Bangladesh - Belgium

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Citizens’ Voice and Accountability Evaluation – <strong>Bangladesh</strong> Country Case Study Effectiveness Official monitoring and evaluation of the CV A components of the RDPs is dominated by counting participation (numbers of meetings, citizen forum meetings, numbers participating) rather than demonstration of change in service delivery. RIIP1 has included user perception surveys (baseline, mid term and end of project –see Impact below) in its monitoring but these tend to get less attention than the quantitative approaches. However, there is evidence of the following: • Improved performance of UP and UP secretaries, improved book keeping, documentation, development of annual plans and budgets • Participation of women UP members increased • Citizen Forum meetings are held twice per year i. To approve the budget and ii. to review performance. As well as the UP, other government officials working at union level also attend as well as other key people (religious leaders, teachers, doctors) so this is an important platform for UPs to demonstrate accountability. • Budgets are displayed publicly • Local revenue collection has increased significantly , partly because tax payers understand the system better and are also willing to pay as they have more control over what happens to the revenue collected. (rising 58%from 2004-2006 in one Division) One of our team has had periodic involvement with LGED RDPs since the early 90s and during field observation in this study was impressed with the level of articulation of roles by UP members, their confidence and understanding of their responsibility to their electorate as well as the enhanced professionalism of the UP secretaries. It is still questionable whether the UPs would undertake consultative processes without required to by the project. UP members accommodated in new complexes say they feel motivated ‘we can be more efficient and are more respected’. Impact LGED has been promoting participatory selection and planning of local roads, markets and small schemes for more than 12 years. LGED is a huge organisation and it has internalised the rhetoric of participation in this time. Without doubt it is regarded as a role model in comparison with other Government departments. Its very large projects, individually covering as much as a third of the country (and collectively nearly all) means that it interfaces with almost all UPs. Basic Training has been given almost everywhere. This is a tremendous achievement in itself. Small scale impact evaluations by LGED consultants using perception interviews suggest that citizens are satisfied that there is more participation in UP activities and indicate enhanced satisfaction with service provision. Some of the project UPs have been awarded ‘best UP’ in annual National Awards. Construction and better utilisation of the UP Complexes has raised the UP profile and gradually the public is making use of these facilities (see also MMC summary sheet: space at the UP complexes has been given to set up Information Centres). As the visibility and credibility of UPs has enhanced so has the demands on their time. Only the secretary is salaried so the additional demands make it harder for UP members to manage their own income generation. In the long run this might be a disincentive to run for election and may favour candidates with secure incomes/financial backing. 100
Citizens’ Voice and Accountability Evaluation – <strong>Bangladesh</strong> Country Case Study Sustainability UP Elections take place every five years. This means there is a constant turnover of members and a potential for continuous training and mentoring. However, the UP Secretaries remain and our field interactions with them suggest that they feel capable of passing on the training to new members. They are familiar themselves with the bookkeeping and annual development plan processes and advise on the correct procedures. We noticed that LGED staff intervene on behalf of the communities and UPs thus undermining the relationships between them and other service providers. This would suggest a risk in terms of sustainability as dependency may be created However, although carrying out a RDP project in the area means that there is more intensive activity and more staff than usual, LGED staff will always be available at local level. Does it matter if they continue to intervene on behalf of communities? As mentioned above, it is not clear whether UPs would continue the level of consultation required of the projects for their normal activities. Arguably, they would considering the other interventions currently supporting UP behaviour change and because of the growing demands for accountability from below. Selection of better performing UPs for intensive training enhances the chances of success but puts less well performing UPs at even greater disadvantage. RIIP2 has included all UPs in its project area for support irrespective of their performance. Lessons Learned Although it would seem that an Engineering Department is the wrong channel for enhancing CVA, the are a number of factors which mean that it works (in fact one of our team more familiar with NGO capacity building of UPs, was of the opinion that LGED 62 performed as well if not better). These factors include: • a history of working at very local level so LGED is well known (a familiarity and openness about its objectives and a confidence that it delivers (albeit one of the most corrupt departments according to TIB’s assessment in 2006)) • a large cadre of staff to enable regular interface with UPs, provision of incentives (small grants for performance, funds for local infrastructure (highly visible to the electorate!) development for compliance with CV and A provisions • an organisation with national coverage and large staff can roll out training and support efficiently albeit somewhat blueprint • changing attitudes and behaviours takes time- LGED has been pushing participatory approaches for more than 12 years • because LGED is under the Local Government Division, its activities and achievements are fed into government policy • construction of physical space for CV A can be motivating. In LGED’s case construction of UP complexes raises the profile of UPs and enables them to carry out their functions more effectively. It seems an odd sort of logic to construct them first and then make sure they are used properly but this seems to be working.( although with hindsight and experience of actual operations the designs of UP complexes leave much to be desired) • most projects target a small number of UPs for intensive support. These are selected on the basis of good performance. Whilst this increases the chances of success it does put the less well functioning UPs at even greater disadvantage. Often more can be learnt from pilots in worst case conditions. RIIP2 intends to cover all UPs. 62 Although LGED does sometimes contract NGOs to provide training, the mentoring support is primarily from LGED staff. 101
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Annex F. Summary of Stakeholder Deb
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