and regulations to perform their responsibilities and their need for technical skills and GOB s interventions. (1) Knowledge and skills of Mayors and Councilors The Mayors of the studied Paurashavas know well about Paurashavas mandatory functions as well as other functions mentioned in the second schedule of the Paurashava Act. The functions most of the Mayors know are: construction and maintenance of road, culverts, drainage; issuance of certificates such as warishon (inheritance) certificate, birth and death certificate, citizenship certificate, character certificate, etc.; dispute resolution; distribution of social welfare allowances (for old age and disability); building approval; conservancy (cleaning); market maintenance; provision and maintenance of sanitary latrines; and street lighting. They are also well aware of their roles in performing the above functions. Their roles most of them mentioned are: project selection with councilors in council meetings; supervision of all activities of Paurashava s; salish (settlement of local disputes); testimony for issuance of certificates; preparation of a list for social welfare allowance; monitoring of the work of Paurashava staff; addressing any emergency problem; and defining and solving the social problems. They actually all received an orientation training provided by the National Institute of Local Government (NILG) when they were elected for the first time. In contrast, the Councilors are not very aware of Paurashava s functions except for major functions related to infrastructure development, conservancy and those functions on which they have to play some role such as issuance of various certificates and grievances redresses (part of civil defense function). There is a substantial gap the statutory roles and actual roles of the councilors. They are not informed of their responsibilities in the first place. There is a circular issued by LGD in 2002 about the roles of the Councilors. Though it does not define their responsibilities in detail, it describes the roles expected for them in order for Paurashavas to perform functions stipulated in the Act. Those roles can be broadly categorized into three areas: 1) encouragement and sensitization of the people to cooperate Paurashavas activities such as birth and death registration, activities for ensuring public safety, conservancy activities, water supply, street lighting; 2) involvement in some development projects; and 3) formation of standing committees. No councilors of the studied seven Paurashavas know about these statutory roles though they are in practice performing part of them. The Councilors knowledge of their roles, apart from participation in decision-making at the council meetings, is in many cases limited to what the Councilors have been traditionally playing such as: provision of countersign in the citizens application to certificates; preparation of the list of allowances for the elderly; grievance redresses; and monitoring of Paurashavas work to some extent. None of the Councilors the researchers interviewed during the field survey have received any kind of training since they were elected indeed. (2) Knowledge and skills of the officials on revenue mobilization and financial management Taxation-related officials of the Paurashavas know about basic rules they are supposed to follow and actually follow them. Most of Tax Assessors and Tax Collectors said that for HT assessment and HT collection they mainly follow the Model Tax Schedule (1960/2003/2013) and the Paurashava Manual, which is a compilation of various rules and regulations including the Taxation Rules as well as Model Tax Schedule. However, the Paurashava Manual was prepared in 1995 and revised a few times up to 49

195 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey 2004 and therefore most of them are not very much aware of new rules and regulations. In contrast to taxation, the Paurashavas accounting is found to be managed based on experience and by will of the Mayor rather than by particular rules and regulations. Accountants do not know much about rules and regulations they are supposed to follow though some accountants mentioned Public Procurement Rules (PPR) 2008 and Paurashava Act. Though they understand rules and regulations they follow, some Paurashavas mentioned difficulties in implementing those rules. They cannot implement taxation-related rules exactly as the Paurashava officials do not have coercive power to collect arrear tax. They think that they need more rules and regulations to provide them with enforcement power to ensure tax collection and other income. Some Paurashavas mentioned that the attitude of mayors toward tax collection is very important. For example, when mayors are supportive to tax collection, tax collection rate of Paurashavas tend to be higher. Some of the Paurashavas mentioned that they need to improve skills on how to exercise the existing rules and regulations for revenue mobilization and financial management. However they could not specify exactly what skills they need. As far as taxation-related work is concerned, the major issues are motivation and will of concerned people and shortage of manpower rather than technical matters (See Section 5.1). (3) Knowledge and skills of the officials on operation and management of Paurashava s properties By property most of the Paurashavas mean hat-bazar and bus terminals. Basically the Paurashavas do not have any other property to manage. In the case of six Paurashavas out of the seven, hat-bazar is the only property they have while the remaining one has bus terminal as well. The Secretary is mainly responsible to manage Paurashava hat-bazar. Knowledge about the rules and regulations with regard to management of har-bazar is found very implicit. Only Shailkupa and Ulipur Paurashava (A and B category Paurashava respectively) follow Hat-bazar Ijara (lease-out) Rules 2011 to lease out markets. No C category Paurashava could identify the exact rules for hat-bazar management. In fact the Paurashava is supposed to lease out their hat-bazar through a committee but none of the studied Paurashava has such committee. Shailkupa and Ulipur Paurashavas are facing some problem to follow hat-bazaar ijara rules For political reason the Paurashava officials cannot apply the rules exactly. There is misappropriation of this rule. In most of the cases the Mayor and his supporters dictate rules. The lease-out bidding is manipulated and the Paurashavas lose revenue. The Secretaries claim that they need more power to prevent such distortion of rules. They also think that they need more skills to exercise the rules but they could hardly specify the skills they need. (4) Knowledge and skills of the officials on engineering works The rules and guidelines the engineering divisions of the Paurashavas follow are: PPR 2008; Building Construction Act to approve building plans; Rate Shedule; and Direction of ADP for Enginnering Works, schedule books of LGED for estimates; and infrastructure design book of LGED. Irrespective of categories, all Paurashavas could mention those rules and guidelines for engineering works. Most of the Paurashavas found difficulties to follow the existing rules and regulation for engineering works. A provision of PPR is actually causing some problems for the Paurashavas. According to PPR, any procurement of goods/services of less than 10 lac does not need to go through the tender 50

196 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey process. This rule has left room for selection of suppliers/contractors based on preference of the elected representatives. They use the fund for works of the mayor s preference by the name of emergency development works. The Engineering Division also faces problems in properly carrying out a mandatory function of approval of building plans. The people are ignorant of their obligation to acquire Paurashava s approval to erect buildings or reluctant to get it. The engineering sections do not have that much manpower to watch whether all the building have had approval. Besides, in collaboration with elected representatives, the owners can escape approval. They think that there should be punishment option for the owner of the building constructed without Paurashava s approval and/or follow their directions. Another problem is that beyond their control is that the elected representatives try to intervene in the approval process and give priority to their supporters. Most of the engineers have specific demands for training but those demands vary according to individual. The only subject mentioned by more than one Paurashava is orientation of rules and regulations (three Paurashavas). The engineers of all the C category Paurashavas are more in need and their needs cover both technical and administrative spheres. The subjects in their demands include: equipment operation and maintenance; design estimation; building structural plan; project management; supervision on site plan; building inspection; relevant engineering acts, rules and regulation; and public communication. There are some demands from B category Paurashavas as well but their demands are for more general subjects such as office management, computer skills and implementation of development works. No demands are raised by the only A category Paurashava. (5) Knowledge and skill of the officials on health and conservancy work Health and conservancy is found to be the most neglected area among all activities of the Puarashavas. Only Ulipur, Shailkupa and Bakerganj Paurashavas have some employees in the Health and Conservancy Section (Table 5-7) and their rank and profile is not more than a Health Assistant. No Paurashava, even the A category one has Health Officer/Medical Officer. Table 5-7: The manpower in Heath and Conservancy Section of the 7 Paurashavas Shoilkupa Bakerganj Senngerchar Ulipur Atghoria Kanaighat Pakundia Number of personnel Source: SPGP Survey Team Since they carry out little health and conservancy work, most of the Paurashavas do not have any idea about the rules and regulations to be followed to perform health and conservancy related activities. They just follow the direction of the Secretary. In fact, the Sectretaries themselves do not know what rules and regulations exist on health and conservancy works. Because they have little work to do regarding health and conservancy, they do not really need to refer to any rules and regulations. For the same reason, they do not face problems and therefore do not have specific needs for skills. Only the Bakerganj Paurashava mentioned the skills they need such as skills required for Integrate Management of Childhood Illness (IMCI), disaster management, and handling the situation in emergency operation program for the diseases. They also recognize the need for training on health and conservancy-related rules and regulations. 5.9 Personal qualification of the Mayor and officials The Paurashava elected representatives and officials personal qualifications also give us ideas about 51

197 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey their potentials and the level of knowledge and skills to perform in Paurashavas. Annex 4 gives us details of the personal qualifications of the Mayors and officials of the Paurashavas. Researchers did not have sufficient time to collect all Councillors personal qualifications. Most of the mayors and officials are well educated while training opportunities vary among posts. The findings are: Most of the Mayors are educated and got training. All of the Mayor have elected as mayor for the 1 st time. Majority of the Secretaries have found highly educated. Most of the Secretaries received different kinds of training. The Secretaries job experiences rages from less than 1year to more than 20 years. The engineers are also found with adequate educational background. All of them have received different types of training mostly from LGED. A good number of engineers are well experienced. Most of the Accountants are well educated but very few of them have received training. Their experience also ranges from 1 year to more than 20 years. Most of the Tax Assessors are graduate but majority of them have not received training. Below half of them have more than 10 years of working experiences as Tax Assessor. Most of the Tax Collectors are with Masters and bachelor degree. Below half of them has received training. Most of the Tax Collectors are well experienced Paurashava expectation from the Ministry Upon LGD s request, the respondents of all the Paurashavas were asked their expectations from the Ministry. The details responses are shown in Annex 3 (Expectations of the Paurashavas for the Ministry). The highlights of Paurashavas expectations are given below: The Mayors, Councilors, Secretaries, Engineers and all other employees of all Paurashavas expect increased allocation of existing ADP grants. The Mayors expect to enjoy more freedom to hire and fire employees. They want enforcement authority and paura-police. All employees want their salary and other financial benefits from the Ministry. Most of the councilors and employees expect to have arrangement of necessary training. Their expectations are more or less similar among the studied Paurashavas and different positions. It ranges from personal benefit to organizational (Paurashava s benefit). They expect more funds from the ministry including salaries for employees on the one hand, they would like more autonomy to exercise especially in law and order maintenance and in employment of employees on the other. They did not demand anything that might help them to increase income from their own income sources Paurashavas priority administrative tasks for improvement It is no doubt that the Paurashava have many administrative tasks to do. Among all of those tasks the SPGP team selected eight important administrative tasks and asked the interviewees to choose five tasks they think their Paurashava should particularly improve in order of priority. The eight tasks are: 1) HT collection; 2) HT assessment; 3) collection of taxes/rates/fees other than HT; 4) accounting; 5) development planning; 6) budget formulation; 7) budget execution; and 8) monitoring and evaluation of Paurashavas activities. The respondents are the elected representatives (Mayor and Councilors) and Paurashava officials (Secretaries, Engineers, Accountants and officials of health & conservancy 52

198 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey section) of the seven studied Paurashavas. Table 5-8 indicates percentages of respondents and proportions to the total number of responses, which is 160 (5 priority tasks x 32 respondents). Table 5-8: Five priority administrative tasks for improvement chosen by Paurashava representatives and officials Administrative tasks Number of respondents 53 Percentage of respondents (%) Proportion to the total number of responses (160) HT collection % 16.9% Development planning % 16.9% HT assessment % 15.6% Monitoring/evaluation of Paurashava s activities % 13.8% Accounting % 12.5% Collection of other taxes/rates/fee % 11.9% Source: SPGP Survey Team Budget execution % 7.5% Budget formulation % 5.0% The highest number of the respondents chose HT collection and development planning for five priority tasks for the Paurashavas followed by HT assessment. Despite the fact that the respondents except for the Councilors are the people to be monitored, many of them selected monitoring/evaluation of Paurashava activities indeed. The lowest number of the respondents gives priority to budget execution and formulation. A potential factor behind this is that they are not under pressure from the citizens in this regard as accountability mechanisms such as TLCC and WLCC are not working as discussed above. Table 5-9 below shows priority tasks chosen by the respondents in order of priority. The majority of the respondents give the highest priority to HT collection. Surprisingly the second highest number of the respondents chose development planning as the first priority. The tasks chosen by more than half of the respondents for their top three priority are HT collection (72%), HT assessment (66%) and development planning (56%). Table 5-9: Five priority administrative tasks for improvement in order of priority (% of respondents) Administrative tasks 1st priority 2nd priority % of respondents 3rd priority 4th priority 5th priority HT collection HT assessment Collection of taxes/rates/fees other than HT Accounting Development planning Budget formulation , Budget execution Monitoring/evaluation of Paurashava activities Source: SPGP Survey Team Paurashava-wise priority can be seen in Figure 5-5. Tax collection and/or tax assessment are clearly given priority by the majority of respondents in five Paurashavas. However, tax collection was not given particular attention in two Paurashavas. It is speculated that officials concern with tax collection

199 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey can be highly affected by Mayor s will as well as the present level of tax collection. The improvement of tax assessment seems to be of particular importance for Shailkupa Paurashava and Ulipur Paurashava though both of them enjoy 100% coverage of HT assessment. Presumably that is because the respondents of those Paurashavas consider that there is room for improvement for their tax assessment methods. Apart from those two issues regarding HT, an interesting finding is that development planning is chosen by the second highest number of respondents in four Paurashavas. Though most of respondents had had little ideas what development plans are, they seem to recognize the importance once they learned about it from the researchers. The improvement of budget formulation and budget execution are found to be not as important as other issues for all of the Paurashavas. An important factor behind it is probably the fact that they are not under pressure to improve those aspects of Pourashava operation as accountability mechanisms such as TLCC and WLCC are not functional. Figure 5-4: Paurashava-wise distribution of respondents choice for the top three priority administrative tasks for improvement There is not much difference in priorities among positions. Table 5-10 indicates position-wise perception of the top three priority tasks for their Paurashava to improve, and Figure 5-6 shows the comparison of their choices for priority tasks between elected representatives and officials. The only notable difference is seen on development planning. Engineer and secretaries Officials seem to be feeling the need for development planning more than elected representatives. Table 5-10: Priority administrative tasks (top three) chosen by different positions Administrative tasks Number of respondents chose Mayor Councilor Secretary Engineer Others* HT collection HT assessment Collection of taxes/rates/fees other than HT Accounting Development planning Budget formulation Budget execution Monitoring/evaluation of Paurashava activities

200 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Administrative tasks Number of respondents chose Mayor Councilor Secretary Engineer Others* Total number of respondents Source: SPGP Survey Team *Accountants and health & conservancy personnel Holding tax collection Holding tax assessment Other taxes/rates/fees collection Accounting Development planning Elected Representative Budget formulation Budget execution Paurashava Officials Monitoring/evaluation of PS activities Figure 5-5: Priority administrative tasks chosen by elected representatives and officials (% of respondents) As far as the first priority is concerned, similarity of choices between positions is even more explicit. Tax collection is the first choice for the highest number of respondents of all positions (Figure 5-7). It is interesting to learn that contrast, the improvement of budget formulation and budget execution are found to be not as important as other issues for all of the Paurashavas. An important factor behind it is probably the fact that six of the seven Mayors give the top priority to HT collection while officials of some Paurashavas find elected representatives reluctant to collect taxes (See section 5.1). Figure 5-6: Choice of the top priority administrative task by position 55

201 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey 5.12 Summary of Findings There is a range of administrative issues discussed in this chapter. The researchers summarized findings on each issue and analyzed the nature of the problems. Table 5-11: Summary of findings on administrative issues Areas/subjects Findings Analysis of the Problems Revenue from HT Allocation of GOB grant Development Plans Formulation of Budget Execution of budget Some Paurashavas are not trying hard to raise their HT collection rate; it is not that they are unable to collect the tax. Some Paurashavas are concerned about an increase in expenses for their tax collection efforts. Officials are not under pressure because of elected representatives reluctance and absence of regular monitoring and reporting. At the same time, the Council is not functional in this regard to facilitate collection or give pressure to officials. Record keeping on tax collection is good, but relevant officials are not aware of the collection status because regular reporting is not required. Paurashavas performance in HT assessment is found to be generally good with regard to the main assessment activities. However, the performance on follow-up activities such as interim assessment and reissuance of bills is poor in some Paurashavas, particularly the small ones. Paurashavas are unable to provide a standard level of urban services by ADP grants. Grant allocations are not based on demand. The newly created Paurashavas have limited capacity to increase income from their own income sources and need more attention from the GOB. Special grant allocations are not provided based on Paurashavas performance. The Paurashavas try to maintain communication with influential political and administrative people, i.e., conduct lobbying, to obtain special grants. As none of the Paurashavas has had development plans, they do not understand the benefits of development planning. Budget is not based on proper projection of income and expenditure plans. Small Paurasahavas are unable to follow the ADP guidelines because of lack of funds while large Paurasahavas find it difficult to fill the budget format due to lack of budget items given in the format. Although draft budget is discussed in the council meetings, the institutional arrangements to discuss it in the standing committee beforehand are not working. Residents involvement in budget preparation in practical sense is also limited, even though the Paurashavas have held open-budget meetings. There is no pressure upon the relevant officials to improve budget execution. The original budget is unrealistic, there is no development plan, and execution status cannot be properly checked. Reporting to and monitoring by the Council and the Mayor about income and expenditure is not required. External audit is done regularly, but audits do not examine the cost effectiveness aspect, and internal audit is essentially nonexistent. Shortage of manpower and manual accounting may be one Insufficient HT collection is attributable mainly to the systems of Paurashavas in which officials receive no pressure. Knowledge to increase tax collection without increasing expenses seems to be missing. The GOB needs a strategy in effective allocation of ADP grants for Paurashavas. The fundamental problem is the lack of Paurasahava officials awareness of the benefits and importance of development plans rather than technical or manpower problems. Paurasahavas are not required to prepare realistic budget. Paurashavas do not fully impmenet the exisiting accountability mechanisms. GOB-prepared ADP guidelines and budget format may not be applicable to all categories of Paurashavas. The present workings of Paurashavas do not put officials under pressure to improve their budget execution. There is no institutional arrangement to ensure effective use of resources. Paurashavas do not have sufficient funds and skills to 56

202 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Areas/subjects Findings Analysis of the Problems Manpower Monitoring and evaluation of Paurashava s activities Knowledge of elected representative Knowledge/skills of officials on revenue mobilization and accounting Knowledge/skills of officials on operation and management of Paurashava s properties Knowledge/skills of officials on engineering works of the reasons for the low efficiency of budget execution. The residents are not much involved in budget execution including project selection. Most of the studied Paurashavas find the existing manpower insufficient in all of the sections because of lack of financial resources. Manpower mentioned in the organogram does not reflect the actual needs of Paurashavas. Paurashava officials believe that they need more manpower, particularly in the engineering and tax collection sections. They do not need as much manpower for the health and conservancy sections probably because they do very little work on health and conservancy.. Although Paurashavas development undertakings are discussed in the council and checked by the Mayor, the Councillors, and the engineers, there is no monitoring standard. Paurashavas activities other than development undertakings are also discussed in the council and personally checked by the Mayor. Because of the absence of monitoring standard or guidelines, however, monitoring is carried out ad-hoc and monitoring results are affected by individual judgment. The residents involvement in monitoring is almost none with WLCC and TLCC. The Mayors are well aware of Paurashavas major functions and the roles they are supposed to play. Knowledge of the Councilors about Paurashavas functions is limited. Although their TOR covers a broad range of areas, they do not know about such TOR and their actual roles are confined to a few areas. Taxation officials believe that they know about relevant rules and regulations and follow them. However they feel that they do not have the authority to enforce those rules in face of the residents reluctance to pay and Mayor s intervention. Accounting is managed based on experience and the will of the Mayor rather than rules and regulations about which relevant officials are not very much aware of. They do not know exactly what skills they need, but feel that they need training. The Paurashavas have some implementation problems because of intervention of elected representatives. There are rules, but most of the Paurashavas do not know about them, and the performance of asset management is based on experience. All engineers are very much aware of rules and regulations that they are required to follow. They face problems during implementation of development undertakings, when a land issue is involved. They also find it difficult to enforce rules and regulations related to approval of private building plans because residents do not know their obligations. Relevant officials would like to know more about the existing rules and regulations related to development undertakings. They have clear demand for specific skills and knowledge, particularly in technical spheres, but their demands vary from one person to another. increase efficiency of budget execution and projection. Paurashavas lack financial resources to hire a sufficient number of officials. Impact of manpower shortage is particularly acute in the tax collection, engineering and health and conservancy sections. Present monitoring practices are not effective because institutional arrangements for monitoring are not sufficient and not established as a system. Knowledge of the Councilors about Paurashava s functions and their roles are very limited. In the perception of taxation officials, the problem they face is lack of power to enforce rules and regulations rather than lack of knowledge or skills while accountants lack knowledge of rules and regulations. Their problems are not only lack of knowledge of relevant rules and regulations but also lack of sufficient power to implement their work based on those rules and regulations. Their problem is about application of rules and regulations and caused by residents ignorance. They are equipped with basic skills but may need more specific skills that suit individual needs. 57

203 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Areas/subjects Findings Analysis of the Problems Knowledge/skills of officials on health and conservancy work The Paurashavas have minimal jobs related to health and conservancy. Thus they do not feel the need to follow specific rules and regulations. Because they do not know what rules and regulations to follow and what specific activities are required, they do not know what skills they need. Some Paurashavas have few or no officials in the health and conservancy section. The problem is above all lack of the officials attention to health and conservancy work. It is partly affected by manpower shortage. Furthermore, they do not know the rules and regulations and do not have relevant skills. 58

204 Chapter Six: Recommendations From the empirical evidence, it is clear that the seven studied Paurashavas face a number of challenges in carrying out their mandatory functions as well as in running a local government body. These challenges have been categorized from three capacity points of view. A. Institutional point of view, i.e. at the GOB level. The challenges that are caused by rules, regulations and GOB mechanisms to operate and manage Paurashavas. The Paurashavas activities are found either limited or not done because of absence of required rules and regulations and guidelines, and/or lack of funds. B. Organizational point of view, i.e. at the Paurashava level. The challenges that are caused by the Paurashavas practices. C. Technical point of view, i.e. at the level of individual officials. The challenges that are caused by lack of knowledge of Paurashavas officials and their technical incapacity. The following are the recommendations on capacity development of Paurashavas from these three points of view. 6.1 Approaches to develop Paurasahavas capacity on mandatory functions Based on the findings above and taking the ten priority services identified in the Baseline Survey (See above), the Survey Team recommends to focus capacity development support for Paurasahavas on those ten priority services and some additional functions which are particularly important for urban development. Specifically, the following institutional, organizational and technical interventions are recommended. A. Institutional point of view (1) Development of guidelines The survey results suggest the revision or development of operational or technical guidelines can be helpful for construction of public streets, maintenance of public streets, construction of public drains, and provision of public toilets. Though there are already basic guidelines/manuals on these subjects, the review of those guidelines and the development of more specific ones may be needed. Further investigation will be required in order to grasp the real situation and to identify exact needs of Paurashava officials. In addition to the ten priority service areas, there are another four important service areas that the Survey Team and JICA Expert Team consider important and on which guidelines seem to be missing. On the following functions, the GOB is recommended to provide adequate guidelines to Paurasahavas.Formulation of Master Plan The Act stipulates Paurashavas function to prepare a Master Plan. Some Paurashavas including four of the seven studied Paurashavas have prepared or are preparing it. However, it was or is being prepared by LGED-hired consultants, and Paurashavas have little idea how to take advantage of it. 59

205 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Adequate guidance from the GOB as well as translation of the prepared Master Plan into Bangla language will help Paurashavas in planned development of their area. Inspection and control of execution of site development schemes Although this function is not prioritized by the studied Paurashavas, it is an important function for planned urbanization. It is presently not performed by any of the studied Paurashsavas either due to the absence of a Master Plan, which is required to perform this function, or because they do not know what to do. Inspection of completed buildings (No. 36 Completion of buildings, alteration of buildings, etc.) Although the studied Paurashavas perform approval of building plans, none of them work on inspection of completed buildings to ensure implementation as per approved plans. There are two major reasons for this: lack of manpower and lack of guidelines. Though it is difficult to solve the manpower issue in a short period of time, provision of guidelines coupled with appropriate training will facilitate planned development of Paurashavas. Approval of construction of new streets Similarly, none of the studied Paurashavas performs this function. This is also a critical function for planned development of the Paurashavas but clear guidelines are missing. Civil defense (security) of the municipality The civil defense function of Paurashavas should be more clearly defined and Paurashavas need to be provided with guidelines accordingly. The maintenance of security and discipline of the residents is one of the four main responsibilities stipulated in the Act (Article 50(1)). Nevertheless, the survey found that the civil defense function was no more than local dispute settlements and grievance redresses for the seven Paurashavas. Consequently, they do not seem to feel the need for capacity development with regard to this function. Because the establishment of the Paura Police, which was prescribed by GOB, does not appear to be a realistic option for the majority of Paurashavas for financial constraints, more feasible prescriptions should be considered, particularly for smaller Paurashavas. (2) Financial support Although Paurasahavas are required to raise as much funds as possible from their own sources of income in the first place, the GOB is recommended to provide more financial support for Paurashavas, particularly those of B and C category, to improve the functions above, especially those functions that require a substantial amount of funds. Lack of financial resources is the major constraint for the Paurasahavas to sufficiently perform some of the above-identified priority services such as construction of public streets, maintenance of public streets, construction of public drains, maintenance of public streets, provision of street lights and provision of public toilets, and supply of safe water. 60

206 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey B. Organizational point of view The Survey Team recommends before anything else that Paurashavas make more serious effort to generate their own financial sources to meet the increasing need for improvement of infrastructures mentioned above. Paurashavas are recommended to enhance the capacity development for planning in the field of road and drainage construction. The GOB is also recommended to provide necessary support for capacity development of Paurashavas in terms of planning. In order to utilize the limited financial sources efficiently and effectively, planning is a key area for capacity development. Lack of plans to develop a roadway network in Paurashava is the second most crucial reason for the insufficient performance of construction of public streets, following lack of finance. Similarly, more than half of the respondents cited lack of a drainage master plan in Paurashava as a reason for the insufficient performance of construction of public drains. C. Technical point of view The GOB is recommended to ensure if rules, regulations, and guidelines required for Paurashavas to perform their mandatory functions are in their hands and guidance and training necessary for them to understand those is provided. In general, the studied Paurashavas did not ascribe their poor performance on mandatory functions to technical incapacity. In fact, the jobs for officials do not seem to require special skills except for engineering-related ones, for which all the engineers were found to be equipped with basic skills as a result of a variety of training courses provided by LGED. What they need is knowledge and understanding of the existing rules and regulations or guidelines and provision of new ones that they believe are missing. The priority services identified through the Baseline Survey should be given focus. Among mandatory functions other than the ten priority services mentioned above, the Survey Team has identified the following functions that interventions may be needed: Training on approval of building plans (No. 35 erection and re-erection of buildings ) and inspection of completed buildings (No. 36 completion of buildings, alteration of buildings, etc. ) should be provided along with proper guidelines. Both functions are important functions for planned urban development as much as formulation of a Master Plan and inspection and control of land development schemes. Lack of skills was mentioned as one of the reasons for their insufficient performance in four Paurashavas and three Paurashavas respectively though the issues of manpower shortage and ignorance of the residents about their obligation also need to be tackled in a long run. The above-mentioned approaches are summarized in the table below. 61

207 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Waste management Table 6-1: Summary of proposed approaches A. Institutional B. perspective Primary services Organizational Financial Guideline perspective resources Provision of public toilets x x Water supply Construction of public drains x x x Maintenance of public drains Formulation of a Master Plan Inspection and control of execution of site development schemes Approval of building plans x x x x x C. Technical perspective Inspection of completed buildings x x Construction of public streets x x Maintenance of public streets x x Approval of construction of new streets Lighting of public street Civil defense of the municipality x x x x 6.2 Approaches to deal with the administrative challenges The Survey Team and the JICA Expert Team analyzed major administrative issues that Paurashavas face and recommend the following approaches to tackle those administrative challenges. A. Institutional point of view The following issues require central level institutional (GOB) intervention: GOB grant should be based on minimum demand of Paurashavas. As far as the studied Paurashavas are concerned, the category C Paurashavas, which are relatively new and have low capacity to generate their own revenue, are given a lower amount of GOB grant than the amount the category A Paurashava receives. The basis for grant allocations was found to be not judicious. Predictability of grant allocations also needs to be improved. It will greatly help the Paurashavas to prepare a realistic as well as effective budget based on proper long-term projection of income. Except for an emergency, most of the special grants should be purely based on the performance of the Paurashavas. None of the studied Paurashavas were found to receive special grants on a performance basis. This leads to unhealthy competition among the Paurashavas. The preparation of a development plan should be mandatory to ensure more effective allocation of limited financial resources. It can also serve as a tool for monitoring of Paurashavas activities. The Paurashava officials should be provided with clear guidelines on how to prepare a development plan. For realistic and applicable budget, the guidelines can be specific for each category of Paurashava or accommodating to different financial situations of Paurashavas to support 62

208 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey effective and efficient budget preparation. The guidelines should be such that ensures the residents participation in the budget formulation process. The common guidelines for budget formulation are not followed by all categories of Paurashavas. Training and enforcement by LGD to follow the current budget guideline and budget format would be also needed. There should be specific guidelines and rules on internal audit, by which Paurashava accounts and audit standing committee implements internal auditing. Guidance from LGD and training might be also needed because current practices of internal audit of Paurashavas depend entirely on an individual mayor s will and therefore its effectiveness is questionable. Besides, there is no other institutional arrangement to internally ensure efficient use of financial resources by Paurashavas. There should be standard mechanisms as well as guidelines for monitoring Paurashavas activities. Although the Council plays a certain role in monitoring, the role of the standing committee is not clear. The involvement of the residents in monitoring is also very limited though mechanisms and means for that such as WLCC and TLCC as well as the citizen report card system are in place. The GOB should take measures to strengthen those accountability mechanisms. Facilitation of peer learning among Paurashavas may be an option in this regard. B. Organizational point of view There are a number of institutional mechanisms to ensure Paurashavas accountability. However, many of them are not set up or not working well. Some reform efforts are required for the Paurashavas for better governance practice and the GOB needs to direct and facilitate such efforts. These reforms are recommended as follows: Based on the organogram, individual Paurashavas should work out an optimal staff structure with job description for each post in accordance with their own need and financial capacity. For that purpose, it is necessary to have medium-term plans prioritizing activities. For effective and efficient budget formulation, the existing system and practices should be entirely reformed. There is no pressure on the Paurashavas to prepare a realistic budget in the current budget formulation system. In addition, the current accountability mechanisms should be strengthened. The activation of the standing committee on establishement and finance and the enhancement of TLCC are urgent issues. The monitoring and evaluation of Paurashavas internal revenue and surplus should be strengthened. Pressure upon the revenue sections employees by the Mayor and/or Councilors can improve revenue income of the Paurashavas. This can be done by enhancing monitoring of tax collection as well as revenue collection from other sources. Monitoring on revenue surplus is also important for securing available fund at Paurashavas, as some Paurashavas might increase expenses (e.g., salary expenses) when tax revenue increased. To improve existing accountability mechanism of Paurashavas budget execution, standing committees and WLCC and TLCC need to be activated. Councilors involvement should be maximized for budget execution. Efficiency and effectiveness of budget mostly depend on the accountability to the people through some defined mechanism. In addition to the Council, standing committees, WLCC, TLCC, an open budget meeting, and disclosure of the budget to the public are the important institutional arrangements of accountability of budget to the people. 63

209 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey C. Technical point of view It is found from the survey that both elected and employed Paurashava officials have some gaps between current knowledge and required knowledge to perform duties sufficiently. By giving training and orientation on the Act, rules and regulations as well as some activities, these knowledge gaps can be overcome and Paurashavas capacity can be improved. Broad areas for technical intervention are recommended as follows: For elected representatives Orientation on basics of the Paurashava administration. Subjects may include the Paurashava Act and related basic rules and regulations, workings of Paurashavas including accountability mechanisms, roles of standing committees, roles of stakeholders including the residents, and responsibilities of elected representatives. Monitoring and evaluation of Paurashava activities including roles of the Council, standing committees and TLCC and WLCC and performance of Paurashava officials. Internal audit (for the Mayor and standing committee members) For Paurashava officials Development planning Budget preparation and projection Monitoring and reporting of budget execution and internal revenue and surplus (including computerized taxation) Accounting and record keeping (including computerized accounting) Monitoring and evaluation of development undertakings and other Paurashava activities Resident s participation in monitoring of Puarasahavas activities including budget formulation and execution Existing rules and regulations, especially new ones on any important areas and those required for operation and management of Paurashavas properties and health and conservancy services. In summary, the Mayor and the Councilors need exclusive orientation on the Act, rules and regulations, etc., first, and then GOB-level intervention can be given by providing some guidelines for monitoring and evaluation of development and regular activities of Paurashavas where the Councilors can contribute significantly. More specific guidelines can also be provided on such aspects as internal audit and health and conservancy activities. Some policy-level interventions recommended above such as reforms in grant allocations would take time and therefore may be undertaken on a long-term basis. The above mentioned approaches are summarized in the table below. 64

210 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Table 6-2: Relationship between administrative challenges and three levels of approaches Administrative issues C. Technical perspective A. B. Institutional Organizational Elected Paurashava perspective perspective representat officials ives Low capacity to collect holding tax (HT) x Insufficient and inequitable amount of grants from the Government x Absence of development plans x x Ineffective formulation of annual budget x x x Ineffective execution of annual budget x x x x Manpower shortage Insufficient monitoring and evaluation of Paurashava s work Insufficient administrative knowledge and skills of Paurashava officials/elected representatives x x x x x x 65

211 Shailkupa Paurasahava, Jenaidah District Annex 1: List of Interviewee Interviewee Name Years in the post 1 Mayor Mr. Ashraful Ajom 03 years 2 Councilor, W-03 Niklar SK 03 Years 3 Councilor,W-04 Md. RafikulIslam 03 Years Elected Representatives 4 Councilor, W-06 Md. S Ali 03 Years 5 Councilor, W-07 Md Saiful Islam (Panel 03 Years 6 L. Councilor, W-1,2,3 Mayor) Sultana jahan 03 Years 7 Secretary Mr. Nur Mahmud 16 Years 8 Administrative Accountant Prodwip Kumar Biswaw 20 years 9 Tax Collector Sazzadur Rahman 22 years 10 XEN Md. Rofikul Islam 28 years 11 Engineering Department Sub Assist. Engineer Obaydur Rahman 4.5 years 12 Work Assistant Md. hafijur rahman 19 years 13 Conservancy Inspector Md. Rezaul Islam 2 years Health & Conservancy 14 Immunization Inspector Md. Jahidul Islam 15 years Bakerganj Paurashava, Barisal District Interviewee Name Years in the post 1 Mayor Md. Lokman Hosen Dakua 03 years 2 Elected Representatives Councilor, W-01 Mr. Abul Kalam Azad 03 years 3 Councilor, W-03 Mr. Moniruzzaman Shikder 03 years 4 Councilor, W-04 Mr. Md. Selim Reza 03 years 5 Secretary Md. Shahidul Islam 14 years 6 Accountant Md. Abdus Salam Manik 8 years 7 Administrative Tax Assessor kaji Najrul Islam 21 years 8 Tax Collector, Haji Md. Kabir Hosain 21 years 9 License Inspector Md. Kawsar Hosain 8 months 10 Assist. Engineer, Hawlader Md. Mosiur Rahman 18 years 11 Engineering Department Work Assistant Md. Nuruzzaman Khan 19 years 12 Draftsman Md. Kamrul Hasan Khan 6 months 13 Health Assistant Akter jahan Chobi 1.5 years Health & Conservancy 14 Immunizer Ariful Islam 6 months 66

212 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Sengarchar Paurashava, Chandpur District Interviewee Name Years in the post 1 Mayor Md.Rafiqul Alam George 03 years 2 Councilor, W-02 Md. Shahinur Bepary 03 Years 3 Councilor, W-04 Shahadat Hossaain Khokon 03 Years Elected Representatives 4 Councilor, W-07 Md. Abdul Motin 3 years 5 Councilor, W-09 Md. Delower Hossain Sarder 03 Years 6 Councilor, W-1,2,3 Selina Begum 03 Years 7 Secretary Shah Sufian Khan 09 Years 8 Accountant (TA looks after accounting) 2 Years 9 Administrative Tax Assessor Md. Sohrab Hossain 14 Years 10 Tax Collector Mr. Harun Ur Rashid Rahman 14 Years 11 License Inspector TC looks after license issuance N/A 12 Engineering Department Assist. Engineer Md. Abul Anser 22 years Ulipur Paurasahava, Kurigram District Interviewee Name Years in the post 1 Mayor Md. Abdul Hamid Sarkar 03 years 2 Councilor, W-02 Md. Asadul Haque 3 years 3 Coucilor, W-05 Md. Bogasar Ali Khan 3 years 4 Elected Representatives Councilor, W-06 Md. Kaysar Ali 10 years 5 Councilor, W-07 Md. Anisur rahman 3 years 6 Councilor, W-08 Md. Rafikul Islam 3 years 7 L. Councilor, W-4,5,6 Khusi Begum 3 years 8 Secretary Lutfurrahman 09 Years 9 Accountant Md Nasir Uddin Sardar 10 Years 10 Administrative Tax Assessor Md. Motiar Rahman 11 Years 11 Tax Collector Md. Mahbubur Rahman 11 Years 12 License Inspector Md. Kamal Uddin Khan 10 Years 13 Engineering Department Sub Assist. Engineer Shahinur Rahman Khan 3 years 14 Health Assistant Shoumandronath Roy 14 Years 15 Health & Conservancy Conservancy Inspector Shahidur Rahman 14 Years 16 Sanitary Inspector Md. Rafikul Islam 3 Months Atghoria Paurashava, Pabna District Interviewee Name Years in the post 1 Mayor Md. Aminul Haque 2.5 years 2 Councilor, W-02 Fajlul Haque 03 years 3 Councilor, W-06 K M Farhad Hossain 03 years Elected Representatives 4 Councilor, W-07 Anwaru Islam 03 years 5 L. Councilor, W-1,2,3 Zahura Begum 03 years 6 L. Councilor, W-4,5,6 Mrs. Umme Kulsum Jahan 03 years 7 Secretary Md. A Rashid 13 years 8 Accountant Kazi Nazmul Haque 14 years Administrative 9 Tax Assessor Md. Abu Bakar siddique 14 years 10 Tax Collector Md. Abu Bakar siddique 14 years 11 Engineering Department Assist. Engineer Md. Obayedul Haque 14 years 67

213 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Kanaighat Paurashava, Sylhet District Interviewee Name Years in the post 1 Mayor Mr. Md.Lutfor Rahman 03 years 2 Councilor, W-01 Mr. Jahangir Alam 05 years 3 Councilor, W-02 Mr. Shariful Haque 03 years 4 Councilor, W-03 Hazi Abdul Manik 03 years 5 Councilor, W-04 Mr. mostak Ahmed 03 years 6 Councilor, W-05 Mr. Hafij-nur-Uddin 03 years 7 Elected Representatives Councilor, W-06 Mr. Fakar uddin Shamim 03 years 8 Councilor, W-07 Mr. Abdu Rahim 03 years 9 Councilor, W-08 Mr. Taz uddin 03 years 10 Councilor, W-09 Mr. habib Ahmed 03 years 11 L. Councilor, W-1,2,3 Mosammat Foyzunnesa 03 years 12 L. Councilor, W-4,5,6 Asia Begum 03 years 13 L. Councilor, W-7,8,9 Mosammat asma Begum 03 years 14 Secretary Md. Monir uddin Ahmed N/A 15 Accountant Md. Monir uddin Ahmed N/A Administrative 16 Tax Assessor yahiya 3 Years 17 Tax Collector yahiya 3 Years 18 Engineering Department Assist. Engineer Md. Monir uddin Ahmed 13 years 19 Health & Conservancy Health Assistant Foysal Ahmed 07 months Pakundia Paurashava, Kishorganj District Interviewee Name Years in the post 1 Mayor Advocate Md. Jalal Uddin 03 Years 2 Councilor, W-02 Md. Swapan Mia 03 Years 3 Coucilor, W-05 Md. Asad Mia 03 Years 4 Councilor, W-06 Md. Sujon Lat 03 Years Elected Representatives 5 Councilor, W-07 Md. Mobarak Hosain 03 Years 6 Councilor, W-09 Md. Mustofa kamal 03 Years 7 L. Councilor, W-1,2,3 Mst. Fatema Akter Rekha 03 Years 8 L. Councilor, W-7,8,9 Mst. Habiba Khatun 03 Years 9 Secretary Syed Shafiqur Rahman 15 years 10 Accountant Md. Enamul Haque 1 year Administrative 11 Tax Assessor Sumona Siddiqa 5 years 12 Tax Collector Md. Rafiqul Islam 5 years 13 Assist. Engineer Shah Alam 12.4 years Engineering Department 14 Sub Assist. Engineer Abdul Jabbar 8 years 15 Health Assistant Nasrin Akter 5 years Health & Conservancy 16 Immunizer Selina Begum 5 years 68

214 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Date of Establishment Date of Upgrade Annex 2: Paurashava Profile Bakerganj 7 August, May, 2012 Senger char Basic Information 25 May, 1998 Aprl. 16, 2012 Pakundia Shoilkupa Atghoria Ulipur 04 March, 2007 Current Category "B" "B" "C" 12 May, 1992 "A" 31 May, July, Oct May, 2005 Kanai ghat Oct. 25, 2005 "C" "B" "C" Location (Division) Barisal Chittagang Dhaka Khulna Rajshahi Rangpur Sylhet Standing Committee Administratio n Division Engineering Division Health Division Area (District) Barisal Chandpur Kishoregonj Jhenidah Pabna Kurigram Sylhet (Upazila) Bakerganj 6.25 sq.km. Motlob (North) sq.km. Pakundia Shoilkupa Atghoria Ulipur sq.km sq.km sq.km sq.km Number of wards Kanaigh at 4.04 sq.km. Population 29,890 36,691 28,773 35,271 16,412 45,933 27,078 Number of holders ,247 5, ,207 10,301 4,027 Frequency of council meetings Council and Committees Administration & finance Yes No Yes Yes Yes Yes Yes Tax assessment & collection Yes No Yes Yes Yes Yes Yes Accounting & audit Yes No Yes Yes Yes Yes No Urban planning, urban service and development Yes No Yes Yes Yes Yes No Law enforcement No No Yes Yes Yes Yes No Communication & physical infrastructure Yes No Yes Yes Yes Yes Yes Women & children Yes No Yes Yes Yes Yes No Fisheries & animal resources Yes No Yes No No Yes No Information & culture No No Yes Yes Yes Yes No Price monitoring, observation & control No No Yes Yes Yes Yes No Non governmental organization Yes No Yes Yes Yes Yes No collaboration Health, water & sanitation Yes No Yes Yes Yes Yes Yes Poverty reduction & slum Yes No Yes Yes No Yes No development Waste disposal & handover No No Yes Yes No Yes No Disaster management Yes No Yes Yes No Yes No Women development Yes No Yes Yes No Yes No TLCC Yes No Yes Yes No No WLCC Yes No Yes Yes No No Yes Manpower Vacancy Rate 76% 82% 65.38% 34.88% 84% 45.71% 100% Number of sanctioned posts Actual number of posts Vacancy Rate 75% 90% 85.19% 65.57% 92.31% 71.88% 96.30% Number of sanctioned posts Actual number of posts Vacancy Rate 90% 100% 75% 56.52% 100% 68.18% 100% Number of Sanctioned posts Actual number of posts

215 Annex 3: Expectation from the Ministry Deman from PS Shailkupa PS Bakerganj PS Chengarchar PS Ulipur PS Mayor: Atghoria PS Kanaighat PS Pakundia PS Total ADP is not Enough it should provide according to the Demand Demand for Special Grants PS need to get All circulation in compilation from ministry 1 1 Mayor must have the freedom to employ first class and second class employee according to the PS demand; Must have the scope to give the opinion to ministry about the PS requirements according to the Demand and also about the salary of PS staffs must have the facilities to increase Honorium, Promotion, Services, Autonomy on recruitments etc. PS officials Social Safety; like providing paura police Demand for lands; Like providing sufficient land from ministry for development works Requirehelp from LGD to collect Toll from nearby bridge; to lease out kheya ghat, water body for extra income of PS; Requirements of Rules, regulations and Training ADP is not Enough Allocation of special grant, To increase honorium of Councilors need more manpower (health Officer, Surveyor, Sub Assistant Engineetr); Social Safety; like providing paura police Councilor: Demand for pure drinking water, expand electricity supply need more development works like Roads, Street Lights, Water Supply Culverts and Drains need projects like FFW, TR in the Paurashava Demanded for Equipments (Gurbage trucks, Road Roller, Ambulance, other transport etc.) Public awareness building program for application of rules and regulation; Development works and other PS service related works Requirements of Rules, Regulations and Training for PS Need training for councilors to gather skill on monitoring the development works; need orientation training to know all service and rules relatyed to PS services

216 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey ADP is not Enough Secretary: PS officials need to get free from dual Power ; Have to edit the Service rule 92, as elected representatives should not have the power on controlling the PS officials (as they have to follow minstry (rules and regulation) and the Local Public Representatives) Ministry will monitor PS Officials works rather than Local Public Representatives. Ministry should direcly look after the needs of the PS & have to take speedy decision about any matter. To give mayor'straining about the rules and regulation. They Want salary regularly from ministry with other benefits (like Provident fund and gratuity from ministry;) They must need standard rules for regular hierarchy basis promotion (as block post is not satisfactory to work); Need training for Mayor on relevant rules and regulations They want Transfer order directly from the ministry; Requirements of updated Rules regulations, Training on office management and technical cooperation ADP is not Enough Job Requirement, (Honorium, Promotion, Services. Etc.) They Want salary regularly from ministry with other benifits PS officials need specific rules on authoraization power for the development control All decission from LGD should exeute quickly and Funding process from LGD should quick according to the Project scheme as PS always suffer for the delaying; PS must have to get clear direction from the LGD for all kind of decission about PS Engineer They must need standard rules for regular promotion (as block post is not satisfactory to work and to avoid illigal promotions) Need training on Development Planning and Directions on the Implementation, monitoring and supervision of works for development works; Engineer must have the opurtunities to give opinion on selection of development projects Need training on understanding the Master plan and its Implementation Need training on basic Computer Need training for elected representatives first Provide training on Project Management, Design, Cost estimation, Project presentation, Foundation trinanig on Existing rules and regulation, PPR, PS act and other relevant rules and regulations All Fresh engineers should trained up before start working in any PS. Need skill on Office Management works; ADP is not Enough Need necessary equipments for health section H & C Need to increase manpower in Health section Need Smooth promotion; need standard rules for regular hierarchy basis promotion Need training for health section ( to work in the field level on immunization and advice on health program)

217 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Annex 4: Questions regarding Mandatory Functions of Paurashava Mandatory Questions Answers Evidence functions I) Infrastructure development/planning and implementation of urban development plan (incl. building control) 1) Formulation of a master plan (32) A municipality shall draw up a Master Plan for the municipality within five years of formation or implementation of this ordinance 1. Does PS have a master plan? a) Yes Mayor/Engrr b) No, but it is being developed. c) No 1-1. (If Yes ) Who developed/is preparing the master plan? Engrr 1-2. (If Yes ) What did PS do in the Free answer master plan development process? (e.g. prepared consultant TOR, participated consultation workshops held by LGED, provided information requested by LGED consultant) Engrr a) PS/Consultant hired by PS b) LGED s consultant in consultation with PS c) LGED s consultant without consultation with PS d) Other ( ) 1-3. (If No ) Why has PS not a) Lack of demand of the citizens N.A developed a master plan? Mayor/Engrr b) Lack of financial resources c) Lack of manpower d) Lack of skills e) Lack of guidelines/don t know exactly what we need to do f) Don t think it is important g) Didn t know it is mandatory h) Other ( ) 2) Inspection and 1. Does PS inspect and control the a) Yes, sufficiently. N.A. control of execution execution of site development b) Yes, to a certain extent. of land development schemes? Mayor/Engrr schemes (34) c) Yes, but very little. d) No. e) Don t have any site development The execution of a schemes. Site Development f) Don t know what site development Schemes shall be scheme is. subject to the 1-1. (If Yes ) What does PS do for the Free answer inspection and inspection and control of the execution control of the of site development schemes? Engrr municipality and the Does PS carry out those a) Yes municipality may activities regularly? Engrr b) No give such directions with regard to the 1-2. (If Yes ) What are the areas of a) The whole PS execution of the PS s activities for the inspection and b) Only the adjacent areas of PS sadar Scheme as may be control of the execution of site c) Only the distant areas from PS sadar necessary for the development schemes? Engrr d) Wherever necessary proper development e) Other ( ) of site (If other than Yes, sufficiently ) a) Lack of demand of the citizens Why does PS not sufficiently inspect b) Lack of financial resources c) Lack of manpower 3) Approval of building plans (35) and control the execution of site development schemes? Mayor/Engrr 1. Does PS work on approval of a) Yes, sufficiently. building plans? Mayor/Engrr d) Lack of skills e) Lack of guidelines / Don t know exactly what we need to do f) Don t think it is important g) Didn t know it was mandatory h) Other ( ) [ ] Yes [ ] No N.A N.A. N.A. [ ] Yes [ ] No [ ] Yes [ ] No b) Yes, to a certain extent. c) Yes, but very little. No person shall d) No. erect or re-erect a building or 1-1. (If Yes ) What does PS do Free answer N.A. commence to erect regarding approval of building plans? or re-erect a building Engrr unless the site has been approved, and 1-2. (If Yes ) How many building plans nos (.%) of the total.. nos of [ ] Yes the building plan has did you approve during last fiscal year constructed buildings [ ] No been sanctioned by and how many buildings were constructed last year? Engrr N.A.. N.A. Application form for bldg plans 72

218 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey the municipality (If other than Yes, sufficiently ) a) Lack of demand of the citizens / The N.A. Why does PS not sufficiently work on citizens do not bother getting approval approval of building plans? Mayor/Engrr b) Lack of financial resources c) Lack of manpower d) Lack of skills e) Lack of guidelines (land use, standard building directions like building code) / Don t know exactly what we need to do f) Don t think it is important g) Don t think it is necessary for all categories of buildings. h) Other ( ) 4. Inspection on 1. Does PS inspect (according to land a) Yes, sufficiently. N.A. completed buildings use of Master Plan or Land b) Yes, to a certain extent. (36) Development Scheme, Design, Risk c) Yes, but very little. Probability, etc.) on construction/reconstruction of buildings? Mayor/Engrr d) No. The municipality shall cause every building which has 1-1. (If Yes ) What does PS do for Free answer N.A. Notice to been completed to inspection of completed buildings? building be inspected. Engrr owner 1-2. (If Yes ) What is the geographical a) The whole area of PS coverage of PS s activities regarding b) Only the adjacent areas of PS sadar the inspection of completed buildings? c) Only the distant areas from PS sadar Engrr d) Wherever necessary e) Other ( ) [ ] Yes [ ] No 1-3. (If Yes ) How many buildings were..nos out of total..nos of [ ] Yes constructed/re-constructed last fiscal constructed/reconstructed buildings [ ] No year and how many of them did PS inspect? Engrr Complaints on layout plan, etc (If other than Yes, sufficiently ) a) Lack of demand of the citizens N.A. Why does PS not sufficiently perform b) Lack of financial resources the inspection of the completed c) Lack of manpower buildings? Mayor/Engrr d) Lack of skills e) Lack of guidelines (land use, building directions standard like building code) / Don t know exactly what we need to do f) Don t have many buildings to inspect g) Don t think it is important h) Didn t know it is mandatory i) Other ( ) 5) Provision and 1. Does PS construct public streets a) Yes, sufficiently. N.A. maintenance of (expect for those streets under RHD b) Yes, to a certain extent. public streets (38) and LGED jurisdiction) to meet the c) Yes, but very little. demand for comfortable road way d) No. (1) A municipality communication? Mayor/Engrr shall provide and maintain such public streets and other means of public communication as may be necessary for the comfort and convenience of the inhabitants of the municipality and of the visitors thereto (If Yes ) What does PS do for Free answer construction of public streets? (e.g. prepare lay out design (network design), necessary works for land acquisition, costing etc., tendering, work monitoring, provide information requested by LGED, DPHE, etc.) Engrr N.A. 73

219 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey 1-3. (If other than Yes, sufficiently ) a) Lack of demand of the citizens N.. Why does PS not sufficiently provide b) Lack of financial resources public streets for better c) Lack of manpower communication? Mayor/Engrr d) Lack of skills e) Lack of guidelines / Don t know exactly what we need to do f) Problems on land acquisition g) Lack of plans to develop road way networks h) Insufficiency and ineffectiveness of existing process of PS to develop road way networks. i) Other ( ) 2. Does PS maintain public streets? a) Yes, sufficiently. Mayor/Engrr b) Yes, to a certain extent. c) Yes, but very little. d) No (If Yes ) What does PS do for a. Fill up the whole, N.A. maintenance of public streets (except b. Repair for those under RHD and LGED c. Carpeting jurisdiction)? Engrr d. Maintenance of footpaths e. Other ( ) 2-2. (If other than Yes, sufficiently ) a) Lack of demand of the citizens N.A. Why does PS not sufficiently maintain b) Lack of financial resources public streets? Mayor/Engrr c) Lack of manpower d) Lack of skills e) Lack of guidelines / Don t know exactly what we need to do f) No need for maintenance g) Don t think it is important h) Other ( ) 6) Execution of road 1. Does PS have a road maintenance a) Yes maintenance & and development programme as a part b) No, we maintain and develop roads but do development programme (38) of the annual budget? Mayor/Engrr not have such programme. c) Don t know what road maintenance and development programme refers to (2) A municipality 1-1. (If Yes ) Does PS execute it? a) Yes, sufficiently shall, in the Mayor/Engrr b) Yes, to a certain extent prescribed manner, c) Yes, but very little prepare and execute d) No a Road (If Yes ) What are the areas that a) The whole area of PS Maintenance and PS covers in the road maintenance and b) Only the adjacent areas of PS sadar Development development programme? Engrr c) Only the distant areas from PS sadar Programme, which d) Wherever necessary shall form a part of e) Other ( ) the budget, and the Prescribed Authority (If other than Yes, sufficiently ) a) Lack of financial resources may alter or amend Why does PS not sufficiently execute a b) Lack of manpower the Programme in road maintenance and development c) Lack of skills such manner as it programme? Mayor/Engrr d) Lack of guidelines considers f) Other ( ) necessary. 7) Approval of 1. Do you approve construction of new a) Yes, sufficiently. N.A. construction of new streets other than Pourashava roads b) Yes, to a certain extent. streets (39) (private, those constructed by LGED, c) Yes, but very little. RHD and other)? Mayor/Engrr d) No. No new street shall 1-1. (If Yes ) What does PS do to Free answer N.A. be laid out except approve construction of new streets? with the previous Engrr sanction of the 1-2. (If Yes ) What is the length of new FY 2010/11:..km [ ] Yes municipality and in roads that were approved by PS in the FY2011/12:..km [ ] No conformity with the last 3 fiscal years? FY 2012/13:..km terms and Or conditions of such How many applications were approved FY2010/11:.nos sanction. by PS? FY2011/12:.nos Engrr FY2012/13:.nos 1-3. (If other than Yes, sufficiently ) a) Lack of demand of the citizens / The N.A. Why does PS not sufficiently perform citizens do not bother getting approval b) Lack of financial resources this function (approval of new streets)? Mayor/Engrr c) Lack of manpower d) Lack of skills e) Lack of guidelines (traffic/ transportation plan, etc.) / Don t know exactly what we 74 N.A.

220 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey II) Maintenance of security and decipline 8) Civil defense of the municipality (46) A municipality shall be responsible for the Civil Defense of the municipality, and it shall, in this need to do f) Don t think it is important g) Other ( ) 1. Does PS perform civil defense a) Yes, sufficiently. (security) functions? Mayor/Secy b) Yes, to a certain extent. c) Yes, but very little. d) No e) There is no mandatory function regarding civil defense 1-1. (If Yes ) What does PS do Free answer regarding civil defense responsibilities? behalf, perform such Mayor/Secy functions as may be 1-2. (If Yes ) What are the areas those a) The whole area of PS prescribed. PS s activities cover? Mayor/Secy b) Only the adjacent areas of PS sadar c) Only the distant areas from PS sadar d) Wherever necessary e) Other ( ) N.A. N.A. [ ] Yes [ ] No 1-3. (If other than Yes, sufficiently ) a) Lack of demand of the citizens N.A. Why does PS not sufficiently perform b) Lack of financial resources civil defense responsibilities? c) Lack of manpower Mayor/Secy d) Lack of skills e) Lack of guidelines / Don t know what we need to do f) Don t think it is important g) Didn t know it is mandatory h) Other ( ) 2. Has PS established the Poura a) Yes Police? Mayor/Secy b) No, but it is being established. c) No 2-1. (If Yes ) What do they do? Mayor/Secy 3. Do you work with GOB agencies for a) Yes, regularly (Specify: ) N.A. civil defense? Mayor/Secy b) Yes, sometimes (Specify: ) c) No 9) Maintenance & 1. Does PS maintain and administer a) Yes, sufficiently. N.A. administration and graveyard/burnyard established by PS b) Yes, to a certain extent. registration of burial or GOB? Mayor/Secy c) Yes, but very little. and cremation d) No ground (49) e) There is no graveyard/burnyard established by PS or GOB A municipality may 1-1. (If Yes ) What does PS do for Free answer N.A. provide suitable maintenance and administration of places for the burial graveyards/burnyards? Secy and cremation of the 1-2. (If Yes ) How many.nos out of the total.nos of [ ] Yes dead, and, shall graveyards/burnyards does PS graveyards/burnyards established by PS or [ ] No take necessary maintain and administer? Secy GOB measures for the proper maintenance 1-3. (If other than Yes, sufficiently ) a) Lack of demand of the citizens N.A. and administration Why does PS not sufficiently maintain b) Lack of financial resources of such burial and and administer graveyards/burnyards c) Lack of manpower cremation ground. established by PS or GOB? d) Lack of skills Mayor/Secy e) Lack of guidelines / Don t know what we need to do f) Don t think it is important g) Didn t know it is mandatory h) Other ( ) 2. Does PS work on registration of a) Yes, sufficiently N.A. graveyards/burnyards not administered b) Yes, to a certain extent by PS? Secy c) Yes, but very little d) No 2-1. (If Yes ) What exactly does PS do Free answer N.A. for registration? Secy 2-2. (If Yes ) How many.nos of graveyards (.% of the total [ ] Yes graveyards/burnyards are registered number of burials within PS) [ ] No with PS? Secy.nos of burnyards (.% of the total number of cremation grounds) 2-3. (If other than Yes, sufficiently ) a) Lack of demand of the citizens / The N.A. Why does PS not sufficiently work on citizens do not bother registering. registration of graveyards/burnyard? b) Lack of financial resources Mayor/Secy c) Lack of manpower d) Lack of skills 75

221 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey III) Water supply (and drainage) e) Lack of guidelines / Don t know what we need to do f) Don t think it is important g) Didn t know it is mandatory h) Other ( ) 10) Water supply 1. Does PS supply or arrange to have a) Yes, sufficiently. (10) supplied safe water? b) Yes, to a certain extent. Mayor/Engr/Health & Concy A Municipality shall, c) Yes, but very little. d) No within the limits of 1-1. (If Yes ) What does PS do for a) Establish and maintain water pipeline the funds at its water supply? Engr/Health & Concy b) Establish and maintain tube-well disposal, provide, or c) Only establish water pipeline cause to be d) Only maintain water pipeline provided, to the e) Only establish tube-well municipality a f) Only maintain tube-well supply of g) Other wholesome water 1-2. (If Yes ) How many household.,nos of HH (.% of the total no of HH) sufficient for public (HH) are under pipeline water supply and private coverage? Engr/Health & Concy purposes (If Yes ) How many HH are under..nos of HH (.% of the total no of HH) PS s pipeline water supply coverage? Engr/Health & Concy 1-4. (If Yes ) How many HH are under..nos of HH (.% of the total no of HH) water supply coverage through tubewell? Engr/Health & Concy 1-5. (If Yes ) What are the areas that a) The whole area of PS PS provides tube-well maintenance b) Only the adjacent areas of PS sadar services? Engr/Health & Concy c) Only the distant areas from PS sadar d) Wherever necessary e) Other ( ) 1-6. (If other than Yes, sufficiently ) a) Lack of demand of the citizens Why does PS not sufficiently perform b) Lack of financial resources water supply function? c) Lack of manpower Mayor/Engr/Health & Concy d) Lack of skills e) Lack of water sources f) Lack of guidelines / Don t know exactly what we need to do g) Lack of a pipeline water supply master plan h) Don t think it is important i) Other ( ) 76 N.A. N.A. [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No 2. Does DPHE or WASA provide a) Yes, they provide support for PS. N.A. support for PS or provide services (Specify what support: ) directly to PS residents? Engr/Health & b) Yes, they provide services directly to Ps Concy residents. (Specify what services: ) c) No, they don t work in PS 11) Regulation of 1. Do you control and regulate private a) Yes, sufficiently N.A. private water water sources? Engr/Health & Concy b) Yes, to a certain extent sources (11) c) Yes, but very little d) No All private sources 1-1. (If Yes ) What does PS do to Free answer N.A. of water-supply implement it? Engr/Health & Concy within a municipality 1-2. (If Yes ) What are the areas does a) The whole area of PS [ ] Yes shall be subject to PS regulate and control private water b) Only the adjacent areas of PS sadar [ ] No control, regulation sources? Engr/Health & Concy c) Only the distant areas from PS sadar and inspection by d) Wherever necessary the Municipality. e) Other ( ) 1-3. (If Yes ) What private water a) Pipelines connected to households sources does PS regulate and control? b) Markets Engr/Health & Concy c) Ponds d) Tube-wells e) Other ( ) 1-4. (If other than Yes, sufficiently ) a) Lack of demand of the citizens Why does PS not sufficiently regulate b) Lack of financial resources and control private water sources? c) Lack of manpower Mayor/Engr/Health & Concy d) Lack of skills e) Lack of guidelines / Don t know exactly what we need to do f) Don t think it is important g) Didn t know it is mandatory N.A. [ ] Yes [ ] No N.A.

222 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey 12) Drain out of water (12) h) Other ( ) 1. Does PS work for drain out of water? a) Yes, sufficiently Mayor/Engr/Health & Concy b) Yes, to a certain extent c) Yes, but very little A Municipality shall, d) No within the limits of 1-1. (If Yes ) What does PS do for Free answer the funds at its constructing public drains? Engr/Health disposal, provide an & Concy adequate system of 1-2. (If other than Yes, sufficiently ) a) Lack of demand of the citizens public drains in the Why does PS not sufficiently maintain b) Lack of financial resources municipality and all public drains? Mayor/Engr/Health & c) Lack of manpower such drains shall be Concy constructed, maintained, kept, cleared and emptied with due regard to the health and convenience of the i) Other ( ) public.. a) Yes, sufficiently 2. Does PS maintain public drains? Mayor/Engr/Health & Concy d) Lack of skills e) Lack of guidelines / Don t know exactly what we need to do f) Don t have a drainage master plan g) No nearby outfall h) Don t think it is important b) Yes, to a certain extent c) Yes, but very little d) No 2-1. (If Yes ) What does PS do for Free answer N.A. constructing public drains? Engr/Health & Concy 2-2. (If other than Yes, sufficiently ) a) Lack of demand of the citizens N.A. Why does PS not sufficiently maintain b) Lack of financial resources public drains? Mayor/Engr/Health & c) Lack of manpower Concy d) Lack of skills e) Lack of guidelines / Don t know exactly what we need to do h) Don t think it is important i) Other ( ) IV) Water and sanitation 13) Provision & 1. Does PS provide public toilets? a) Yes, sufficiently N.A. maintenance of Mayor/Engr/Health & Concy b) Yes, to a certain extent public toilets (4) c) Yes, but very little d) No A municipality shall 1-1. (If Yes ) What does PS do for Free answer N.A. provide and providing public toilets? Engr/Health & maintain, in Concy sufficient number 1-2. (If Yes ) What are the areas PS a) The whole area of PS [ ] Yes and in proper provides public toilets? Engr/Health & b) Only the adjacent areas of PS sadar [ ] No situation, public Concy c) Only the distant areas from PS sadar latrines and urinals d) Wherever necessary for the separate use e) Other of each sex, and shall cause the 1-3. (If Yes ) How many public toilets.nos of public toilets against. nos of [ ] Yes same to be kept in does PS provides? Please provide the demand [ ] No proper order, and to demand as well if you know. be properly cleaned. Engr/Health & Concy 1-4. (If other than Yes, sufficiently ) a) Lack of demand of the citizens N.A. Why does PS not sufficiently provide b) Lack of financial resources public toilets? Mayor/Engr/Health & c) Lack of manpower Concy d) Lack of skills e) GOB does the job f) NGO does the job g) Lack of guidelines / Don t know exactly what we need to do h) Don t think it is important i) Land acquisition problems j) Other ( ) 2. Does PS maintain and clean public a) Yes, sufficiently toilets? Mayor/Engr/Health & Concy b) Yes, to a certain extent c) Yes, but very little d) No 2-1. (If Yes ) What does PS do for Free answer maintaining and cleaning public toilets? Engr/Health & Concy 2-2. (If Yes ) What are the areas PS a) The whole area of PS maintains and cleans public toilets? b) Only the adjacent areas of PS sadar Engr/Health & Concy c) Only the distant areas from PS sadar N.A. N.A. N.A. N.A. N.A. N.A. [ ] Yes [ ] No 77

223 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey d) Wherever necessary e) Other 2-3. (If Yes ) Approximately how many a) All public toilets public toilets does PS maintain and b) Approximately.% of public toilets clean? Engr/Health & Concy 2-4. (If other than Yes, sufficiently ) a) Lack of demand of the citizens Why does PS not sufficiently maintain b) Users reluctance to pay the fee and clean public toilets? c) Lack of financial resources Mayor/Engr/Health & Concy d) Lack of manpower e) Lack of skills f) GOB does the job g) NGO does the job h) Don t think it is important i) Didn t know it is mandatory J) Other ( ) [ ] Yes [ ] No N.A. 78

224 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Annex 5: Questions regarding major administrative/governance challenges Administrative/governance Questions Answers Evidence issues I) Issues that hamper revenue increase 1) Revenue from its own sources of income is low 2) PSs capacity to collect holding tax is not sufficient. 1. What document/database indicates the total holding tax demand? TC/Acc 2. How does PS send holding tax bills? Secry/TC 3. How do the citizens pay holding tax? TC 4. What information do PS officials record in what register/database on a holding tax payment? (e.g. record bill number, payer s name and address, amount paid and date of payment in a tax ledger) TC 5. What document/database indicates total holding tax revenue for a year? TC/Acc 6. What is a collection rate for the last year? How did you calculate it? TC/Acc 7. Why is revenue from holding tax low? Secry/TC/Mayor 8. Does PS set a target for holding tax collection? 9. How often does tax collector report to Mayor or Secretary about tax collection? 1. Is holding tax billing computerized? Secry/Acc. 2. How often does PS reissue tax bill? Secry/TC/Acc. 3. How does PS assess holding tax? Please describe the formula. Secry/TA/Acc. 4. Does the holding tax ledger indicate the number of holdings covered in a regular assessment? Secry/TA/Acc. 5. How does PS record the results of holding tax assessment? Did PS record it in the holding tax ledger indicating the number of holdings? Secry/TA/Acc 6. Is the coverage/number of holdings assessed in a regular assessment reported to Mayor and the Council? Secry/TC/Acc./Mayor/Councilor 79 a) Data base b) Assessment ledger c) Other ( ) a) By mail b) By handing over c) Other ( ) a) At banks b) At PS office c) Collected by PS staff d) Other ( ) Free answer a) Database b) Ledger book (Specify the name: ) c) Other Free answer a) The citizens reluctance to pay HT (Specify the reasons: ) b) Reluctance of Mayor and Councilors to collect HT (Specify the reasons: ) c) Inefficiency of collection (Specify the reasons: ) d) Lack of manpower. e) Improper tax assessment f) Inappropriateness of the prescribed tax assessment method / low tax rate g) No payment by GOB agencies h) Other ( ) a) Yes (Speficy: ) b) No Free answer a) Yes, fully b) Yes, partly (Specify: ) c) No a) Quarterly b) Half yearly c) It is not issued. d) Other ( ) Free answer a) Yes b) No c) Other ( ) Free answer To Mayor: a) Yes b) No c) Other ( ) To Councilors: a) Yes b) No N.A. [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No N.A. N.A. [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No

225 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey 3) Size of GOB grant is not sufficient. 4) Special grant is not allocated in an effective manner 7. What is the total number of holdings subject to assessment by PS? Secry/TA/Acc. 8. How many holdings has PS assessed since the last regular assessment? Secry/TA/Acc. 9. How often does PS conduct reassessment? When were the last and the previous assessments conducted? Secry/TA/Acc. 1. Does PS receive GOB grant (ADP) regularly? Secry/Mayor/Acc 2. Do you think that the amount of ADP grant PS receive is sufficient to fulfil the basic demands? Secry/Mayor/Acc 2-1. (If No ) What basic demands do you think are not met? Secry/Mayor/Acc 2-2. (If No ) What amount in a fiscal year does PS need to fulfil the demands? Secry/Mayor/Acc 1. Do you think that the existing criteria of allocating grant/adp (PS category wise) are judicious? Secry/Mayor 2. Does PS receive any special grant from GOB in the last 3 years? Secry/Mayor/Acc 2-1. (If Yes ) Is it on the budget? Secry/Mayor/Acc c) Other ( ) nos holdings nos holdings Every. Years Last assessment: FY. Previous assessment: FY. a) Yes, in every quarter b) No, sometimes not. a) Yes, very much b) Yes, to a certain extent c) No, not much d) No, not at all a) Roads construction b) Roads maintenance c) Drainage construction d) Drainage maintenance e) Bridge/culvert construction f) Conservancy g) Other ( ) Approximately Tk. II) Issues that undermines efficient execution of municipal work with accountability 5) PSs do not have development plans 6) PS s budget is not effectively formulated 1. (If PS does not have development plans) What kind of problems PS faces without development plans? Engrr/Mayor/Councilor/Secry/Engrr/H&C 1. Does PS follow the LGD budget guideline and the ADP guideline? Secry/Acc 2. Does PS follow a budget formulation schedule set by LGD? Secry/Acc 3. In how many council meetings was FY2013/14 budget formulation discussed? Secry/Acc/Councilor 4. In how many standing committee meetings was FY 2013/14 budget formulation discussed? Secry/Acc/Councilor/Chair of St.Comm 5. Were the citizens involved in the FY2013/14 budget formulation process? Secry/Acc/Councilor/Mayor a) Yes b) No (Specify the reasons: ) a) Yes, on a performance basis (Amount: Tk. in FY10/11, Tk. in FY11/12, Tk in FY12/13 ) b) Yes, on other grounds (Amount: Tk. in FY10/11, Tk. in FY11/12, Tk in FY12/13) c) No a) Yes, all of them b) Yes, some of them c) No Free answer Budget guideline: a) Yes, fully b) Yes, partly (Specify: ) c) No (Specify the reasons: ) ADP guidenine: a) Yes, fully b) Yes, partly (Specify: ) c) No (Specify the reasons: ) a) Yes, fully. b) Yes, to a certain extent. c) No (Specify the reasons: )..nos meetings a)..nos meetings b) There was no relevant standing committee. a) Yes, through TLCC (.nos mtgs) b) Yes, through open-budget meetings (.nos mtgs and.nos participants) c) Yes, through other forms (Specify: ) d) No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No N.A. N.A. N.A. [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No N.A. N.A. [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No 80

226 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey 7) PS s budget is not executed in an effective matter 8) PS s manpower is not sufficient 9) PS s activities are not appropriately monitored/evaluated 6. Does PS consider development plans, if you have, when you prepare a budget? Secry/Acc/Councilor/Mayor 7. Does PS face any problems with the existing budget format? Secry/Acc e) Other ( ) a) Yes b) No c) We don t have development plans a) Yes (Specify the problems: ) b) No Free answer 8. Do you have any suggestions to simplify the format? Secry/Acc 9. How often do you compile Free answer expenditure? 10. How do you compile expenditure? a) Using a database b) Manual calculation by cashbook c) Manual calculation by other (Specify: ) 1. How frequently do you inform the mayor of expenditure? Secry/Acc 2. How frequently do you inform the secretary of expenditure? Acc 3. How frequently do you inform the Council of expenditure? Secry/Acc 4. Is PS s accounting system computerized? Secry/Acc 5. What is the amount PS paid as arrear in the last 3 fiscal year? Secry/Acc 6. How frequently does PS have external audit? Secry/Acc/Mayor 7. Does PS carry out internal audit? Secry/Acc/Mayor 7-1. (If Yes ) What exactly does PS do for internal audit? Secry/Engrr/Mayor 8. Do PS projects come through discussion in WLCC and TLCC? Secry/Acc/Councilor/Mayor 9. What does PS do with the results of the discussions in WLCC & TLCC? Secry/Acc/Councilor/Mayor 1. Do you think the existing number of manpower sufficient? (to be asked to the head of each dept. and Mayor) 1-1. (If No ) For what posts do you think more manpower is required? (to be asked to the head of each dept. and Mayor) 2. Do you think the manpower mentioned in the organogram is appropriate? (to be asked to the head of each dept. and Mayor) 2-1. (If No ) Why do you think it is not appropriate? (to be asked to the head of each dept. and Mayor) 1. Who monitors the implementation of development projects of PS? Mayor/Sec/Engr a) Weekly b) Monthly c) Quarterly d) Half yearly e) Not at all f) Other ( ) a) Weekly b) Monthly c) Quarterly d) Half yearly e) Not at all f) Other ( ) a) Monthly b) Quarterly c) Half yearly d) Not at all e) Other ( ) a) Yes, fully b) Yes, partially (Specify: ) c) No FY2011/12: Tk FY2010/11: Tk FY2009/10: Tk a) Annually b) Half yearly c) Every three year d) Every five year e) Other ( ) a) Yes (frequency: ) b) No Free answer a) Yes, every time b) Yes, sometimes c) No Free answer a) Yes, sufficient b) No, not sufficient Free answer a) Yes, fully b) Yes, to a certain extent c) No a) LGD b) The Council c) The Standing Committees d) Mayor/Councilors e) Pourahsava officials f) TLCC/WLCC g) No one N.A. N.A. N.A. [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No [ ] Yes [ ] No N.A. N.A. N.A. N.A. N.A. 81

227 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey 10) PS officials/elected representatives do not have sufficient knowledge & skills required to run a local government body and provide services How do they monitor the implementation of PS s development projects? Mayor/Sec/Engr 2. Do you think the monitoring process of development projects is appropriate? Mayor/Sec/Engr 2-1. (If No ) Why do you think it is not appropriate? Mayor/Sec/Engr 3. Who monitors PS s activities (services, tax collection, etc.) other than implementation of development projects? Mayor/Sec/Councilors 3-1. How do they monitor PS s activities? Mayor/Sec/Councilors 4. Do you think the monitoring process of PS s activities is appropriate? Mayor/Sec/Councilors 4-1. (If No ) Why do you think it is not appropriate? Mayor/Sec/Councilors 5. Who evaluates PS s activities? Mayor/Sec/Councilors 5-1. How do they evaluate PS s activities? Mayor/Sec/Councilors 6. Do you think the evaluation process of PS s activities is appropriate? Mayor/Sec/Councilors h) Other ( ) Free answer a) Yes, very much b) Yes, to a certain extent c) No, not much d) No, not at all Free answer a) LGD b) The Council c) The Standing Committees d) Mayor/Councilors e) Pourahsava officials f) TLCC/WLCC g) No one h) Other ( ) Free answer a) Yes, very much b) Yes, to a certain extent c) No, not much d) No, not at all Free answer a) LGD b) The Council c) The Standing Committees d) Mayor/Councilors e) Pourahsava officials f) TLCC/WLCC g ) Individual citizens through Citizen Report Card h) No one i) Other ( ) Free answer a) Yes, very much b) Yes, to a certain extent c) No, not much d) No, not at all Free answer 6-1. (If No ) why do you think it is not appropriate? Mayor/Sec/Councilors 1. What mandatory functions is PS Free answer supposed to perform? Mayor/Sec/Engr/H&C/Councilor 2. (For mayor and councilors) What are Free answer the roles of Mayor and Councilors? 3. (For department heads only) What Free answer mandatory functions is your section supposed to perform? 3-1. (For department heads only) How Free answer does your department perform those functions? 3-2. (For department heads only) What Free answer basic rules & regulations and guidelines do you follow in performing those functions of your section? Questions about revenue mobilization activities (relevant officials only) 4. (Questions for relevant officials only) Free answer What basic rules & regulations and guidelines do you follow to perform your job regarding revenue mobilization activities? 4-1. Do you find any difficulties in following those basic rules & regulations and guidelines? (Questions for relevant officials only) 4-2. Do you need any more rules & regulations or guidelines to perform your job? (Questions for relevant officials only) a) Yes (Specify which ones: ) b) No a) Yes (Specify: ) b) No [ ] Yes [ ] No N.A. N.A. N.A. [ ] Yes [ ] No N.A. N.A. N.A. [ ] Yes [ ] No N.A. 5. Do you think you need more skills to a) Yes, very much N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. 82

228 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey perform your job? (Questions for relevant officials only) 5-1. (If Yes ) What skills do you think you need? (Questions for relevant officials only) 83 b) Yes, to a certain extent c) No, not much d) No, not at all Free answer Questions about accounting/financial management (relevant officials only) 6. What basic rules & regulations and Free answer guidelines do you follow to perform your job regarding accounting/financial management? Acc 6-1. Do you find any difficulties in following those basic rules & regulations and guidelines? Acc 6-2. Do you need any more rules & regulations or guidelines to perform your job? Acc 7. Do you think you need more skills to perform your job? Acc a) Yes (Specify which ones: ) b) No a) Yes (Specify: ) b) No a) Yes, very much b) Yes, to a certain extent c) No, not much d) No, not at all 7-1. (If Yes ) What skills do you think you need? Acc Free answer N.A. Questions about operation/management of PS s properties such as markets and bus terminals (relevant officials only) 8. What basic rules & regulations and guidelines do you follow to perform your job regarding operation/management of PS s properties? Sec/Market inspector Free answer N.A Do you find any difficulties in following those basic rules & regulations and guidelines? Sec/Market inspector 8-2. Do you need any more rules & regulations or guidelines to perform your job? Sec/Market inspector 9. Do you think you need more skills to perform your job? Sec/Market inspector a) Yes (Specify which ones: ) b) No a) Yes (Specify: ) b) No a) Yes, very much b) Yes, to a certain extent c) No, not much d) No, not at all 9-1. (If Yes ) What skills do you think Free answer you need? Sec/Market inspector Questions about engineering works (relevant officials only) 10. What basic rules & regulations and Free answer guidelines do you follow to perform your job regarding engineering works? Engrr Do you find any difficulties in following those basic rules & regulations and guidelines? Engrr Do you need any more rules & regulations or guidelines to perform your job? Engrr 11. Do you think you need more skills to perform your job? Engrr a) Yes (Specify which ones: ) b) No a) Yes (Specify: ) b) No a) Yes, very much b) Yes, to a certain extent c) No, not much d) No, not at all (If Yes ) What skills do you think Free answer you need? Engrr Questions about health and conservancy services (relevant officials only) 12. What basic rules & regulations and Free answer guidelines do you follow to perform your job regarding health and conservancy services? HC Do you find any difficulties in following those basic rules & regulations and guidelines? HC Do you need any more rules & regulations or guidelines to perform your job? HC 13. Do you think you need more skills to perform your job? HC (If Yes ) What skills do you think you need? HC a) Yes (Specify which ones: ) b) No a) Yes (Specify: ) b) No a) Yes, very much b) Yes, to a certain extent c) No, not much d) No, not at all Free answer N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A. N.A.

229 Strengthening Paurashava Governance Project Final Draft Report on Administrative Needs Assessment Survey Other 1. What is your expectation for the Ministry? Mayor/Councilors/Sec/Engrr/H&C Free answer N.A. 84

230 Minutes of the meeting of Working Group for development of a Paurashava Capacity Development Strategy Chairperson Meeting Date & Time Meeting Venue Attendees Mr. Ashoke Madhab Roy Additional Secretary Local Government Division 27 August, 2014;3:30 p.m. LGD Conference Room List of the attendees is shown in Appendix 1 The chairperson wellcomed all the members of the Working Group (WG) at the begining of the meeting. Then the Chairperson expected that this meeting would contribute to formulate a mid-long term strategy for Paurashava capacity development. 1. Outline of the Project and draft TOR of the Working Group (Mr. Khalilur Rahman, Project Director, SPGP) Mr. Rahman, briefed the participants on the project outline and of the objective and draft ToR of the working group for development of a Paurashava capacity development strategy" * LGD will officially approve and implement the strategy as the "National Strategy" shared with all of the stakeholders" t A1 the stakeholders who have experience in the field of Paurashava capacity development are requested to extend their cooperation and support to LGD in making the strategy. * The working group will be forum for discussion whereby exchange of information will contribute in formulating the draft strategy which will be prepared by LGD with support of JICA expert team. t The working group will meet quarlerly or more often if required" The ToR of the working group will be reviewed and revised at least in every second year. The working group will be chaired by Additional Secretary of LGD. 2. Concept of the Strategy (Mr. Ryujiro Sasao, Chief Advisor, SPGP) Mr. Sasao briefly described the concept and image of the strategy, the rough contents of the strategy and tentative schedule of the working group meeting. * The strategy will include concrete targets for the period of years, clear "means" to realize the targets and the schedule of activities as Action Plan. n "Means" should be sustainable as well as feasible. They should include both system reforms and capacity building. Monitoring of the strategy should also be incorporated. * The strategy may be developed implemented in three stages: 1) basis formulation stage (supported by SPGP); 2) regional expansion stage; and 3) nationwide expansion stage.

231 * The main part of the Strategy may consist of the following parts: 1) Current situation and problems - These are currently being analyzed through a baseline survey of residents with regard to their satisfaction level and their expectations and an administrative needs assessment suryey; 2) Vision for Paurashava Administration in This part will clarisr what services of Paurashava should be provided and how; 3) Priority objectives for realization of the vision -This part comprises the important subjects that will be prioritized in order to realize the Vision effectively. 4) Strategy/ Roadmap - This includes institutional as well as capacity development activities. All the activities will be carried out according to the Strategy/roadmap; and 5) Action Plan - The Strategy will be broken down into an action plan. t Working group meetings will be held every two months from now and the next meeting will be held in October. The prospective agenda are: 1) discussion on detailed table of contents of the Strategy; 2) sharing of results of the baseline survey and the Paurashava capacity needs assessment suvey; and 3) identification of training institutions. 3. Open Discussion: Mr. Md. Nurullah, Superintending Engineer (Urban Management) from LGED.i. Bangladesh Urban Forum should be included in this process. They have been directly working for the capacity development of Paurashava for a long time. {. Table of content can be rearranged starting with "Vision", which should be about what LGD considers good for Paurashavas and "Strategy" can come in the fifth position. l' For situation analysis, the expert team can collect more information, not just based on surveys on pilot Paurashavas. The capacity development programme supported by Municipal Governance and Service Project (MGSP) has much information in this regard., It is a good initiative to analyze curent activities, bring concerned parties together and identify implementors. * The concept of "Governance" should be clarified. The scope of "Governance" in the strategy should be identified based on internationally well accepted concept * The time we would like to see Poaurashava in a cerlain level should be specific, such as 10 years or 15 years" Mr. Ryujiro Sasao The team leader Mr. SASAO agreed on the last point Mr. Nurullah mentioned" Mr. Christopher T. Pablo, Senior Urban Development Specialist of The World Bank * LGD should put more effort to extract lessons from others activities. What was effective and what was not in other development paftners' support should be studied. Dr. Akira Munakata, JICA Advisor r'. The concept chart related to the Vision presented by Mr.Sasao is very good. But how to implement capacity building is not very clear in the matrix. We need a concrete methodology for capacity building.we should not only the development partner-

232 funded projects but also the GoB-funded activities such as the study visit of fifty mayors to Japan by GoB. How to utilize GOB resources should be studied. Mr. Ashoke Madhab Roy, the Chairperson 'i' GOB has taken some initiatives such as overseas training of mayors, training on food testing not to mention NILG and BIM training. Those initiatives can be analyzed. * Different projects such as UGIIP, MGSP can sit together to discuss the Strategy. Mr. Akramul Hoque, Director of NILG, took part in the discussion saying that: n Citizens of the seven pilot Paurashavas will get direct supporl from the Paurashava" They should be the direct beneficiary of the project instead of indirect beneficiary. r" The project name should be rearranged" It is not clear if it is to strengthen Paurashavas or to strengthen Paurashava governance. Mr. Ryujiro Sasao n The project will provide training to the elected members and the officials of the pilot Paurashava. Their capacity to provide services will be increased as the first and direct effect. The citizens will eventually receive benefit from those Paurashavas and therefore they are considered an indirect beneficiary. Mr. Md. Nurullah, * The content of the Strategy is fine. Partner organizations can help develop Vision, Mission and Action Plan. Mr. Ashoke Madhab Roy, * The working group can discuss what governance issues can be incorporated in the Strategy. Dr. Ranjit Kumar Sharkar, Senior Assistant Chief of LGD * Poverty reduction is a potential future challenge of the project. Mr. Shamim Al Razi, Secretary General of Municipal association of Bangladesh (MAB) 'i' The spelling of Paurashava should be changed. Here, "Pa" should be used instead of ttpo". * BUF should be invited to the working group. Mr. Ashoke Madhab Roy, * We can work with any other Paurashavas. As the current project is dealing with seven pilot Paurashava, there is little scope for the above mentioned organizations to join directly in the project. Mr. Md. Abdul Gaffar, Senior Consultant of SPGP, Horizontal learning can work well. There have been compartmentalized interventions for long but we can bring different efforts under one capacity development strategy under LGD. Mr. Ashoke Madhab Roy suggested to sit with different training institutes and develop a common format that can be used for all training. He concluded the meeting expressing his hope that everyone will take parl in the discussions of working group meeting whereby we will be able to share our views which is critical for strategy development.

233 In conclusions, the following decisions were made: 1. Planning Commission and concerned other stakeholders will be included after preparation of draft National Strategy for Capacity Building by the Working Group (WG). 2. Bangladesh Urban Forum (BUF) and Project Director of other projects related to capacity building in governance will be added as WG members. 3. Comprehensive study of the previous projects for capacity building in governance should be conducted. Chairperson concluded the meeting with giving thanks for active participation with valuable inputs by the members of the Working Group (WG). SD/- Ashoke Madhab Roy t4 Additional Secretary Local Government Division Memo No I 24.{ Date: Distribution (Not according to Seniority) 1. Chief Engineer, LGED, Agargaon, Dhaka. 2. Director General, National Institute of Local Government, Agargaon, Dhaka. 3. Director General, Bangladesh institute of Management (BIM), Dhaka. 4. Country Director, World Bank, Plot-E-32, Agargaon, Sher-e-Banglad Nagar, Dhaka. 5. Country Director, Asian Development Bank (ADB), Plot-E-31, Sher-e-Banglad Nagar, Dhaka. 6. Chief Representative, Japan International Cooperation Agency (JICA) Uday Tower (7th Floor),57 &.5J A, Gulshan Avenue (South), Circle-1,Dhaka Head of Cooperation, Swiss Agency for Development and Cooperation (SDC), House 318, Road No-18, Banani, Dhaka. 8. Country Director, German Development Cooperation (GIZ), Road-9O, House-10/C Gulshan-2, Dhaka Chairmen, Municipal Association of Bangladesh (MAB). 10. Mayor, Changgerchar Municipality, Chandpur. 11. Project Director, Strengthening Pourashava Government Project (SPGP). 12. Mr. Ranjit Kumar Sarkar, Senior Assistant Chief, LGD 13. Mr" Md. Jahid Hossain, Senior Assistant Secretary/ Assistant Project Manager, SPGP 14. Mr. Christopher T. Pablo, Senior Urban Development Specialist, The World Bank 15. Mr. Akira Munakata, JICA Advisor on local governance 16. Mr. Ryujiro Sasao, JICA Expert/Chief Advisor, SPGP 17. PO to Additional Secretary (Urban Development), LGD. -V7@'2e,1 ' (Md. Khalilur Rahman) Deputy Secretary &, Project Director SPGP Local Government Division

234 Government of the People's Republic of Bangladesh Ministry of Local Government, Rural Development & Cooperatives Local Govemment Division Paura-l Section Web: Memo No Date: Meetins Notice Third Working Group meeting of Strengthening Pourashava Governance Project (SPGP) will be held on 17, (Wednesday) at a.m in the conference room (Room # 601, Building# 07, Bangladesh Secretariat, Dhaka) of Local Government Division. Mr. Ashoke Madhob Roy, Additional Secretary (Urban Development), Local Government Division will chair the meeting. All concerned are requested to attend the meeting. Agenda of the meeting l. Confirmation of Minutes of the 2nd WG meeting 2. Sharing the image of Draft Strategy TJA -zt- -ET{.zora (Md. Khalilur Rahman) Deputy Secretary Phone: Distribution (Not according to Seniority) l. Director General, National Institute of Local Government, Agargaon, Dhaka. 2. Director General, Bangladesh Institute of Management (BIM), Dhaka. 3. Chief Engineer, LGED, Agargaon, Dhaka. 4. Country Director, World Banh Plot-E-32, Agargaon, Sher-e Bangla Nagar, Dhaka-l Country Director, Asian Development Bank(ADB), Plot-E-31, Sher-e Bangla Nagar, Dhaka. 6. ChiefRepresentative, Japanlnternational CooperationAgency (JICA) Uday Tower (7th Floor),57 & 57 A, Gulshan Avenue (South), Circle-l, Dhaka Head of Cooperatiorl Swiss Agency for Development and Cooperation (SDC) House 3lB, Road No 18, Banani, Dhaka Country Director, German Development Cooperation (GZ), Road-90, House-I0/C, Gulshan-2, Dhaka Joint Secretary (Pauro), Local Government Division. 10. President/General Secretary, Municipal Association of Bangladesh (MAB). I l. Project Director, Strengthening Pourashava Governance Project (SPGP). 12. Project Director, Second Urban Govemance and Infiastructure Improvement (Sector) Project (UGIIP-ID 13. Project Director, Municipal Govemance and Services Project (MGSP). 14. Project Director, Norden Bangladesh Intigrated Development Project (NOBIDEP). 15. Dr. Ranjit Kumar Sarkar, Sinior Assistant Chiel Local Government Division. 16. Md. Jahid Hossain, Senior Assistant Secretary, LGD & APM Strengthening Pourashava Govemance Project (SPGP). 17. Mayor, ChanggercharMunicipality, Chandpur. 18. Mr Mostafa Quaium Khan, National Policy Adviser, Bangladesh Urban Forum. 19. Mr. Sohrab Hossain, Consultant, SPGP. 20. Mr. Abdul Mottalleb, Junior Consultant, SPGP. 21. Mr. Hiranmoy Roy, Office Manager, SPGP. Copy forvarded for information & necessary action to: l. Secretary, lwo Home Secr tay(seo.nity-2), Baglad str Sewtaid, Dhal@ 2. Secretary, lwo lndustries Affairs, Dlhrsh4 Dhaka" 3. Private Secretary to the Senior Secretary, LGD. 4. Senior Assistant Secretary (Admin- 2), Local Govemment Division. 5. Mr Mostafa Quaium Khan, National Policy Adviser, Bangladesh Urban Forum. 6. Mr. Chrispher Pablo, Sr. Urban Development Specialist World Bank. 7. Md. Rafiqul Islan\ Senior Project Officer (Urban)v ADB. 8. Mr. Sasao, JICA Expert. JICA Offrce, Dhaka. 9. Ms, Sabina Yasmein Lubn4 Senior Programme Officer, Local Governance, SDC. 10. Mr. Hans Joachin Hermann, Principal Advisor, Good Govbmance in Urban Area. GZ. I l. P.O to the Additional Secretary (Urban Development), Local Government Division. E;\F Drivc\Oflicc worknoticc.dal He is requested to send a relevant representative.

235 / /"U Government of the People's Republic of Bangladesh Ministry of Local Government Rural Development & Co-operatives Local Government Division Minutes of the meeting of the 2"d Working Group in the Strengthening Paurashava Governance Project (spgp) Chairperson Meeting Date and Time Meeting Venue Attendees : Mr. Ashoke Madhab Roy Additional Secretary Local Government Division : 9 November,20l4; I l: 00 a.m. : LGD Conference Room : List of attendees is shown in Appendix 1 The Chairperson welcomed all the respectable attendees and requested Project Director of Stengthening Paurashava Governance Project (SPGP) to present discussion according to the agenda. 1. Confirmation of the minutes of the last meeting: Mr. Khalilur Rabman, Project Director, SPGP drew attention of the attendees to the previous working group meeting and briefly reminded of the contents of the discussion. * A summary table was distibuted among the attendees in which proposals/comments made during the 1$ WG meeting were listed together with the corresponding countermeasures. The attendees acknowledged the actions taken by the hoject. 2. Revised TOR of the Working Group: Project Director, SPGP also informed that the TOR of the WG was revised (mainly about WG members) according to the comments made by the WG attendees. 3. Discussion on the summaries of two surveys: Mr. Ryujiro Sasao, Chief Advisor, SPGP presented the summary of the two surve)4s conducted by the Project: the Baseline Suney; and the Administratfue Needs Assessment Survey. 3.1 Summary of the Baseline sunvey + The Baseline Survey was conducted to understand the situation ofservices provided by paurashavas from the point of view of service receivers (demand side). + From the combined results of analyses made on both residents' awareness of and levels of satisfaction with the public services, a total of I I services were identified as reriuiring special focus for improving paurashavas' capacity in providing them. + AdditionallS it was recommended that paurashavas enhance the way they transmitted to the public how ta:< revenue is spent; raise tax collection and increase residents' satisfaction throrrgh provision of better services enabled by increase in revenue. 3.2 Open Discussion Mr. HansJoachim Hermann, Principal Advisor, GIZ + The number of pauashava studied is only seven out of more than three hundred nationwide. Is the sample statistically representative? + The survey has focused on certain, very standardized services. Each pawashava has different needs for capacity development that cannot be confined to these I I services. Mr. Ryujiro Sasao, Chief Advisor' SPGP * A total of ten Paurashavas were taken as sanrples for our study, including the seven pilot paurashavas, which were selected from all three categories, and three non-pilot paurashavas for comparison. These E:\F Dlirc\Fojc ftc\fed RalildilSPcPlMr[B.d6l

236 paumshavas are '(average" tlpe paurashavas in terms of population, size and commercial activities. So, there would be no serious problem in the aspect ofrepresentativeness. Different capacity development needs must be recopized. 15 out of 64 mandatory functions are considered as minimum requirements for paurashavas to meet. If requested by the paurashavas, possibilities of enhancing capacities for other gpe of services might as well be considered. Dr. M. Shahadt Hossain Mahmud, Joint Secretary/Director, BIM Figure I ofthe presentation shows that out of33 services, people are well aware ofonly 9 services. On theother hand, 15 services are recognized as satisfactory. If they are not aware of the services, how could they be satisfied? Mr. Ryujiro Sasao, ChiefAdvisor, SPGP The survey team asked those who were aware of the tlpe of services provided what their levels of satisfaction were. + + Mr. Md. Shafiqul Islam Akand, Project Director, UGIIP 2 and 3 Some services can be combined and categorized under a single heading. For example, waste disposal, waste removal and waste collection can be categoriznd as '\uaste management." The list could be steamlined with just a few.items. People are less satisfied with water supply. Focus must be given to this area. Administative capacities for providing public services were not studied in detail. Questions such as "How many days should be taken for providing services?" and "Are the paurashava clerks kind and accessible to the public?" etc. are missing. In UGIIP-2, a survey was conducted on citizens' satisfaction with a larger sample. Mr. Ryujiro Sasao, Chief Advisor, SPGP * I am interested in the results of UGIIP-2 survey and would like to confirm that as well. * Admiiristrative capacities like the ones suggested by Mr. Md Shafiqul were once discussed but not assessed in the survey due to time and budget consfrints. Mr. Md. Rafiqul lslam, Sr. Project Oflicer (Urban), ADB,, + Regardless of the size of survey sample, the risk of,underrepresenting certain tpe of interests is always present. The point is to identi$ the most generic services and move on to the next stage where, we should start asking otnselves how to materialize good service delivery. Mr. Md. Nurullah, Superintending Engineer, LGEI) * Keeping all the 64 se,nrices in the documents is recommended as some paurashavas are capable of providing more than the ones identified in the survey report as high priority. Mr. Mostafa Quaium Khan, National Policy Advisor, BUF * The survey reflects the real situation ofthe paurashavas. It is a dependable document. 33 :Summary of the Administrative Needs Assessment Survey * Among the services defined as paurashavas' mandatoiy functions, only one function is regarded as being perfonned zufficiently, nins 3s moderately, and 17 as poorly. * Among the factors that o<plain the current level of service performance, absence of rules and regulations, guidelines and low paurashava financial capac.ity were found to be the major ones. * Five qqore functions were added to those identified as high priority services in the Baseline Survpyto be emphasized as the'lriority services" as a whole. I * Recommendations are made on two categories, i.e., 'lriority service" and "adminisfiative challenges" in terms of institutional organizational and technical aspects. Mr. Ashoke Madhab Roy * Mandatory functions are defined in our laws. Original definitions must be respected. E\F DrivG\Fojci 61.\FDd ltaltuldspcnmi8b.docz

237 /r/ /'// \ t'l // /i' Md. Rafiqul Islam + Table 5: Relationship between administrative challenges and 3 levels of approaches, does not reflect the importance of citizens' participation. Concerned laws prescribe the establishment of forums where citizens can voice their interests. TLCC is one such vehicle. Mr. Ryujiro Sasao, Chief Advisor, SPGP + SPGP recogrizes the importance of those forums. Although they are not mentioned in the slide, the roles of TLCC and WLCC are anallzed in the survey report. Mr. Ilans*Ioachim Hermann * Not atl training programs have to be provided by the government. UGIIP introduced a self-driven, demand-based training system in which paurashava representatives/ officials could choose taining programs on topics they felt as necessary. * Horizontal learning was also adopted vis-i-vis traditional top-down learning style. There is a huge potential for boosting learning that taps into their drive for "self-improvemenf'. Mr. Md. Shaliqul Islam Akand * A considerable amount of work is required to overcome the challenges identified in Table 5. Fonnulation of master plan; technical challenges for the provision of public services; and financial management, which are regarded as the most important ones, are all covered here. * Active involvement of citizens is also crucial. For instance, in the provision of public toilets, awareness raising could be added as a component Mr. Md. Nurullah + Certain mechanism of development confol need to be taken into consideration. * Grassroots participation for securing political accountability is a'tnusf' compone,lrt Mr. Mostafa Quaium Khan + Service items such as provision of primary health, attention to poor people who are much in need and femate participation seem to be excluded from the scope. The scope of public services defined as "minimum reguirements" must be expanded to cover their needs. 4. Discussion on the detailed table of contents of the Mid-Long Term Strategy for Paurashava Capacity Developmenfi * A chapter on the vision for paurashava administration in 2025 was included in the strategy oufline. Further discussions will be made among the WG members in regards. * Institutional capacity development will be considered in addition to posonal capaclty developmenl + The phrase "Appropriate Administation'' of the heading for Chapter 5 will be rephrased as "Appropriate Service Delivert'' for better understanding. * A iimark stating that the Stratery may be subjected to revision to suit the chaurgi"g situation of paqaqhavas will be added. There will be a scope for further discussions even after thp draft Stategy's completion. :.. The Chairperson encouraged the participants to give additional feedback on the summary results of the Baseline Survey and the Administratfue Needs Assessment Suney. No additional comment was made by ' the WG attendees. At the end of this session, the Chairperson aske.d the JICA Expert Tqam to consider all the rffi :ffi :ffiffi ;:ffj,x.til:1t,:[]*:l:'arrvhe*"*.::u:"ffi3;l;'* E:\P Driw\projaff c\fud RatisASP@\MiEtl6.&c3 Local Government Division

238 \*. \. Memo: l6 c"// ( p tt ) Date b t'. t, CC: (not according to seniority) l. Mr. David Paul Khandokar Swapan, Joint Secretary, LGD 2. Mr. Md. Nurullah, SE (UM), LGED : 3. Mr. Hans-Joachim Hermann, Principal Advisor' GIZ 4. Mr. Hamidul Islam Chowdhury, Componentleader, GIZ'EUG 5. Md. Jahid Hossain, SeniorAssistant Secretary/APM, SPGP 6. Mr. Akira Munakata Senior Advisor on Local Govenrance, JICA 7. Mr. Md. Abdul Motalleb, Jr. consultant, urban Governance Development and Planning 8. Mr. Md. Sohrab Hossain, Senior Consultant, SPGP g. Dr. Ranjit Kumar Sarkar, Senior Assistant Chiet, LGD 10. A. N. M. Enayet Ullab, Project Director, NOBIDEP, LGED 11. Mr. Md. Shafiqul Islam Akand, Project Director, UGIIP-2 and 3, LGED 12. vlr. Zulfiker Ali, Se,nior Program Manager, JICA I 13. Ms. Ritsuko Hagiwarq Representative, JICA 14. Ms. MegumiMatobq JICAExpert, SPGP 15. Md. Rafiqul Islam, Sr.Project Officer (Urban)' ADB 16. Mr. Mostafa Quaium Khan, National Policy Advisor, BUF 17. Shamim Al Razi, Secretary Ge'neral, MAB 18. Dr. M. Shahadt Hossain Mahmu4 Joint Secretary and Director, BIM 19. Mr. Ryujiro Sasao, JICA E:pert/ Chief Advisor, SPGP 21. IvIr. Ua. Xnaihr Rahman, Deputy Secretary of LGD/ Project Director, spgp 22. Mr.Hiranmoy Roy, Office Manager, SPGP 23. Personal officer to Additional secretary (urban Development), LGD?#a4 (Md. KhalilurRahman) Project Director, SPGP & DePutY Secretary Phone: E:\f Drivc\9oja 6lc\Frud nrli'.d\sd@1mqrtct de{

239 - Minutes of the Third Working Group Meeting of Strengthening Paurashava Governance Proiect (SPGP) Chairperson Meeting Date and Time Meeting Place Attendees Mr. Ashoke Madhab Roy Additional Secretary Urban Development Wing Local Government Division 17 December, 2014; am. LGD Conference Room List of attendees is shown at the end At the beginning of the Working Group meeting, the Chairperson welcomed all the respectable attendees and announced the agenda ofdiscussion. Agenda of the meeting: 1. Confirmation of Minutes of the 2nd WG meeting 2. Sharing the image of Draft Strategy 3. Results of good practice study The results of the meeting are summarized as follows. Agenda-I.. Confirmation of Minutes of the 2nd WG meeting Mr. Khalilur Rahman, Project Director of SPGP, briefly reminded the attendees of the contents of discussion and decisions of the previous (2'5 WG meeting and requested them to confirm the same if there is no comments on the accuracy of documentation in the meeting minutes. He also asked Mr. Sasao for clarification of some queries raised in the previous meeting. Mr. Rlujiro Sasao, JICA Expert as well as the Chief Advisor of SPGP explained the answers to those queries as follows: 1-1. The cause of different results of 'the degree of awareness and satisfoction' on the Paurashava Services in the Baseline survey Mr. Sasao explained the cause of different results of the degree of awareness and satisfaction on the Paurashava Services. He said that the suvey team asked about 33 mandatory services one by one to the citizens. Only the people who replied 'Yes' or 'No' clearly in answering the question regarding awareness of the services were asked about the satisfaction. \ccordingly, the degree of satisfaction seemed to be slightly higher than that of awareness. l-2. Comparison of two survey results (UGIIP and SPGP) Mr. Sasao presented a comparison of two survey findings of UGIIP and SPGP regarding the citizens' satisfaction on services of Paurashavas. Mr. Sasao said that, although the sample size of SPGP is smaller than what was taken by UGIIP, there is a strong similarity between the two survey findings and therefore one can say that it supports the validity of the SPGP survey results Insufficient consideration of citizens' participation in the survey recommendations Mr. Sasao explained that the project is considering strengthening TLCC and WLCC through training in order to enhance the citizens' participation.

240 Agenda-2. Sharing the image of Draft Strategy Mr. Sasao mentioned that they discussed the table of contents in the last meeting and then they were gradually moving to the next stage. He clarified the concept of drafting the strategy by emphasizing the following three points : 1. To be concise and easily readable. 2. To be logical. 3. To be feasible/practical. While discussing the chapter contents of the draft strategy one by one, Mr. Sasao mentioned that the vision, that is to say, target situation of services delivered by Paurashava will be realized by the year 2025(tentative). He mentioned a possibility of organizing a small workshop to discuss the vision among WG members. He als-o explained about a change in the proposed structure of the Strategy from the one briefed in the last meeting. Chapter 4 "priority Objectives for Realization of the Vision" in the original table of contents have been divided into two chapters, one on priority services and the other on administrative issues. However, this can be merged back into one chapter if that is more appropriate. Mr. Ashoke Madhab Roy, Additional Secretary of LGD as well as honorable Chairperson.i. He made a rrrgg.riion to invite PDs of all urban development related projects to the workshop to set the vision for PaurashavaCapacity Development. Mr. Mostafa Quaium Khan, National Policy Advisor, Bangladesh Urban Forum (BUF).t The time needs to be much longer. He asked Mr. Sasao to explain the background/logic for setting 2025 (tenyear from now) as target year for vision tealization.. Mr. Ryujiro Sasao, Chief Advisor of SPGP * Mr. Sasao explained 2025 as a tentative target year for vision achievement. This project is a four-year project for taking care of seven pilot Paurashavas. After development of these seven Paurashavas, it will be expanded to cover all Paurasahavas. Md. Nurullah, Additional Chief Engineer, LGED i. Paurashava Master plan is prepared by setting 20 years target to be used as a tool for planned development. We should keep in mind the gradual growth of the Paurashavas and also avoid the development gaps; and * Investment plan can be incorporated into the Strategy as well. Agenda-3. Results of Good Practice Study Md. Abdul Gaffar, Senior Consultant of SPGP, presented slides on good practice study under SPGP. The objective of the study was to identify the past and ongoing interventions for Paurashavas' capacity development that have been found effective and to examine whether those approaches could be incorporated into a national strategy for Paurashava capacity development. In the end of his presentation, he made some recommendations on approaches that could be incorporated in the national strategy. The main points were:.i. LGD to organizelprovide external support to Paurashavas (citizen participation, computerization, horizontal leaming process, awareness and motivation program, training and capacity development activities, etc.) that can be incorporated in the national strategy. t There should be a monitoring system from ministry to monitor the performance of Paurashavas and linking performance with gtvernment grant in ADP. qn/

241 * Paurashavas should have necessary rules and guidelines prepared from the central govemment including instruction to prepare bylaws/regulation by Paurashavas as per provision of Paurashava Act,2009. * LGD to undertake awareness building and motivational programs for the Mayor/Councilors/Officials and to instruct Paurashavas for undertaking the similar program for their citizenl re sidents. Mr. Mostafa Quaium Khan, National Policy Advisor, Bangladesh Urban Forum (BUF) {. We should leave scope for incorporating new issues into the Strategy. Mr. Ryujiro Sasao, the Chief Advisor of SPGP * We can discuss new challenges or problems while monitoring the Strategy implementation. Mr. Ashoke Madhab Roy, Additional Secretary of LGD as well as honorable Chairperson t An example of new issues is tax payment system. If the automation of the services progresses, there will be no person-to-person payment in the future. Md. Nurullah, Additional Chief Engineer, LGED * He informed that a good number of documents for governance improvement and capacity development interventions have been prepared by LGED on project basis. Those documents can be distributed through the Ministry..f. He also suggested to link ADP allocation to Paurashavas' performance. Mr. Ashoke Madhab Roy, Additional Secretary of LGD as well as honorable Chairperson * We have the performance based grant but not for whole of ADP. Money for ADP allocation to paurashavas comes from people's tax and as such we should not treat the residents of any paurashava adversly just because of poor performance of their leaders. Besides, we also have the special grant for performance based allocation. Md. Abdul Gaffar, Senior Consultant * There are some interventions by individual Paurashavas. He gave the example of Natore Paurashava, how they used Public Private Partnership (PPP) in computerized billing and collection through bank at their Paurashava..1. He mentioned that, according to the law, a Paurashava can go for PPP process. It could be an approach to incorporate into national strategy to be followed by other Paurashavas as well. i. He also mentioned about the 'one stop service center' successfully run by some Paurashavas. Mr. Ashoke Madhab Roy, Additional Secretary of LGD as well as honorable Chairperson {. We can increase performance based allocation. Md. Rafiqul Alom, Mayor, Sengarchar Municipality, Chandpur * He thanked the project authority for selecting his municipality as a pilot Paurashava. {. He raised a concern that they are elected for a limited period of time and after the term or defeat, the effects of any intervention may not be sustaine\

242 - Decisions of the meeting: the following decisions were made: 1. Second WG meeting minutes was confirmed without any change. 2. A workshop to be organized to construct vision statement for the Paurashavas involving PDs of all urban development projects and representatives of selected Paurashavas. In that workshop some chapters of Strategy including the vision will be discussed. 3. The draft strategy document will be shared with all the PDs to get comments before finalization of the same for submission to LGD. Finally the chairperson ended the meeting by thanking all the members of the working group for their presence and valuable suggestions. \# Wil ' sb15' (Ashoke Madhab Roy) Additional Secretary Urban Development Wing Local Government Division Memo No Date: Distribution: (not according to seniority) 1. Mr. David Paul KhandokarSwapan, Joint Secretary, LGD 2. Mr. Parimal Kumar Dev, Joint Secretary, LGD 3. Mr. BM. AtaurRahaman, Director (Admin), NILG 4. Dr. M. Shahadt Hossain Mahmud, Joint Secretary and Director, BIM 5. Md. Nurullah, Additional Chief Engineer, LGED 6. Md. Khalilur Rahman, Deputy Secretary of LGD/ Project Director, SPGP 7. Mr. A. N. M. Enayet Ullah, Project Director, NOBIDEP, LGED 8. Mr. Shaikh MuzakkaZaher, Project Director, MGSP, LGED 9. Md. Jahid Hossain, Senior Assistant Secretary/ APM, SPGP 10. Mr. Mostafa Quaium Khan, National Policy Advisor, BUF 11. Md. Rafiqul Alom, Mayor, Changarchar Municipality, Chandpur 12. Ms. Yoko Matsuzawa, JICA 13. Ms. Ritsuko Hagiwara, Representative, JICA 14. Mr. Akira Munakata, JICA Advisor, JICA 15. Mr. RyujiroSasao, JICA Expert and Chief Advisor, SPGP 16. Ms. RieFusamae, JICA Expert, SPGP 17. Md. Abdul Gaffar, Senior Consultant, SPGP 18. Md. Sohrab Hossain, Senior Consultant, SPGP 19. Md. Abdul Motalleb, Jr. Consultant, SPGP 20. Mr. Hiranmoy Roy, Office Manager, SPGP zl.po to Additional Secretary (Urban Development) &.,, (Md. Klfililur Rahman) Deputy Secretary & Project Director Strengthening Pourashava Governance Proj ect Phone: lgpaw gov.bd

243 Minutes of the 4th meeting of Working Group for Strengthening Paurashava Governance Project (spgp) Chairperson Meeting Date and Time Meeting Place Attendees Mr. Ashoke Madhab Roy Additional Secretary Local Government Division 13 April, 2015, 10:30 am the CIRDAP International Conference Centre (CICC) [1st Floor, Chameli House, 17 Topkhana Road, Dhaka List of attendees is shown in Appendix I At the beginning of the working group meeting, the Chairperson welcomed all the respectable attendees and announced the agenda ofdiscussion. Agenda of the meeting: 1. Plenary session: Review of the past activities of SPGP and wg Meeting 2. Plenary session: Presentation on the summary of Chapter 2 and Problem Tree 3. Sub-group Discussion: Formulation of vision 4. Plenary session: Reporting by each sub-group Agenda 1. Plenary session: Review of the past activities of SPGP and WG Meeting Mr. Ryujiro Sasao, JICA Expert as well as the Chief Advisor of SPGP, made presentation on the above subject. The Chairperson explained the summary of the presentation in Bangla language. After Mr. Sasao's presentation, there was a discussion by the entire floor as follows: Mr. Md. Rafrqul Alom, Mayor, Sengarchar Paurashava, Chandpur interval. How can the effect of training be sustained? services. It was impressive for me. The Chairperson intiative. independence of the Paurashava. Please also make your own effort of revenue generation. Besides some 250 Paurashavas are under some projects and those Pourashavas are getting smaller amount of grant from ADP. The Chairperson also raised the following 2 important issues. services to their citizens" may not be applicable to all of the Paurashavas. Some Paurashavas' performance is Sood.,

244 sufficient". As a matter of fact, there is a standard organigram for Paurashavas to follow and each Paurashava can decide actual personnel requirement according to the necessity. Mr. Mostafa Quaium Khan, National Policy Advisor, Bangladesh Urban Forum (BUF) Development Plan and Cttizen Participation. Please explain the outline of the training. Ms. Fusamae, JICA Expert covers a number of subjects from the local government system of Bangladesh to good governance principles. preparation steps. There are no guidelines about preparation of development plans and therefore we are trying to work out the design and steps that can be followed by Paurashavas themselves without project support. Mr. Sasao, the Chief Advisor of SPGP manual is prepared. The Chairperson training. Ms. Fusamae, JICA Expert Agenda 2. Plenary session: Presentation on the summary of Chapter 2 and Problem Tree Mr. Atsuo Sato, JICA Expert, made presentation on the above subject. After Mr. Sato's presentation, there was a discussion by the entire floor as follows. Mr. Luthfur Rahman, Khanaighat Mayor, Sylet (in Bangla) development activities. We have been trying our level best to increase our own revenue. As you know, Khas (demesne) land or the government-owned land, ponds and other sources of our revenue is under the jurisdiction of either district administration or, in some cases, Zilla Parishad. One of the good sources of our revenue is leasing of Surma River Ghat (river crossing point), which flows through our municipality area, is also under Zilla Parishad. Although we have written letters to the concerned ministry for handing over these sources of revenue to us, but we have failed to get those sources. 29 lac BDT to 54 lac BDT. With this snug income, we can only provide salary of staff and some sanitation services. We are supposed to focus on water supply and reconstruction of roads that we cannot do because of the lack of fund. Flood due to rain water from hills is also a major problem in our municipaliry\ - V

245 Mr. Md. Rafiqul Islam Joudge, Sengarchar Mayor (in Bangla) water sources under municipalities or Upazila parishad? In additition the Chairperson raised 2 more issues as follows. Paurashava can prepare budget and execute all revenue according to the budget. Budget execution is effective, but "not up to the mark". carrying out governmental activities" is not correct. They have a capacity, but need to be improved. Mr. Ryujiro Sasao, the Chief Advisor of SPGP contents are described based on common features of Paurashavas. Mr. A.k.m Mizanur Rahman, HLP, JICA Revenue from services can be higher than holding tax income. Paurashavas can provide service and earn money as practiced, for example, in Urban Primary Health Care Project (UPHC). The Chairperson Ms. Elma Morsheda, Senior Project Officer, ADB from health seruices is limited. Many Paurashavas provide water supply and collect tariff. This is a significant revenue source. Mr. Md. Abdur Gaffar, Senior Counsaltant, SPGP many revenue sources such as trade license, license of non-motorized vehicle, etc. according to the model tax schedule including leasing out Hats &Bazaars and renting Pourashava properties. Mr. Ryujiro Sasao, the Chief Advisor of SPGP other revenue resources will be taken into consideration. Mr. Mostafa Quaium Khan, Bangladesh Urban X'orum prioritization is the problem. Discussion on prioritization of activity areas prior to budgeting should come before the issue of income sources. I recommend that development areas, activities should be prioritized first and Paurashava should consider budget. Ms. Melina Trippolini, Programme Manager, Local Governance Portfolioo SDC Paurashavas can involve citizens. Paurashava is an elected body whose tasks are planning and budgeting. This kind of governance principle is not much reflected in the analysis. I The problem structure is shown atpage 36 of draft Chapter 2 which SPGP team has sent to all participants by before 4th ^ v3 \ \ Working Croup Meeting was held.

246 Mr. Md. Abdur Gaffar, Senior Consultant, SpGp The Chairperson closed the plenary session by thanking all the participants for their presence and valuable suggestions. Agenda 3. Sub-group Discussion: Formulation of vision Activity l: To confirm the content of chapter 2 or the summary on the slides Activity 2: To make vision statement and formulate an objective Tree The above discussion was held in 3 sub-groups. Active discussion was conducted in each group. Major comments on the content of Chapter 2 or its slide summary are summ arized in Appendix 2. Each group's vision statement and formulated Objective Tree are attached as Appendix 3. Agenda 4. Plenary session: Reporting by each sub-group One presenter from each sub-group made presentation on the group's outputs, as stated in Appendix 3. There was one question "why the target year of vision in one g-rp ir the year '2021?,, from the floor and the group replied it is because Bangladesh has a national goal tlat Bangladesh will become a middle income country by At the end of the session, Mr.Sasao thanked all the participants for intensive discussion under time constraint. He requested the participants to send any imporlant comments about the problem structure. He also mentioned that the project team will analyze carefully the results of each group discussion and integrate them to present in the next WG Meeting. Mr. Khalilur Rahman, Deputy Secretary, LGD and Project Director, SPGP conveyed heartfelt thanks to the participants for their active participation. He mentioned that the valuables comments and suggestions made by the participants would be accommodated in the proposed document. Decision: The outline of Chapter 2 was confirmed by today's meeting. Next (5th) WG Meeting will be held in late May at the earliest and will discuss the revised Chapter 2 and also Chapter 3,4 and5, which will be formulated, based on the today,s discussion. n l).r: leo* \7'o5 ' tet 5 (Ashoke Madhab Roy) Additional Secretary (Urbrn Development) Local Government Division. & Chairperson of the working group meeting of SPGP

247 Government of the People's Republic of Bangladesh Ministry of Local Government, Rural Development and Cooperatives Local Government Division Paura-l Section Web: Memo No I O Y Distritrution: (Not According to Seniority)- Date: Director General, National lnstitute of Local Government, Agargaon, Dhaka. 2. Director General, Bangladesh lnstitute of Management (BlM), Dhaka. 3. Chief Engineer, LGED, Agargaon, Dhaka. 4. Joint Secretary (Urban Development-2), Local Government Division. 5. Country Director, World Bank, Plot-E-32, Agargaon, Sher-e Bangla Nagar, Dhaka Country Director, Asian Development Bank (ADB), Plot-E-31, Sher-e Bangla Nagar, Dhaka. 7. Chief Representative, Japan lnternational Cooperation Agency (JICA), Uday Tower (7th Floor), 57 & 57 A, Gulshan Avenue (South), Circle-, Dhaka-l Head of Cooperation, Swiss Agency for Development and Cooperation (SDC) House 31B, Road No 18, Banani, Dhaka Country Director, German Development Cooperation (GlZ), Road-90, House-10/C, Gulshan-2, Dhaka Private Secretary to the Secretary, Local Government Division. 11. President/General Secretary, Municipal Association of Bangladesh (MAB). 12. Project Director, Strengthening Paurashava Governance Project (SPGP). 13. Project Director, Second Urban Governance and lnfrastructure lmprovement (Sector), Project (UGllP-ll) 14. Project Director, Municipal Governance and Services Project (MGSP). 15. Project Director, Northern Bangladesh lntegrated Development Project (NOBIDEP). 16. Dr. Ranjit Kumar Sarkar, Senior Assistant Chief, Local Government Division. 17. Md. Jahid Hossain, Senior Assistant Secretary, LGD & APM Strengthening Paurashava Governance Project (SPGP). 18. Mayor, Sangerchar Municipality, Chandpur. 19. Mayor, Bakergonj Municipality, Barisal 20. Mayor, Pakundia Municipality, Kishorgonj 21. Mayor, Shoilkupa Municipality, Jhenaidah 22. Mavor, Atghoria Municipality, Pabna 23. Mayor, Ulipur Municipality, Kurigram 24. Mayor, Kanaighat Municipality, Sylhet 25. Mr. Mostafa Quaium Khan, National PolicyAdviser, Bangladesh Urban Forum. 26. Mr. Md. Abdul Gaffar, Senior Consultant, SPGP 27. Mr. Sohrab Hossain, Consultant, SPGP. 28. Mr. Abdul Mottalleb, Junior Consultant, SPGP. 29. Mr. Hiranmoy Roy, Office Manager, SPGP. 30. Po to the Additional Secretary(Urban Development), Local Government Division. ^5.o!'.22tS (Md. Khalilur Rahman) Deputy Secretary -

248 Study on Training Institutions for Strengthening Paurashava Governance Project Report August 2014

249 Abbreviations and acronyms ADB BARD BDT BPATC BIAM BIM DANIDA DCC GIZ HQ ICT JICA LGD LGED LGI MAB MoLGRD&C MOU NGOs NOBIDEP PDP RDA RDCD SDC SPGP TLCC TOT UNDP USAID UZGP WLCC Asian Development Bank Bangladesh Academy for Rural Development Bangladesh Taka Bangladesh Public Administration Training Center Bangladesh Institute of Administration and Management Bangladesh Institute of Management Danish International Development Assistance Dhaka City Cooperation Deutsche Gesellschaft für Internationale Zusammenarbeit Headquarter Information Communication Technology Japan International Cooperation Agency Local Government Division Local Government Engineering Department Local Government Institutions Municipal Association of Bangladesh Ministry of Local Government Division, Rural Development and Cooperative Memorandum of Understanding Non-Governmental Organizations Northern Regional Bangladesh Integrated Development Project Paurashava Development Plan Rural Development Academy, Bogra Rural Development and Cooperative Division Swiss Agency for Development and Cooperation Strengthening Paurashava Governance Project Town Level Coordination Committee Training of Trainers United Nations Development Programme United States Agency for International Development Upazila Governance Project Ward Level Coordination Committee

250 List of local terms Paurashava Shava Municipality Meeting

251 Table of contents 1 Background Study framework Study objective Duration Methodology Overview of capacity development of Paurashava manpower Brief overview of capacity development for local and urban governance Current situation of training implementation for Paurashava Profiles of candidate training institutions National Institute of Local Government (NILG) Local Government of Engineering Division (LGED) Bangladesh Institution of Management (BIM) Municipal Association of Bangladesh (MAB) National Academy for Planning and Development (NAPD) Analysis and findings Analysis Finding from the analysis Analysis regarding the first aspect: Analysis regarding the second aspect: Recommendations for training implementation Annex Annex 1 Summary of NILG s Strategic Plan 2013/ / Annex 2 Table of contents of training guideline for Paurashava Annex 3 The content of training course guidelines Annex 4 The list of training of NOBIDEP Annex 5 List of guidelines for NOBIDEP List of tables Table 4-1 NILG s training for Paurashava... 8 Table 4-2 Number of trainees at the LGED for one fiscal year...11 Table 4-3 Type of participants in Table 4-4 Top ten courses in terms of number of participants in Table 5-1 Comparison (training topics) Table 5-2 Comparison (vision/ mission) Table 5-3 Comparison (experience) Table 5-4 Comparison (affiliation) Table 5-5 Comparison (the number of training courses per year) Table 5-6 Comparison (training room, auditorium and accommodation) Table 5-7 Comparison (geographical coverage) Table 5-8 Comparison (source to provide training) Table 5-9 Comparison (cost for each training) Table 6-1 Matrix for training implementation... 28

252 1 Background Bangladesh is experiencing rapid urbanization. It is reported that by 2015 the number of urban poor will have grown by one million since 2008 despite the declining poverty rate on a national level. Mindful of such a rapid urbanization, the Bangladesh government has put forward a policy of revitalizing local economies by strengthening local administration and other means in its Sixth Five-Year Plan (2011/ /16) as part of its efforts to reduce poverty and achieve balanced development. In Bangladesh, local governments in urban areas are divided into City Corporations and Paurashavas (municipalities), depending on the scales of their population and tax revenue. Unlike City Corporations, which govern large cities, Paurashavas, which are located nearer to rural areas, are expected to play additional roles, including promoting local industries, invigorating physical distribution in rural areas, and serving as a center for developing the local economy as a whole. Most of the Paurashavas, however, are unable to envision such roles intrinsic to local governments, because of both the lack of financial and human resources and the inadequate capacities of elected representatives and officials as well as municipal machinery. The Bangladesh government, recognizing both the importance of supporting small Paurashavas and the hitherto unaddressed need for developing a capacity development system for such Paurashavas, asked Japan for a technical cooperation project designed to facilitate the yen-loan project and maximize its effectiveness and support capacity building for Paurashavas. Under the above-mentioned situation, the Technical Cooperation Project, named Strengthening Paurashava Governance Project (SPGP) has started since February The overall goal and project purpose, and expected outputs are as below. Overall Goal: Measures of Paurashava capacity development are taken nation-wide based on mid-long term strategy. Project Purpose: Paurashava capacity development framework is established. Output: 1) A mid-long term Paurashava capacity development strategy is developed and institutional arrangements for its implementation are made; 2) Tools and training courses for Paurashava capacity development are in place; and 3) Administrative capacity of the pilot Paurashava is improved. The study on training institutions is directly related to output 1 that A mid-long Paurashava capacity development strategy is developed and institutional arrangements for the implementation of Paurashava capacity development strategy are made. Specific outputs of the study consist of: 1) list of identified partner training institutions to carry out the strategy; and 2) expected actions to strengthen training institutions in accordance with the strategy. 2 Study framework 2.1 Study objective The objective of the study on training institutions is to identify partner training agencies to materialize the Paurashava Capacity Development Strategy. More concretely speaking, there are two aspects concerning these partner agencies as follows: 1) Those who will participate in the training for the officials of pilot Paurashavas in the course of 1

253 the SPGP s implementation; and 2) Those who will participate in the longer term capacity building of Paurashavas officials during the remaining period of mid-long term strategy for Paurashava capacity development. 2.2 Duration The study was carried out from the mid of May to mid of July Methodology The study team firstly has conducted literature reviews and interviews with key persons to develop a holistic perspective on the current situation concerning training institutions. Then, the study team has made a list of institutions to visit and conducted interviews to collect basic information on the institutions, their training schedule, manuals and materials. 3 Overview of capacity development of Paurashava manpower 3.1 Brief overview of capacity development for local and urban governance 1 Bangladesh government views capacity development as key to strengthening urban and rural local governance, especially for service provisions to respective citizens. Training provisions to representatives and staff members are considered as the most effective means of capacity development. However, even though the Local Government Division (LGD) recognizes the importance of capacity development, there are currently no unified documents on vision, strategy, or capacity-development framework 2 defined by the government. Various stakeholders are involved in training provisions to representatives and staff members working for Local Government Institution (LGI). With the LGD as a core authorized agency, Bangladesh government has been carrying out classroom-type training by collaborating with respective institutions: both governmental and non-governmental agencies. According to the LGD and other key stakeholders, although their levels of involvement vary, the following major institutions are considered as important stakeholders based on their past and current involvements in capacity development and on their knowledge. National Institute of Local Government (NILG) Local Government of Engineering Division (LGED) Bangladesh Institute of Management (BIM) Municipal Association of Bangladesh (MAB) National Academy for Planning and Development (NAPD) Out of these institutions, only the NILG has a specific mandate on capacity development for the LGIs. Nevertheless, the government has been carrying out training on ad-hoc basis, including development partner-funded project training, by requesting cooperation from respective agencies under specific themes. In addition, respective agencies have been implementing training under these circumstances, but sometimes not necessarily collaborating with the LGD. As a result, training for representatives and staff members on urban and rural local government sectors have been carried out without unified 1 The five governmental pillars that constitute urban and rural local government in Bangladesh are: 1) City Corporation; 2) Paurashava; 3) Union; 4) Upazila and 5) Zila. 1), and 2) are urban and 3), 4), and 5) are urban. 2 Swiss Agency for Development and Cooperation (SDC) has assisted in developing draft framework on capacity development for Union. 2

254 strategies or plans. 3.2 Current situation of training implementation for Paurashava Although there is no unified strategy for capacity development, training has been carried out to representatives and staff members for urban and rural local governance. The training is mostly classroom lectures. The Swiss Agency for Development and Cooperation (SDC) has assisted the NILG in implementing training for officers at Union level, and the United Nations Development Programme (UNDP) has assisted training implementations at Upazila level. Trainings were focused on acquisitions of basic skills and knowledge on service provisions. In terms of urban local governance, Bangladesh government has, under the assistance of the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ), consulted on capacity development of Paurashava officials by providing training under various themes including Information Technology and Communication (ITC), finance, tax, development planning, and establishment and involvement of local community committees 3. In addition to training implementations, the Horizontal Learning Program (HLP) was developed as a tool to exchange the resulting good practices from the above training and to apply to capacity development of urban and rural local governance sectors. According to the LGD and NILG, training provisions at Union and Upazila levels have been emphasized until recently. Guidelines and manuals were prepared as outputs of the above-mentioned development partner-funded projects. On the other hand, capacity-development activities for urban governance sector have not been emphasized until now. Quality and frequency of training implementations by the NILG as well as other training institutions for urban governance were not up to the level for local governance. 4 Profiles of candidate training institutions Based on preliminary insights through interviews and literature reviews, the study team selected the following major training institutions for in-depth interview sessions. National Institute of Local Government (NILG) Local Government Engineering Division (LGED) Bangladesh Institute of Management (BIM) Municipal Association of Bangladesh (MAB) National Academy for Planning and Development (NAPD) During the interview sessions, the team confirmed the information of the following aspects. The team obtained information from respective institutions, specifically related to Paurashava capacity development. (1) Aspect of institutional setup a) Vision/mission/functions b) Strategy/action plan which are associated with vision/mission/functions c) Basic institutional information (affiliation, manpower, structure, facilities, and budget) 3 Trainings are carried out under the projects called Enhancing Urban Governance (EUG) Project and the Second Urban and Governance and Infrastructure Development Project (UGIIP2). 3

255 (2) Aspect of training implementation a) Annual training schedule b) Training implementation structure (participants/trainees, trainers, training environment/ facilities, and budget/fee) c) Training guidelines, manuals, curriculum, and training materials (contents) 4.1 National Institute of Local Government (NILG) (1) Aspect of institutional setup 4 a) Vision/mission/functions The NILG was established in 1969, under the administrative control of the LGD, Ministry of Local Government Division, Rural Development and Cooperative (MoLGRD&C). Currently the NILG carries out activities based on the Jatyo Sthaniya Sarkar Institute Act (National Institutions of Local Government Act), 1992 (Act 1992). The NILG s vision and mission statements are as follows 5 : Vision: The NILG seeks to be a center of excellence for strengthening Local Government in Bangladesh; and Mission: To support local governance through partnerships that build the capacity of LGIs, and provide training and research focused on reform and the reformulation of policy. The basic functions are as below based on Act 1992: Training of elected and appointed local government functionaries both urban and rural, government officials connected with local government bodies; Holding of national and international seminars, workshops, conferences, etc.; Publishing books, research reports and journals on local government and related subjects; Providing consultancy services to the government (Local Government Division) and local government bodies both urban and rural on various problems and issues; Collecting information, monitoring, and evaluation of the functioning of local government bodies; Providing documentation facilities and building up of a national documentation center on local government and allied areas; Co-ordination of training and research programmes and developing institutional net-work on local government training, research; Publication and documentation; Establishing linkage with similar institutions in the country as well as other countries with the approval of government; Taking up of collaborative programmes on matters relating to local governments with international educational, research and training ogranisations with the approval of government; and Introducing certificate course on different subjects related to local government. In terms of capacity development of Paurashava, the vision and mission of NILG covers all LGIs, including Paurashava. 4 Some basic information was collected from web-site. (as of 10 July 2014) 5 NILG (2013) Strategic Plan 2013/ /21, and Training Calendar p.5 4

256 b) Strategy/action plan which are associated with vision/mission/functions With the assistance of SDC, the NILG developed its own strategic plan in The strategic plan includes vision, mission and values, and four goals to achieve the vision with four objectives each. Action plans for short, middle and long terms are included in the strategic plan. The summary of the strategy is shown in Annex 1. Although the plan was already developed, authorization by the Board of Governors (BOG 6 ) has not yet been made. Because of this reason, i.e., waiting for the legal approval of the strategic plan, the NILG cannot mobilize financial resources, namely revenue budgets for the implementation of the strategic plan. The NILG s strategic plan includes developing the Capacity Development Framework for Paurashava as one of the actions in short time. c) Basic institutional information (affiliation, manpower, structure, facilities, and budget) (Affiliation) The NILG is situated under the LGD, MoLGRD&C. (Manpower) The NILG is governed by a Board of Governors (16 members). Chairmen: Vice Chairman: Member: Member Secretary: Minister, MoLGRD&C State Minister, MoLGRD&C Secretary, LGD One member from each of the following eight institutions: Ministry of Public Administration, Ministry of Finance, Rural Development and Cooperative Division (RDCD), Bangladesh Public Administration Training Center (BPATC), Bangladesh Institute of Administration and Management (BIAM), Bangladesh Academy for Rural Development (BARD), Dhaka City Corporation (DCC), LGED Four elected representative of LGIs (nominated by central government) Director General, NILG Each division is headed by a Director. The NILG has 26 of class III and 26 of class IV employees. Among them, 23 members work as faculty members. (Structure) The NILG has four divisions divided based on the Terms of References as below. Training and Consultancy Research and Planning Administration and Coordination Program and Evaluation NILG does not maintain specific institutional arrangements or division to aim for capacity 6 Board of Governors meetings are expected to be held at least once a year; however, for the last six years, meetings have not been held. Timing of next meeting is tentative as of June

257 development of Paurashavas. (Facilities) The NILG has two auditoriums for about 400 participants in total, four conference rooms, one visitors room, 12 classrooms, and accommodation for 100 participants. The NILG does not have any field office out of Dhaka. The NILG hosts the horizontal learning center as well as help line/support desk for LGIs for Union Parishad. (Budget) Annual budget of NILG for fiscal year 2014 is Bangladesh Taka (BDT) 72,640, From this budget, BDT 19,000,000 is allocated for training. The training is set based on the demand. For example, the number of training is determined by the number of elections at each governance administrative level (Unions, Upazilas, and Paurashavas). Training participants tend to be newly selected mayors and councilors. (2) Aspect of training implementation a) Annual training schedule The NILG prepares annual training calendars. The calendar contains: 1) a brief information on the NILG (including location, facilities, library, organizational structure, faculty members, vision, mission, and functions), 2) training strategy, 3) completed training programs in the previous year, and 4) planned training activities. The training schedule for Paurashavas is included in its annual training calendar. Until recently, the NILG and the development partners have been focusing on capacity development at Union/Upazila level, but the NILG has carried out some basic training targeting Paurashavas/Municipal officials and their representatives, too. b) Training implementation structure (participants/trainees, trainers, training environment/facilities, and budget/fee) (Participants/trainees) The NILG organizes training programs for elected representative and functionaries of LGIs as well as central government officers appointed to work for LGIs 8 : Directors of Local Government; Chief Executive Officer of Zila Parishad/ Paurashava; Upazila Nirbahi Officer; Deputy Director Local Government; Mayor/Councillor of Paurashava/ City Corporation; and Chairman/ Vice-chairman/Member of Union and Upazila Parishad. (Trainers) The NILG makes use of senior officers of the relevant Ministry and/or Department including the LGED as a trainers/ resource persons of the training session. 7 Approved budget of fiscal year The costs of personnel, allowances, training, research, and miscellaneous expense are included. 8 NILG (2013) Strategic Plan, page 1. 6

258 In the implementation of training for Union Parishad representatives and officers, the NILG has abundant experiences in collaborating with Non-Governmental Organizations (NGOs 9 ). In the case of current Paurashava training course, the NILG utilizes the following resource persons: Director General, NILG; Director of Research and Planning, NILG; Director of Training, NILG; Deputy Director of Program and Evaluation, NILG; Joint Director of Training and Advice, NILG; Joint Secretary, Ministry of Communication; Joint Secretary, LGD Administration, Development; Senior Water and Sanitation Specialist, the World Bank; Personnel Secretary of Prime Minister, Prime Minister Office; and Secretary, President Office. (Training environment/facilities) Training implementation structure varies by theme and targeted participants. Participants stay at NILG s accommodation facility. Accommodation fees for training under the revenue budget are determined in detail and mentioned in the internal regulations. However, accommodation fees for training funded by development partners agencies are not clearly determined. (Budget) The NILG conducts those training by utilizing revenue budget basically and at the same time, by the project funds, if the NILG receives them. The NILG does not have budget or budget code specifically for Paurashava s capacity development. From the NILG s annual budget, the NILG allocates a certain amount on training for Paurashavas and the remaining amount is used in other activities including training for Unions and Upazilas, research, publication, etc. The NILG does not collect training fees from participants. c) Training guidelines, manuals, curriculum, and training materials (contents) Training guidelines, manuals, curriculum and training materials are developed by the NILG faculty members and initiated by those with expertise in the training theme. Some training materials are stored in the NILG library, which is open to the public. Over the last three fiscal years, the NILG has conducted a few training sessions specifically targeting Paurashava representatives and officials (newly elected mayors, counsellors, engineers, etc. in all 322 Paurashavas) by mainly using its revenue budget (not applicable to all the training). The level of training was at an orientation level. Table 4-1 shows the basic information of the training conducted for Paurashavas. 9 NILG has collaborated with NGOs as follows: CARE International, Voluntary Service Overseas (VSO), Manusher Jonno Foundation, Steps Toward Development, WAVE Foundation, and HELVETAS Swiss Inter-cooperation. 7

259 Table 4-1 NILG s training for Paurashava S/N Name of the course Target Duration Remarks 1 Paurashava administration Newly elected Mayors 3 days Coordinated by own orientation course budgetary source 2 Paurashava administration orientation course 3 Orientation Course: Public Procurement Act 2006 and Public Procurement Rules Sustained Hygiene and Sanitation Practices 5 Foundation Training of Newly Elected Secretaries of Paurashava 6 Orientation of Public Procurement: A Day-long Workshop 7 Paurashava Office and Financial Management Course Newly elected Councilors 3 days Revenue budget Mayors, Councilors, Engineers and CEOs Public representatives and officers of Union Parishad and Paurashavas Officers and employees of Paurashavas 1 day Funded by Central Procurement Technical Unit (CPTU) 3 days Funded by UNICEF 12 days Revenue budget Mayors and Councilors 1 day Revenue budget Officers and employees of Paurashavas Source: Interview/Japan International Cooperation Agency (JICA) study team 3 days Revenue budget The three volumes of training guidelines for Paurashava s capacity development were developed under Danish International Development Assistance (DANIDA)-funded project. The titles of three volumes are as below: 1) Paurashava Law and Management; 2) Paurashava Procurement Management, Paurashava Accounting and Financial Management; and 3) Paurashava Water Supply and Sanitation Program Management Cross Cutting Issues. The table of contents of the 2nd volume is shown in Annex 2. During the survey, the team collected training course guidelines of the training mentioned in the line 1 and 2 of Table 4-1. The contents of guidelines are shown in Annex Local Government of Engineering Division (LGED) The LGED is entrusted for planning and implementation of local level rural and urban infrastructure, and small scale water resources infrastructure development programs. (1) Aspect of institutional setup a) Vision/mission/functions The LGED annual report explains the organization s main functions as below: Planning, Implementation and Monitoring of Rural/Urban/Water Sector Infrastructure 8

260 Development Project; Planning, Implementation and Monitoring of Maintenance of Rural/Urban/Water Sector Infrastructures; Construction and Maintenance of Primary Schools, Primary Training Institutes, Cyclone Shelters and Community Clinics, Upazila Parishad Complex, Union Parishad Complex; Technical Supports to Local Government Institutes (City Corporation, Zila Parishad, Upazila Parishad, Union Parishad and Paurashava); Technical Supports to other Ministries/Agencies; Develop skills of the LGED and LGI officials through Human Resource Development Program; and Prepare Upazila/Union/Paurashava Plan Books, Maps, Design Manuals, Rate Schedules, and Technical Specifications. One of the functions of the LGED, as mentioned above is facilitating Technical Supports to Local Government Institutes (City Corporation, Zila Parishad, Upazila Parishad, Union Parishad, and Paurashava) and based on this function, the LGED provides the capacity development/ training for representatives and functionaries of LGIs including Paurashava. b) Strategy/action plan which are associated with vision/mission/functions From the information obtained through the LGED s annual report and its website, the LGED does not seem to have unique strategy or action plan to materialize the visions/ missions. c) Basic institutional information (affiliation, manpower, structure, facilities, and budget) 10 (Affiliation) The LGED is situated under the LGD, MoLGRD&C. The current legal position of the LGED was formulated in In origin, the LGED was the engineering cell of the MoLGRD&C. (Manpower) The LGED has 11,068 officers and staff members as of 2013 among which 217 persons are currently working at the headquarter (HQ) office, ; 125 at Regional offices; 1,282 at District Offices; and 9,211 at Upazila Offices, respectively. (Structure) The HQ of LGED has 11 units as below according to the Annual Report Administration Urban Management Planning Design Project Monitoring and Evaluation Maintenance Information and Communication Technology (ICT) Water Resource Management (Planning and Design) Water Resource Management (Operation and Maintenance) Training and Quality Control 10 (as of 27 June 2014) 9

261 Procurement. The Training Unit is composed of one Central Training Unit (CTU) at the HQ in Dhaka, and 14 Regional Training Centers (RTCs). The Urban Management Unit is the main unit to serve the function of facilitating Technical Supports to Local Government Institutes (City Corporation, Zila Parishad, Upazila Parishad, Union Parishad and Paurashava). The Urban Management Unit has three activities: 1) infrastructure improvement, 2) good governance, and 3) capacity development. The Urban Management Unit (UMU) implements the component of capacity development for LGIs, under the development project such as the Municipal Service Project (MSP), the Urban Infrastructure Improvement and Governance Project (UGIIP), and the Northern Region Bangladesh Integrated Development Project (NOBIDEP), financially supported by the World Bank, Asian Development Bank (ADB) and Japan International Cooperation Agency (JICA), respectively. The Municipal Support Unit (MSU) and Urban Management Support Unit (UMSU) were formulated as part of project implementation structure, supervised by the head of the UMU. The formalization or institutionalization 11 of MSU and UMSU has been discussed for long time without reaching any conclusion as of yet. The UMU is composed of 14 persons, one Superintended Engineer (head of Unit), four Executive Engineers, and others. (Facilities) The LGED has 13 regional offices, 64 District Office, and 487 Upazila offices. At the HQ office, the LGED has four training rooms (40 seats), one auditorium (500 seats), one conference room (300 seats), one seminar room (120 seats), and two ICT rooms (35 seats). At the LGED HQ, the LGED officer society maintains some rooms for stay. (Budget) In fiscal year , The LGED received BDT 1,867 million revenue budget including the budget for training. The budget for training is utilized basically for the training of the LGED officials and staff members but not for the representative or functionaries of LGIs. (2) Aspect of training implementation a) Annual training schedule The Training Unit of LGED prepares annual training calendars. The calendar contains: 1) a brief information on Training Unit, 2) budget, 3) summary and detailed training plan for the current fiscal year, and 4) summary and detailed training achievement for the previous fiscal year. The annual training calendar prepared by the training unit includes the training under the development project related to City Corporation and Paurashava. And each project has a list of training, attached to the Development Project Proposal. The list of training of NOBIDEP attached at Annex 4 is one such example. b) Training implementation structure (participants/trainees, trainers, training environment/ facilities, and budget/fee) 11 The meaning of institutionalization is to allocate the revenue budget for this USM and/or UMSU and to provide services/ training in utilizing the revenue budget. 10

262 (Participants) The objective of the Training Unit is to develop capacity of the LGED officials and staff members. Hence the training under the revenue budget, implemented directly by the Training Unit is basically for the LGED officials and staff members. The other trainings trainees are shown in Table 4-2. Table 4-2 Number of trainees at the LGED for one fiscal year Category of trainees Male (persons) Female (persons) Total Number (persons) Training Days (person- days) Revenue Budget LGE D official 1, ,289 4,003 LGED staff ,219 Sub total 1, ,024 7,222 Development Budget LGED/ Project officer 6, ,725 14,587 LGED/ Project Staff 2, ,837 10,735 Local Government Institution 12,186 7,735 19,921 31,587 Beneficiary 90,048 46, , ,123 Labor Contracting Society 7,130 13,212 20, ,563 Sub total 117,886 68, ,287 1,036,595 Total 119,877 68, ,311 1,043,817 Source: LGED (2013) Annual Report , page 70. Under various projects, the LGED provided training for the representatives and officials of LGIs. In the case of Paurashava, the participants are as below. Mayor Councilor Secretary (Sub) Assistant Engineer Accountant Tax Assessor/ collector License officer For the detail, please refer to Annex 4 (list of training of the NOBIDEP). (Trainers) The officials of the Training Unit would become lecturers, but at the same time, the Unit outsources the trainers. In the case of NOBIDEP, the Project Implementation Office procures consultants to provide the training. (Training environment/ facilities) The LGED provides training at the HQ s lecture rooms, and the participants stay at the LGED officer society s guest house. The LGED also utilizes their regional offices as the training venue. (Budget/fee) The Training Unit of the LGED provides revenue funded training and project funded training. The Training Units has two ways to provide the latter: 1) the project requests the Training Unit to arrange 11

263 and implement the training and pays for all the cost to the Training Unit; and 2) the project requests the Training Unit to utilize the training facilities. Generally, most of the projects implement training by utilizing directly the consultants without getting any support from the Training Unit. The LGED does not collect fees from trainees. c) Training guidelines, manuals, curriculum, and training materials (contents) Consultants hired by each project prepare the materials independently. For example, the Technical Assistance Project for NOBIDEP implemented in 2013/14 prepared the guidelines for the NOBIDEP s governance component for the purpose of making the project deliverables/ guidelines prepared in the past into order. The list of those guidelines is attached as Annex 5. By making use of said guidelines, the LGED provides the training for Paurashava capacity development. The summary of training contents is as below. Concept of good governance and its application in Paurashavas Orientation for Paurashava officials on administration and office management Basic computer training for Paurashava staff Orientation on accounts, trade, tax and water billing updated software Training on tax billing, municipal accounts, trade license Training for Town Level Coordination Committee (TLCC) members Training for Ward Level Coordination Committee (WLCC) members Orientation workshop on community mobilization for Paurashava officials Training on Paurashava Development Plan (PDP) Training on Budget preparation for Paurashava Accounts Officer and Staff Training for Paurashava staff on conducting tax assessment and collection It is notable that the LGED s urban projects introduce the ITC system for accounting, tax collection, license etc. For detail information, please refer to Annex Bangladesh Institution of Management (BIM) (1) Aspect of institutional setup a) Vision/mission/functions The BIM is the oldest training institution in Bangladesh, established in The BIM s vision and mission statements are as follows 12 : Vision: The BIM exists to improve management capacity building of the stakeholders for a prosperous Bangladesh; and Mission: Our mission is to be a leading center of excellence for management development through a committed professional team. 12 BIM (2013) Annual Program

264 In order to realize the vision while following the mission, the BIM has set the objectives as follows: To train and develop managers at all levels engaged in commercial, industrial and service organizations of private and public sector and NGOs; To help improve productivity in different sectors of the economy through training, research and consultancy services; To carry out publication work to disseminate new, modern knowledge and information in the fields of management development, training, economics, business and other relevant areas; and To co-operate with similar institutions at home and abroad in promoting exchange of knowledge and experience. The BIM has two pillars of major work to achieve its objectives: Training implementation; and Business management consultancy services provision. The BIM provides consultancy services to various Ministries, NGOs, and private organizations. Apart from the major works mentioned above, the BIM undertakes research as well as publication works that contribute to its qualitative service provision. The BIM provides training for LGIs, including Paurashava, based on one of the above-mentioned functions to train and develop managers at all levels engaged in commercial, industrial and service organizations of private and public sector and NGOs. b) Strategy/action plan which are associated with vision/mission/functions The BIM has steadily made its efforts to provide professional and qualitative training since its establishment. The BIM currently implements 80 to 220 training programs per year. It has intentions to target local government officials and staff members as potential customers of BIM s training. c) Basic institutional information (affiliation, manpower, structure, facilities, and budget) (Affiliation) The BIM is an autonomous organization under the administrative control of the Ministry of Industries. (Manpower) 13 The Board of Governors of BIM consist of members from the government, business, trade associations, and academia. Chairman : Members : Director General, BIM Dean, Faculty of Mechanical Engineering, BUET Additional/Joint Secretary*, Finance Division, Ministry of Finance, Chairman, Bangladesh Chemical Industries Corporation Chairman, Bangladesh Jute Mills Corporation Chairman, Bangladesh Power Development Board Chairman, Bangladesh Steel and Engineering Corporation Chairman, Bangladesh Sugar and Food Industries Corporation Chairman, Bangladesh Textile Mills Corporation President, Federation of Bangladesh Chamber of Commerce and Industries President, Metropolitan Chamber of Commerce and Industries President, Bangladesh Employers Association 13 BIM (2013) Annual Report

265 Member Secretary : Faculty Member**, BIM * Nominated by the Finance Secretary ** Nominated by the Director General, BIM The Chief Executive of the institute is the Director General, who is assisted by three Directors. 32 out of 160 staff members are faculty personnel. (Structure) The BIM has ten divisions (departments): General Management; Accounting and Financial Management; Computer Services; Marketing; Personnel Management; Production Management; Productivity and Consultant; Project and Social Service Sector; Research, Evaluation, and Publication; and Trainings of Trainers (TOT) Behavior Management. The BIM does not have any specific section, unit or resource person to conduct Paurashava s capacity development training, but it has the capability to respond to requests from the LGD or other governmental institutions that conduct capacity building activities for Paurashavas. (Facilities) The HQ is located in Dhaka, with sub-centers (or campuses) in Chittagong and Khulna Divisions. The sub-centers are headed by Directors. In terms of training facilities, the BIM is equipped with the following: Seminar rooms: 60 small and large rooms; Accommodation: capacity for 70 people; and Canteen and catering services. (Budget) The income of the fiscal year was BDT 83,989,608, including BDT 34,050,000 from Government Grant (41% of the total), BDT 4,529,473 from course fee (5%), BDT 44,170,885 from consultancy fee (53%), and BDT 1,239,250 from other sources (1%). The expenditure of the fiscal year was BDT 62,180,517, including BDT 19,504,805 for establishment (31% of the total), BDT 2,979,421 for training cost (5%), BDT 24,994,436 for consultancy service cost (40%), and BDT 14,701,855 for others (24%). (2) Aspect of training implementation a) Annual training schedule The BIM has two types of training as below: 14

266 Short courses: annually, 80 courses are implemented 14. The course duration is from one to four weeks. The short courses fall under three categories, namely: 1) regular course(s); 2) request-based course(s: courses not listed in the annual program but offered on request of clients; and 3) special course(s): courses that are offered by the BIM other than the scheduled course. Year-long Diploma courses: Master of Business Administration (MBA) course for five areas: 1) human resources management; 2) industrial management; 3) marketing management; 4) financial management; and 5) computer science. In addition to this Year-long Diploma courses, the BIM offers six-month long Diploma courses in Social Compliance and Productivity and Quality Management. The BIM exchanges Memorandum of Understanding (MOU) 15 with other institutions to provide qualitative and satisfactory training to clients and participants, depending on their organizational needs. Based on the LGD request, the BIM conducted training for Paurashava in 2013 without a MOU. The BIM s training courses for Paurashava representatives and officials are tailor-made and commissioned by the LGD, MoLGRD&C. b) Training implementation structure (participants/trainees, trainers, training environment/ facilities, and budget/fee) (Participants/trainees) About 45%, 30% and 16% of total participants are from private firms, government projects and governmental organization, respectively. Table 4-3 Type of participants in S/N Source of sponsorship Type of the course Regular Request Special Total Percent 1 Government Organization Government Project Private Firms NGOs Multinational Corporation Bank Self-sponsored Total Source: BIM (2013) Annual Report The government projects in included the Upazila Governance Project, supported by UNDP and implemented by the LGD. In , the BIM also implemented a training course for Paurashava officials. The course title was Office Management and Tax Management. 24 batches for two-day training were carried out. 32 participants selected by the LGD attended the course. (Trainers) Most of the training is conducted by faculty members who belong to the BIM. But the BIM also 14 As of June 2013, more than 3,000 courses were implemented, which resulted in over 46,000 participants. 15 In addition to the LGD, ministries such as the Ministry of Education and Disaster Management Bureau commissioned the BIM to carry out training. 15

267 outsources resource persons and guest trainers. (Training environment/facilities) The BIM conducts training courses in its own campuses located in Dhaka, Chittagong and Khulna. (Budget/fee) The BIM collects training fees from the participants. In the case of training for Paurashava officials, the LGD has paid training fees directly to the BIM (BDT 159,000 per batch) that include training materials and accommodation costs. c) Training guidelines, manuals, curriculum, and training materials (contents) All training guidelines, manuals, curriculum, and training materials are prepared by faculty members and staff members who belong to the BIM. The BIM provides lecture on general management, financial management, project management, rural development, entrepreneurship development, marketing, industrial engineering, etc. Table 4-4 shows the BIM s major training courses in Table 4-4 Top ten courses in terms of number of participants in SN Title of the course No. of participants 1 Fire Safety Management in Garment Industry Leadership, Team Building and Management and Financial Management and Public Procurement Rules Customer Service Excellence for Power Sector Capacity Development Programme Procurement, Financial and Project Management 60 5 TOT for Implementation of EGPP 50 6 e-governance and ICT Infrastructure for Implementation of Digital Bangladesh 47 7 Labour Laws for Managers and Executives 43 8 Human Resource Strategies and Policies 34 9 Supply Chain Management Basic Management and Human Resource Development 32 Source: BIM (2013) Annual Report As mentioned above, the BIM conducted the training for Paurashava in The training course title was Office Management and Tax Management Course and the contents of course are as below. Introduction of Paurashava Tax Assessment and Collection Procedure Act 2013; General provisions regarding taxes; Taxes on building and land, electricity, plumbing and water supply management; Taxes on transfer of fixed assets; Taxes on cinema, drama, theater, and other festivals and recreational activities; Taxes on livestock; Taxes on vehicles except buses and boats; Tolls; Taxes on advertisements; and Assessments of other taxes. 16

268 The course office management is focused on tax management. 4.4 Municipal Association of Bangladesh (MAB) (1) Aspect of institutional setup a) Vision/mission/functions In order to strengthen the municipality as a local government organization, the MAB was established in 2003 by cooperating with all the municipalities of Bangladesh. The MAB s goal and objective are as follows 16 : Goal: To organize a common and united voice of the municipalities of Bangladesh; and to take amalgamated activities to strengthen municipality as an organization. Objective: To present timely recommendations to the policy level of the government of Bangladesh, regarding the limitations of the legal framework of the local government management system; To provide required training and technical supports to the municipal representatives; To take required initiatives to enhance the image of the municipality at all levels; To play a useful role in establishing effective local government; To become member of related national and international network forums and exchange views, experiences and expertise; and To generate support and resources from national and international sources in order to maintain its network and carry out programs in favor of municipality and the association. As indicated above, the MAB s major focus is advocacy activities. b) Strategy/action plan which are associated with vision/mission/functions The MAB has its institutional strategy 17. The strategically focused areas are: Strengthen the organizational capacity of the MAB; Establish its own office for the MAB; Arrange regular collections of membership fees to become financially independent; Expand publicity of the MAB at different levels; Advocate various policies for empowerment of Paurashavas; Establish national and international communications for strengthening the MAB; Establish direct communications with development partner agencies; Arrange training on capacity building; and Prepare budget and planning. The estimated level of achievement of current Strategic Plan is between 30 and 40 % 18. The constraints and challenges that have prevented the MAB from achieving the goals has not been clearly analyzed internally. 16 MAB at a glance, p.1, (access to 25 August 2014) 17 Strategy was developed during a workshop in 2005 as a part of Local Government Initiative Project funded by USAID. 18 Source: Interview with the MAB 17

269 c) Basic institutional information (affiliation, manpower, structure, facilities, and budget) (Affiliation) The MAB is registered under the society act of 1860 of the Joint Stock Companies Registration No. S (20)/2009 and NGO Bureaus Registration No (Manpower) There are 63 members 19 in the Executive Committee. Major decisions concerning the MAB are made in the Executive Committee. Headed by the Secretary General 20, there are currently eight staff members working in the office. Due to the limited budget, the number of proper staff members directly employed by the MAB has to be two or three persons at maximum. The total number of staff members varies depending on the number of projects funded by development partners and implemented by the MAB. (Structure) The MAB has 11 Regional Committees involving 21 members for each Committee. (Budget) The MAB does not budget annually: the MAB makes needs-based expenditures from its own financial resources. According to Chapter Eight of the MAB Constitution, the sources of the fund are: Membership fee collected from the MAB members 21 ; Donations of gifts received from individual person or entities; Money earned from loans and registration fees; Money earned from movable and immovable properties of MAB; Money earned from government as well as organizations and national agencies; and Money received from any other sources. In reality, this is not adequate for proper management and function of the MAB to meet its objectives. Thus, the MAB has been collaborating with the development partners in order to meet the need of financial resources of the MAB as well as to fulfill its objectives. Some of the staff members are employed by the projects funded by the development partners. (2) Aspect of training implementation a) Annual training schedule Under the projects funded by development partners, the MAB has been implementing workshops and seminars for the representatives and officials of Paurashavas. The project Strengthening Democratic Local Government (SDLG) has been funded by United States Agency for International Development (USAID) and ended in December 2013.The project Promoting Democratic Decentralization Governance (PDDG) has been funded by DANIDA/Royal Danish Embassy and is planned to be carried out until end of July With these projects, the MAB has implemented workshops and seminars especially for Paurashava Mayors. 19 Members are elected mayors and councilors. 20 The current secretary general has been serving the position for over 12 years voluntarily. 21 Each Paurashava is required to pay annual membership fee of BDT 6,000 (in total BDT 6, Paurashavas=BDT 193,200 are to be collected). 18

270 Themes are selected during the MAB executive meetings, which usually last one day. There are no specific criteria defined for the selection of themes. For example, in June 2014, the MAB held a seminar on climate change in each Regional Committee Meeting. b) Training implementation structure (participants/trainees, trainers, training environment/ facilities, and budget/fee) (Participants/trainees) The participants of the MAB s seminar are basically Mayors and Councilors. (Trainers) For implementation of training, workshops and seminars, the MAB collaborates with experts and NGO personnel that have varieties of professional experiences as well as expertise of selected themes. For example, the MAB organized training on ICT by cooperating with the NGO named Manusher Johno Foundation. (Training environment/ facilities) The MAB holds seminar and regional committee meeting simultaneously in some cases. c) Training guidelines, manuals, curriculum, and training materials (contents) The study team was not able to obtain training guidelines, manuals, curriculum, and training materials. 4.5 National Academy for Planning and Development (NAPD) (1) Aspect of institutional setup a) Vision/mission/functions NAPD s vision, mission and objectives are as follows: 22 Vision: By 2020, the NAPD will transform itself into a Center of Excellence in the field of training and the research on Planning and Development. It will facilitate the social economic development with equity and justice by developing knowledge based society in the country. Mission: Academy is committed: Developing socially responsible human resources to enhance organizational performance for the sustainable development of the country; Creating a group of current and former trainers with an environment conducive to development of skills and professionalism; Nurturing a culture of continuous learning among the professionals to foster a knowledge based society; and Developing competent, innovative, pro-active and morally strong professionals to bring reforms for good governance and accountability. Objectives: Organize institutional in-service training programmes for officers of the Planning Commission, Economic Relations Division (ERD), Implementation Monitoring and Evaluation Division (IMED), and officials of planning and other wings of different 22 (as of 11 July 2014) 19

271 ministries/agencies; Arrange pre-service and functional training for new entrants in BCS (Economic) cadre and foundation training for other services such as Health cadre during their probationary period as required under the recruitment rules; Conduct special training courses for officials of other organizations on request; Provide consultancy services to ministries/agencies in pre-investment feasibility studies and in the formulation, appraisal, monitoring and evaluation of development projects; Facilitate dissemination of knowledge and experiences in planning, development, project management and other related subjects through publications, documentation services, seminars and workshops; Conduct research and evaluation studies on issues pertaining to development; and Maintain liaison with similar organizations at home and abroad. The NAPD provides the training for LGIs, based on the above-mentioned NAPD objective, i.e. to conduct special training courses for officials of other organizations on request. b) Strategy/action plan which are associated with vision/mission/functions The current Director General has intention to increase the number of training by letting the NAPD concentrate on the role of coordinator of the training, rather than assuming the role as trainers themselves. In fact, the NAPD started to provide training for Upazila Parishad s representatives and officials in 2014 with collaboration of Upazila Governance Project, which is supported by UNDP and implemented by the LGD. c) Basic institutional information (affiliation, manpower, structure, facilities, and budget) (Affiliation) The NADP is situated under the Ministry of Planning, based on Government Education and Training Institutions Ordinance (revised 1979) (XXVI of 1961). The NAPD currently is submitting a proposal to revise the Act. (Manpower) The NAPD is governed by the Board of Governors. The Board of Governors has been constituted by the Government to run the academy efficiently and meaningfully. It is structured as follows. Chairman: Vice chairman: Member: Member Secretary: Minister/State Minister for Planning Secretary, Planning Division Secretary, Economic Relation Division Secretary, Ministry of Education Secretary, Finance Division Secretary, IMED Rector, BPATC Member Secretary, NTC President, FBCCI Director General, BIM Chairman, Dep. of Economics, DU Chairman, IBA, DU President, ICAB Director General, BIDS Director General, NAPD The NAPD has 38 faculty members/ officers including one Director General, and one Additional Director General. 20

272 (Structure) The NADP has three division which are namely, Training, Administration and Finance, and Research and publication, The NAPD had a capacity to provide the training for local government representatives and officials under the Upazila Governance Project (UZGP), implemented by the LGD and supported by UNDP. (Facilities) The NAPD has seven regular class rooms, one 50 seated language lab, thee computer labs, one auditorium for 300 persons, library, computer lab, and accommodation facilities for 115 trainees It has no regional offices. (Budget) For the fiscal year , the income of the NAPD was BDT 48,670,616 including the government grant, BDT 31,776,000 (65% of the total).the expenditure was BDT 41,250,336. (2) Aspect of training implementation a) Annual training schedule The NAPD prepares annual training calendars. The NAPD has three types of training courses: 1) regular course; 2) evening course; and 3) request courses. The above-mentioned training for Upazila was not included in the annual training calendar. b) Training implementation structure (participants/trainees, trainers, training environment/ facilities, and budget/fee) (Participants/trainees) The main clients/ participants of the NAPD are the officials in charge of project formulation and appraisal, such as the Bangladesh Civil Service (Economic Cadre). (Trainers) For the lecture, the NADP deploys its own faculty members that roughly equal between 30 and 40% of total resource person. For the rest, the NAPD outsources. (Training Environment/Facilities) The NADP utilizes its own facilities to give lectures. (Budget/Fee) The NAPD collects training fees from the participants. c) Training guidelines, manuals, curriculum, and training materials (contents) Main NAPD s training topics are: Project Management; ICT; Language; and Human Resource Management. 21

273 The NAPD develops training materials based on request. For example, in the case of the UZGP, the project and the NAPD developed the guidelines for the formulation of the Upazila Development Plan. 5 Analysis and findings 5.1 Analysis In this part, the study team scrutinized and compared the five training institutions studied in terms of the following aspects: 1) training topics; and 2) organizational setting. The five institutions are the NILG, the LGED, the BIM, the MAB, and the NAPD. (1) Training Topics Each institution has some core competences shown in Table 5-1. The main topics of capacity development for Paurashava will be covered by these five institutions. Table 5-1 Comparison (training topics) S/N Topics Name of Organization 1 Role of Citizens Representative NILG, MAB 2 Public Administration NILG, 3 Office Management NILG, BIM 4 Accounting BIM 5 Planning and Project Management NAPD 6 Procurement LGED, BIM, NAPD 7 Civil Engineering LGED Source: JICA study team (2) Organizational setting a) Vision/Mission The NILG is the only institution with governmental direct mandate to enhance capacity of LGIs including Paurashava. The LGED, BIM, and NAPD each has governmental functions to support LGIs within their mandate. The MAB has its own mission to support Paurashavas capacity development, although it does not have any mandate entrusted by the government. These five institutions have conceptual framework to develop the capacity of LGIs. The summary is shown in Table 5-2. Table 5-2 Comparison (vision/ mission) S/N Mission/ Vision to support LGIs Governance 1 Name of Organization 1 Governance development 2 NILG, MAB 2 Capacity development 2 LGED 3 Indirect support 2 BIM, NADP Source: JICA study team Note 1. LGIs denote Local Government Institutions including Paurashava Note 2. Governance development means that the mission/vision of the organization includes the support of LGIs governance development. Capacity development means that one of the mission/visions of the organization includes the support of LGIs government capacity development. Meanwhile, Indirect support means that the mission/vision of the organization does not directly link to the support of LGIs governance development or LGIs government capacity development but the organization supports the LGIs on technical issues, such as development planning, project management and office administration. b) Experience providing training for Local Government Institutions 22

274 The NILG and LGED have been providing a series of training to Paurashavas, and the BIM has recently started training provisions to Paurashavas upon the request of the LGD. The NAPD does not have any experiences of providing training for the Paurashavas yet; however it does have experiences of training another LGI, namely Upazila Parishad. These five institutions have experiences of training the LGIs, although they have different degrees of experience. The summary is show in Table 5-3. Table 5-3 Comparison (experience) S/N Points to be compared Name of Organization 1 For Paurashava for a long time NILG, LGED 2 For Paurashava recently BIM, MAB 3 For other LGIs 1 NAPD Source: JICA study team Note 1. The word LGIs stands for Local Government Institutions including Paurashava in this case. c) Affiliate with the central government Among the five institutions, only the MAB is not a governmental institution; rather, it is an advocacy organization. The MAB would be expected as one of the institutions providing lecturers to other training institutions. The summary is show intable 5-4. Source: JICA study team d) Capacity to provide training Table 5-4 Comparison (affiliation) S/N Points to be compared Name of Organization 1 Governmental Institution NILG, LGED, BIM, NAPD 2 Non-Governmental Institution MAB The number of training courses Although none of the institutions has the administrative section for Paurashava s capacity development, they did manage to implement some training course for Paurashava within existing capacity. In general, the numbers of trainings per year are different among institutions. The BIM and LGED provide more training than the MAB, NILG, and NAPD do. The summary is show in Table 5-5. Table 5-5 Comparison (the number of training courses per year) S/N Times per year Name of Organization 1 0 to 25 MAB 2 25 to 50 NILG, NAPD 3 50 to LGED, BIM *Source: JICA study team 1) NILG: 31 training (expected in training calendar ), 2) LGED, 3) MAB, 4) BIM: 68 training (expected in annual program ), and 5) NAPD: 27 training (expected in training calendar ) Although the own faculty members of training institutions can provide the lectures, they also utilize the visiting lecturers for some technical topics. The degree of utilization varies depending on the courses. 23

275 e) Facilities Training Room, Auditorium and Accommodation In terms of training room and auditorium, except for the MAB, these institutions conduct two to three batches of training with 20 to 30 participants for each batch. As the LGED has some limitation in its capacity to accommodate participants, if a large number of participants has to stay in Dhaka overnight or for several days in a row, the options of accommodation would be the NILG, BIM, or NAPD. The summary is show in Table 5-6. Source: JICA study team Table 5-6 Comparison (training room, auditorium and accommodation) S/N Points to be compared Name of Organization 1 Training room, auditorium and accommodation for NILG, BIM, NAPD about 60 to 90 participant. 2 Training room, auditorium for about 60 to 90 LGED participant. 3 No facilities MAB Geographical coverage The NILG and NAPD do not have regional offices. The BIM has two regional campuses. The MAB does not have regional offices but they have regional committees nationwide. The LGED covers all District and even up to all Upazilas. If the field or regional training is required, the LGED would be appropriate provider of training venue. The summary is show in Table 5-7. Table 5-7 Comparison (geographical coverage) S/N Points to be compared Name of Organization 1 Only Central Office/ Campus NILG, NAPD 2 A few regional offices/ Campuses BIM 3 Some regional offices/campuses MAB 4 Nationwide offices/ Campuses LGED Source: JICA study team f) Budget Source to provide training The NILG is the only institution providing training courses from own revenue budget, but this budget can be utilized for other LGIs, too. The BIM provided the training for Paurashava in from the LGD s revenue budget on the request base. The LGED provides training for Paurashava making use of project fund. The MAB provides the training when the development partners cover the cost. To make sustainable training mechanism for Paurashava s capacity development, sound training budget allocation to the training institutions is required. The summary is show in Table 5-8. Source: JICA study team Table 5-8 Comparison (source to provide training) S/N Points to be compared Name of Organization 1 From own Revenue Budget NILG 2 From LGD s Revenue Budget NILG, BIM, 3 From Development Budget LGED, (MAB) 24

276 Cost for each training The NAPD and BIM collect course fees from participants. The NILG, LGED, and MAB provide free training. The summary is show in Table 5-9. Source: JICA study team 5.2 Finding from the analysis Table 5-9 Comparison (cost for each training) S/N Points to be compared Name of Organization 1 Participants pay the cost NAPD (BDT 500 to 1,000 per day in general) BIM (BDT 1,000 to 2,000 per day in general) 2 Provider covers the cost NILG, LGED, MAB Based on the collected information and above comparisons, the study team analyzed the respective training institutions functions, performances, and achievement levels and their potential to operate as partner training institutions and/or provide resource persons. The study team looks at two aspects concerning partner training institutions and/or provision of resource persons, as follows: 1) Those who will participate in the training for the officials of pilot Paurashavas in the course of the SPGP s implementation; and 2) Those who will participate in the longer term capacity building of Paurashavas officials during the remaining period of mid-long term strategy for Paurashava capacity development Precisely speaking, expected qualification criteria for aspects 1) and 2) are the locations of the training institutions. For 1), as the training during the course of the SPGP is carried out in Dhaka, it would be ideal for partner training institutions to be based in Dhaka. On the other hand, mobilization capacity in terms of venue, instructors, and other necessary resources for training implementation is key for aspect 2) as the training are to be carried out nationwide. Thus, the study team has worked on the following analysis in consideration of these expected qualification criteria Analysis regarding the first aspect: (1) National Institute of Local Government (NILG) The NILG is a well-qualified training institution for the SPGP s implementation activities, with various experiences, as a training provider for local government officials. Strong experiences in implementing training on various themes to Unions in collaboration with outsiders such as local NGOs provide significant assets for developing the capacity-development framework of Paurashavas. In this sense, the NILG could become the partner training institution for the SPGP s implementation activities under the topics of general and basic administration, excluding financial themes; participants would include mayors, selected councilors, and officers working at Paurashavas offices. Instructors for those courses could include the NILG faculty members and/or senior LGD officers who have varied experiences teaching at the NILG. (2) Local Government Engineering Division (LGED) The LGED has abundant experiences in conducting training, mostly project-based training funded by international development partners. Through these experiences, the LGED has developed guidelines, manuals, and training tools that can be well utilized for the SPGP training implementation. In terms of 25

277 instructors, the LGED s (senior) engineers who have worked in the project under the lead of LGED are good candidates. As for training themes, the LGED s responsibilities include infrastructure-related themes such as drainage, pathways, street lights construction, and maintenance. (3) Bangladesh Institute of Management (BIM) Although the BIM currently provides only one general course for Paurashava representatives and officials, it aims to expand its course varieties for Paurashava representatives and officials in cooperation with the LGD. Having acquired adequate resources and equipped facilities, the BIM provides a strong lineup of training to be carried out for Paurashavas, especially under the theme of financial management, including tax collection. Based on these reasons, the BIM could become the partner training institution for the SPGP s implementation activities. (4) Municipal Association of Bangladesh (MAB) The MAB does not exist as a training agency, although it believes that provisions of conferences and workshops are essential responsibilities to achieve institutional objectives. Since the MAB has varied networks with mayors and senior government officials, utilization of such assets would be beneficial for the implementation of training in the course of the SPGP. Specifically speaking, basic/foundation courses that focus on the roles and responsibilities of elected mayors can be the only possible training/workshop by the MAB lecturers. In addition, introduction and/or exchange of good practices that are initiated by mayors of respective Paurashavas can be a good original workshop theme of the MAB, as it has a nationwide network of mayors and easy access to available resources. (5) National Agency for Planning and Development (NAPD) The NAPD is a well-established training institution for the theme development planning and project management. Recently, the NAPD initiated the training course on the said theme to LGIs through the UZGP. The same training arrangement and theme are applicable for the Paurashava s capacity development. In this sense, the NAPD is a good candidate of the SPGP s training partner Analysis regarding the second aspect: (1) National Institute of Local Government (NILG) The NILG could be a potential institution to implement Paurashava capacity development strategy under the supervision of the LGD. As for the key qualification criterion of aspect 2), it would be challenging for the NILG to handle nationwide training alone since the NILG does not have its own regional or local training facilities. Utilization of the NILG s networks for Union-level training implementations can be the basis for the NILG to lead nationwide training as a coordination agency. Themes to be handled by the NILG can be the same as those mentioned in aspect 1). (2) Local Government Engineering Division (LGED) The LGED has 13 regional offices, 64 district offices, and 487 Upazila offices. Among the studied five training institutions mentioned above, the LGED is the most mobilized institution in terms of accessibility. Although training instructors are not situated in these offices, it is possible to dispatch experienced instructors or senior engineers to carry out the training. Same themes mentioned for aspect 1) are to be handled by the LGED. (3) Bangladesh Institute of Management (BIM) Since the BIM has regional sub-centers (campuses) only in Chittagong and Khulna Divisions, its 26

278 involvement in nationwide training implementation needs careful consideration. Dispatch of instructors could be possible; however, as the BIM organizes various annual program/training courses in Dhaka campus, availability of instructors for dispatch could be very limited. Even if the BIM could allocate resources, training themes and methods should be carefully arranged to meet the needs of each Paurashava; the problems identified in financial management, including tax collections, greatly depend on their capacity level. (4) Municipal Association of Bangladesh (MAB) Since the MAB itself is not well-established as a training agency, the levels of qualitative nationwide training provisions need to be thoroughly examined to confirm suitability as a training institution for implementation of Paurashava capacity development strategy. One ideal scenario for cooperation in training implementations is the dispatch of resource persons or trainers under the themes of mayor s roles and responsibilities, as mentioned in the qualification of 1). As the MAB has a nationwide network, smooth mobilization of instructors (mayors) can be expected. (5) National Agency for Planning and Development (NAPD ) The NAPD does not have regional and local training facilities of its own. However, the NAPD already has experience to hold the follow-up activities in the filed through the UZGP. Based on that experience, the NAPD could dispatch the instructors. Themes to be handled by the NAPD can be the same as those mentioned in the aspect 1). 27

279 6 Recommendations for training implementation Based on the analysis, the study team has developed the following matrix (Table 6-1) to articulate its recommendations on training contents and implementation arrangement for the implementation of the Paurashava Capacity Development Strategy in the 1) short term and 2) mid-to-long term. The study team defined the short term as the SPGP implementation period, and assumes that the training will be conducted in Dhaka. The nationwide training will be provided based on the short terms outputs. In the course of strategy making 23, it should be discussed, who become the lecturers, the capacity development of training institution s own faculty members, and the possibility and utilization of outsourcing. Table 6-1 Matrix for training implementation Training contents Short term (Dhaka base) (NILG) Training contents are health, waste management, TLCC and WLCC, and development planning. Instructors are selected from the NILG faculty members. (LGED) Training contents are engineeringrelated themes on rural infrastructure, such as drainage and footpath maintenance. Instructors are selected from the LGED senior engineers. (BIM) Training contents are finance-related topics, such as tax collection, tax assessment, and accounting. Instructors are selected from the BIM faculty members. (MAB) Training contents are the roles and responsibilities of mayors and citizens representatives. Instructors are selected and dispatched from the MAB s mayor s network. (NAPD) Training contents is development planning and project management. Mid-to-long term (Nationwide) Training contents are the same contents as those of short term. Instructors are dispatched from the NILG and need to be mobilized locally by utilizing existing local network. Training contents are the same contents as those of the short term. Instructors are mobilized from the LGED s HQ as well as from regional offices. Training contents are the same contents as those of the short term. Instructors can be dispatched from the BIM Dhaka office; however, it could be better to utilize local resources as availability from the BIM HQ could be limited. Training contents are the same contents as those of the short term. Instructors are selected and dispatched from the MAB s mayor s network. Training contents are the same contents as those of the short term. 23 Here strategy means the major output of SPGP project, a mid-long term strategy for Pourashava capacity development 28

280 Training implementation arrangement Short term (Dhaka base) Instructors are selected from the NAPD (faculty) members. The SPGP owns the function to act as a secretariat. Receiving instructions from the LGD and coordinating with abovementioned training institutions, the SPGP organizes respective training courses. The venues of training courses include the NILG, LGED, BIM and NAPD as these institutions have lecture rooms and auditoriums. Training fee and honorarium to instructors are decided in consultation with the LGD by referring to current practices. Mid-to-long term (Nationwide) Instructors are selected from the NAPD (faculty) members however, it could be better to utilize local resources. Alternative 1: The NILG to be set up as a coordinating institution under the supervision of the LGD. Functions of the NILG are to: Develop annual training schedule in accordance with the approved mid-long term strategy; Identify stakeholders such as training institutions/autonomous entities/ngos /instructors that can pursue training according to the schedule; Coordinate stakeholders to implement training align with the schedule; Obtain feedbacks from participants (through training institutions) and utilize their results in future training scheduling and arrangement; and Develop annual reports and submit to the LGD. Functions of the LGD are to: Supervise the NILG s coordination; and Evaluate performances of the NILG and other stakeholders and utilize evaluation results to revise mid-long term strategy. Alternative 2: Set the LGD as a coordinating and managing institutions. Functions of the LGD are to: Develop annual training schedules in accordance with the approved mid-long term strategy; Identify stakeholders such as training institutions /autonomous entities/ NGOs /instructors that can pursue training according to the schedule; Manage stakeholders to implement training align with the schedule; Obtain feedbacks from participants (through training institutions) and utilize their results in future training scheduling and arrangement; and Evaluate performances of stakeholders and utilize evaluation results to revise the mid-long term strategy. Applied for Alternative 1 and 2: Venues are decided in consultation with the LGED as it is the only training institution that has regional offices. Training fee and rate of 29

281 Source: JICA study team Short term (Dhaka base) Mid-to-long term (Nationwide) honorarium will be decided based on the practices in the course of the SPGP and further consultations with the LGD. Advantage and disadvantage of both alternatives Under Alternative 1, The NILG becomes a coordination body to prepare and implement the training programme, and the LGD supervises the NILG s activities and revise the strategy. The merit of this alternative is that the NILG does not necessarily need to increase its human personnel capacity to pursue the proposed functions. In other words, the Government of Bangladesh can establish minimum costs to pursue this arrangement. Having considered the NILG s adequate experiences in using similar arrangements of training provisions at Union level, this alternative can be a realistic option for consideration. The LGD takes care of both training programme and strategy in the case of Alternative 2. The LGD s mandate may be required to be amended as the LGD functions principally as a policy-making institution, not as an implementation agency. Therefore, establishment of a structure as recommended in Alternative 2 could be a challenge, considering the amount of information that needs to be absorbed by the LGD. The LGD s current understanding of the domestic training institutions might not be as comprehensive as it should be. 30

282 Items Vision Mission Annex 1 Summary of NILG s Strategic Plan 2013/ /21 Contents The National Institute of Local Government (NILD) seeks to be a center of excellence for strengthening local government in Bangladesh. To support local government through partnerships that build the capacity of local government institutions, and provide training and a research focused on reform and the reformulation of policy. Core Value Equal treatment to all tiers of LGIs and their elected representatives and staff Committed to empowering and strengthening Local Government Institutions (LGIs) Devoted to promote good governance for LGIs Motivated and committed to work with local government functionaries. Goal 1. LGIs are responsive, responsible and accountable to local people. 2. LGIs have the capacity to deliver effective and efficient service 3. LGI elected representatives and staff are able to respond to future challenges 4. There is evidence to promote and inform improvement in local government Action Plan First three years (July 2013 to June 2016) Restructure and strengthen the Divisions Develop a comprehensive staff development plan and address the capacity gaps for staff development Fully implement the CAPDEV for Union Parishad capacity development including the accreditation and monitoring of training providers; coordination of all support to Union Parishads from whatever source; specific service for Union Parishad building on the horizontal learning, call center and other initiative; and a program of research focusing on performance, capacity development and the impact of decentralization at this level. Develop a similar CAPDEV Framework for Paurashavas. Enhance quality of the Research Division. Establish research as a core function of NILG. Further revise the Research Policy of NILG. Improving decision making, team work and accountability. Develop system to track progress and monitor the implementation of the Strategic Plan. Develop and implement an improved Financial Management System. Second three years (July 2016 to June 2019) Develop a CAPDEV Framework for Upazila Parishad. Capacity development for senior managers in financial planning. Long term social and action research on local government. Partnership with national and international research institutions. Update documentation and dissemination of good practices. Have a data bank on Union Parishad and Paurashava. Enhance quality of research and action research. Last two years (July 2019 to June 2021) Develop CAPDEV Framework for City Corporation. Conduct research on innovative topics covering all tiers of local government. Have a data bank on Upazila Parishad and City Corporation. Enhance networking nationally and internationally. Conduct research on effectiveness of various local government policies. Review and update Strategic Plan. Source: NILG (2013) NILG s Strategic Plan 2013/ /21 31

283 Annex 2 Table of contents of training guideline for Paurashava Title: Paurashava Procurement Management, Paurashava Accounting and Financial Management Paurashava Procurement Management 1) Introduction 2) Overall outline of the training module 3) Training Schedule 4) Sessions of the training Session- 1: Inaugurations, Orientation, Objectives and rules of the training Session- 2: Concept of procurement management Session- 3: Public procurement Act, (PPA- 2006), and public procurement rules- 2008: Session- 4: Procedure of Paurashava procurement as per PPR Session- 5: Appointment of contractor by Paurashava Session- 6: General provisions of procurement for transparency and accountability Session- 7: Conclusion Accounting and Financial Management of Paurashava 1) Introduction 2) Overall outline of the training module 3) Training Schedule 4) Sessions of the training Session- 1: Inaugurations, Orientation, Objectives and rules of the training Session- 2: concept of Accounting, and basic policies of accounting Session- 3: Span and nature of Paurashava financial management Session- 4: various books and documents of Paurashava accounting Session- 5: Paurashava Taxation Session- 6: Procedures of Paurashava budget preparation Session- 7: Audit procedure of the Paurashava financial management Session- 8: Reports of Paurashava financial management Session- 9: Conclusion 32

284 Annex 3 The content of training course guidelines Paurashava administrative orientation course for newly elected Mayors, Paurashava administrative orientation course for newly elected Counselors Although the targeted participants are different, contents are almost identical. Objectives of the courses are stated as follows: To discuss and explain the important articles of local government (Paurashava Act 2009) To facilitate cooperation and coordination among the participating mayors To understand necessary measures for tax assessments and collections that would result in a financially sustainable outcome for Paurashava To introduce methods of budgeting, accounting, and auditing To introduce duties and responsibilities of mayors, counselors, chief executive officers and responsible officers of the departments To introduce the concept of e-governance to Paurashavas To explain the roles of Government Procurement Act 2006 and Government Procurement Rules 2008 To initiate relationships of Paurashavas with the government, field administration, and NGOs and to explain Paurashava s role in coordinating activities with other organizations/providers To explain the role of Paurashava for the improvement of health system in the areas of sanitation, water supply, and prevention of transmitting diseases To explain the role of committees in the decision-making process for Paurashavas Instructors for these training are as below: Director General, NILG Director of Research and Planning, NILG Director of Training, NILG Deputy Director of Program and Evaluation, NILG Joint Director of Training and Advice, NILG Joint Secretary, Ministry of Communication Joint Secretary, LGD (Administration, Development) Senior Water and Sanitation Specialist, World Bank Personnel Secretary of Prime Minister, Office of the Prime Minister Secretary, Office of the President Foundation Training for Newly Elected Secretaries of Paurashava Objectives are stated as follows: To discuss and explain important articles of local government (Paurashava act 2009) To provide insights on methods to resolve administrative problems through knowledge acquired during the training To introduce rules and regulations of Paurashavas regarding planning and implementation To facilitate cooperation and coordination among the participating secretaries To understand necessary measures for tax assessments and collections that would result in a financially sustainable outcome for Paurashava To acquire knowledge on disaster management, birth registration and social development issues To learn roles of Paurashavas in environment preservation and plantation 33

285 Annex 4 The list of training of NOBIDEP No Course Title Location Participant 1 Orientation for Mayors on NOBIDEP Central Mayors 2 Orientation for Mayors on NOBIDEP Central Mayors phase-ii 3 Orientation for Mayors on NOBIDEP Central Mayors phase-iii 4 Orientation Training for Councilors for each Regional all councilors Region on NOBIDEP 5 Orientation Training for Councilors for each Regional all councilors Region on NOBIDEP 6 Orientation Training for Councilors for each Regional all councilors Region on NOBIDEP 7 Orientation Training for AE and Secretary on Regional Secretary, AE NOBIDEP 8 Training program on UGIAP Phase-2 Central Secretary, AE, SDO 9 Concept of good governance and its Central Mayors application in Paurashavas 10 Orientation for Paurashava officials on Central Secretary, AE administration and office management 11 Basic Computer Training for Paurashava staff Regional AE, SAE, Accountant, Assistant Accountant, Tax Assessor, Tax Collector, Trade License Officer, Assistant Collector, Bill Clerk, Cashier 12 Orientation for account official on account Central Accounts Officer /Accountant and management of NOBIDEP fund 13 Trainers Training for Paurashava officials under NOBIDEP, and Training Unit and RMSU officials 14 Trainers Training for Paurashava officials under NOBIDEP, and Training Unit and RMSU officials Central Central Assistant accountant AE, Secretary and Town Planner of Paurashava, and Assistant Director of UMSU AE, Secretary and Town Planner of Paurashava, and Assistant Director of UMSU 15 Orientation on Accounts, Trade, Tax and water billing updated software Central Assistant Director in charge of Finance of UMSU, Consultants in charge of Finance 16 Orientation for Consultants on NOBIDEP Central/ all consultant Regional 17 Orientation for Consultants on NOBIDEP Central/ all consultant Regional 18 Training for TLCC member for each Region Regional TLCC members 19 Sensitization Workshop for TLCC members Paurashava TLCC member at Paurashava Level 20 Orientation for WLCC secretary on Regional Secretary of WLCC organizing WLCC meeting 21 Training for WLCC member Regional Member of WLCC 22 Training for WLCC member Regional Member of WLCC 23 Orientation on roles and responsibilities of Regional President, Secretary, Casher of CBO CBO members 24 Orientation workshop on community Regional AE, Secretary, SDO mobilization for Paurashava officials 25 Orientation workshop on community mobilization for chairman and Secretary of CBO and steering committee Regional Chairman and Secretary of CBO 26 Orientation for CBO members on performing CBO activities Paurashava 12 members of CBO 34

286 No Course Title Location Participant 27 Training for Paurashava staff on participation Regional Secretary tools 28 Orientation on PDP preparation Central Town planner, Facilitator (UP) 29 Training for preparation of Paurashava base Central Town planner, Facilitator (UP) map, and land-use plan 30 Workshop on preparation of Paurashava base Central Town planner, Facilitator (UP) map, and land-use plan 31 Training on annual review of PDP Central Town planner, Facilitator (UP) 32 Training on Infrastructure database and base Regional AE,SAE, Surveyor, Estimators map preparation 33 Training on Paurashava base map preparation Regional AE, SAE, Surveyor, Estimators using Auto CAD 34 Training on preparation of annual O&M plan Regional AE, SAE and its implementation 35 Orientation for relevant officials on Central Secretary, relevant officials preparation of GAP 36 Orientation on GAP implementation Central Chairman of Gender Committee 37 Orientation on GAP implementation for Regional Gender Committees' member Gender committees' member 38 Training on GAP for PMO officials Central Officials in PMO LGED HQ, Sub-Assistant Engineer in Paurashava 39 Training for Gender Committee members on Regional Gender Committee members GAP implementation 40 Orientation for relevant officials on Regional Secretary, AE, SDO, CFW preparation of PRAP 41 Orientation for CFW on PRAP Regional CFW Implementation 42 Training program for implementation of Regional AE, SDO, CFW PRAP 43 Preparation of CAP and its implementation Paurashava SIC members 44 Training on Tax billing, Municipal accounts, Trade license Regional Accountant, Assistant Accountant Tax assessor, Tax Collector, Trade license officer, Assistant Collector, Bill Clerk, Cashier 45 Training and Troubleshooting on Water Billing Software (Diameter System) for the Central Bill clerk, casher Employees of Water Section of Paurashavas 46 Training on Municipal Accounting System for Accounts Officer and Accountant Central Accounts Officer/ Accountant and Assistant Accountant 47 Training on Budget Preparation for Paurashava Accounts Officer and Staff Central Accounts Officer/ Accountant and Assistant Accountant 48 Training for Paurashava staff on conducting tax assessment and collection Regional Accounts Officer/ Accountant, Tax Assessor, Tax Collector 49 Workshop on tax assessment and collection Regional Accounts Officer/ Accountant, Tax Assessor, Tax Collector 50 Orientation for Paurashava staff on Regional Secretary, Administration Officer e-governance 51 Training on basic design and cost estimation Regional AE, SAE (civil, electrical, water), Work Assistant 52 Training on basic design and cost estimation Regional AE, SAE (civil, electrical, water), Work Assistant 53 Orientation for AE and SAE on implementation of infrastructure work Central AE, SAE 35

287 No Course Title Location Participant 54 Training on public procurement rules (PPR) Central AE, Secretary, SAE rules 2008 and contract management 55 Training course on cost estimate for physical Central Cost Estimator, Work Assistant infrastructure 56 Training on quality control and supervision of civil works of Paurashava Central AE, SAE (civil, electrical), Work Assistant 57 Training on quality control and supervision Central AE, SAE (civil, electrical), Work of civil works of Paurashava Assistant 58 Orientation for engineering staff on Central AE, SAE, Work Assistant implementation of infrastructure works 59 Training on procedure for infrastructure implementation Regional AE, SAE, Work Assistant 60 Training on OandM of maintenance of infrastructure and facilities Regional AE, SAE (civil, electrical), secretary, health officer 61 Training on OandM of maintenance of infrastructure and facilities Regional AE, SAE (civil, electrical), secretary, health officer 62 Training on planning of drainage system Central AE, SAE (civil) 63 Training on planning of drainage system Central AE, SAE (civil) 64 Training on solid waste management Central AE, secretary, health officer, conservancy inspector 65 Training on compost plant Central AE, health officer, conservancy inspector 66 Training on kitchen waste management for Paurashava CBO members CBO member 67 Training on sanitary environment Regional AE, SAE (civil), health officer, conservancy inspector, sanitary inspector, slaughterhouse inspector 68 Training on sanitary environment Regional AE, SAE (civil), health officer, conservancy inspector, sanitary inspector, slaughterhouse inspector 69 Training on water supply Regional AE, water supply supervisor (AE) 70 Physical, Financial and UGIAP progress Regional AE, AO, Secretary, Conservancy Inspector review meeting 71 Physical, Financial and UGIAP progress review meeting Regional AE, AO, Secretary, Conservancy Inspector 72 Progress review meeting on infrastructure Central AE, AO, Secretary, Conservancy Inspector and other activities 73 Progress review meeting on infrastructure and other activities Central AE, AO, Secretary, Conservancy Inspector Source: LGED, NOBIDEP 36

288 Annex 5 List of guidelines for NOBIDEP Code No. Name of Guidelines and Manuals General G-01 Project Introduction G-02 Guidelines for the Initial Allocation G-03 Guidelines for the Special Allocation for Rural-Urban Linkages G-04 UGIAP Implementation Guidelines Phase 1 P1-01 Guidelines for the Establishment and Operation of the TLCC P1-02 Guidelines for the Establishment and Operation of the WLCC P1-03 Guidelines for Gender Action Plan P1-04 Handbook on Setting Up the Planning Unit in Target Paurashavas P1-05 Guidelines for the Preparation of and Review on PDP P1-06 Guidelines for the Interim Tax Assessment Phase 2 A. Citizen Awareness and Participation P2-A01 Citizen Charter Preparation Guide P2-A02 Grievance Redress Cell (GRC) Operation Guidelines P2-A03 Mass Communication Cell (MCC) Operation Guidelines B. Improvement of Urban Planning Process P2-B01 Guidelines for the Preparation and Implementation of the Paurashava Infrastructure Operation and Maintenance Action Plan (PIOMAP) C. Women s Participation P1-03 Guidelines for Gender Action Plan (Repeated) D. Integration of Urban Poor P2-D01 Guidelines for the Preparation of Poverty Reduction Action Plan P2-D02 Slum Improvement Implementation Guidelines P2-D03 Guidelines for the Formation and Operation of Community-Based Organizations (CBOs) E. Financial Accountability and Sustainability P2-E01 Operational Guidelines for Paurashava Audit and Accounts Standing Committee P2-E02 Guidelines for the Skill Development in Holding Tax Collection P2-E03 Influence of Inflation on Non-Tax Revenue Increase and Paurashava s Responsibility P2-E04 Handbook on Paurashava s Responsibility in Paying Electricity Bill of More than Three-month Dues P2-E05* Manual for computerized accounting system software P2-E06* Manual for computerized tax record system software F. Administrative Capacity P2-F01 Guidelines for Paurashava s Adequate Staff Structure Development P2-F02 Handbook on Paurashava Administrative and Office Management P2-F03 UGIAP Monitoring Format P2-F04 Guidelines for the Standing Committee Formation and their Activities P2-F05 Guidelines for e-governance-related activities at Paurashavas Source: LGED, NOBIDEP 37

289 7. Samples of Japanese newspaper articles on the training to Paurashava mayors 7-1. Yamaguchi Shinbun May 30, 2014, page 14

290 7-2. Yamaguchi Shinbun, May 31, 2014, page 18