Implementation Strategy

Bangladesh is a developing country. Bangladesh has remarkably achieved progress since independence in the rural and urban areas in terms of communication, health, education,agriculture etc and consistently maintaining uniform and commendable GDP in compare to other countries of the world even in the global economic recession.Presently, the development has been accelerated. The Annual Development Budget(ADP) is increasing enormously every year. A number of agencies are engaged in implementing the ADP. The Local Government Engineering Department (LGED) is the leading implementing agency of Government Annual Development Budgetary plan.LGED has got the mandate for executing development activities in three sectors namely Rural, Urban and Water sectors. Previously, emphasis was given in the rural development through RD projects and interventions have been taken through a considerable numbers of RD projects ignoring urban area’s development, as a result, regional disparity has been created. With a view to generating parity between urban and rural areas, this is first time ever in LGED history; both urban and rural interventions will be given in an integrated approach through Northern Bangladesh Integrated Development Project (NOBIDEP).

The executing agency of the project is LGED headed by the Chief Engineer (CE), under the supervision of Local Government Division (LGD) of MLGRD&C. Under the CE, the Project Management Office (PMO) headed by a Project Director (PD) is established at LGED headquarters. Different Organizational Units are engaged in the implementation process of the project.   The Supervision and Monitoring Offices (SMOs), Project Implementation Offices (PIOs) and LGED Upazila Engineer Offices are responsible for the implementation of the rural components with the help of DSM consultants. On the other hand, the Urban Management Support Unit(UMSU), Regional Urban Management Support Units (RUMSUs) & Project Implementation Units (PIUs) are accountable for the implementation of urban component of the project with the help of GICD and other consultants.

The NOBIDEP essentially comprised of four components. These are:

• Component 1: Rural Infrastructure Development;

• Component 2: Urban Infrastructure and Governance improvement;

• Component3: Institutional Development;

• Component 4: Consulting Services.

Component1;Rural Infrastructure Development component:It covers the upgrading selective upazila & union roads including bridges and culverts, upazila roads rehabilitation, improvement of Growth Centers and Rural Markets, Ghats,off-pavement routine maintenance through Labor Contracting Society (LCS),community based road safety program, training and capacity development. The physical work sub-projects including engineering design, estimate preparation will be done by the DSM consultants performing necessary surveys,consultation with the stakeholders. The sub-projects so prepared will be procured by PIOs and implemented with the direct supervision of Upazila Engineer offices and DSM consultants. SMOs will play the role of supervision and monitoring of the rural infrastructure development activities on behalf of the PMO. The trainings of Labor Contracting Societies, Tree Caretakers,Community Based Road Safety programs, Women Shopkeepers, Various Stakeholders will be conducted by the NGOs in co-ordination with the Design Supervision and Monitoring Consultants.  

Component2;Urban infrastructure and governance improvement component: It covers two sub-component namely(2-1) Urban infrastructure development and service delivery (2-2) Governance improvement and Capacity development. 18 (Eighteen) Pourashavas are included in the project of which 9(Nine) are of B category and 9 (Nine) are of C category.

Brief descriptions of the sub-components are summarized below:

(2-1)Urban infrastructure development and service delivery: Under this sub-component, the project will develop basic infrastructure and improve service delivery including(i) roads,bridges and culverts, (ii) drains, (iii) municipal markets,(iv) slaughterhouses, (v) water distribution network and tube-wells, (vi)public and community toilets, (vii) solid waste management, (viii) bus and truck terminals,(ix)streetlight, (x) parking area, and (xi) basic services for the poor; and basic services for the poor comprises a) the basic infrastructure improvement,such as foot path, drains, dustbins, tube-wells, and street lights, and b)livelihood and living standard improvement such as group saving and credit, income-generating activities such as vocational training program, primary health care including hygiene education, pre-primary school education such as satellite school program, and birth registration. The sub-projects in each pourashava will be selected from the investment plan under Pourashava Development Plan (PDP) and identified through participatory planning process by using Town Level Coordination Committee (TLCC) and Ward Level Coordination Committee(WLCC). The implementation of the sub-component will be divided into three phases. The Project will start 20% of infrastructure investments from phase 1to provide stronger incentives for pourashavas to participate in governance improvement activities. This initial allocation will provide positive incentives for pourashavas to tackle governance improvement and capacity development including on-the-job-training for their engineers. The amount of investment funds for phase 2 and 3 allocated to each pourashava depends on the progress  of its governance reforms. The maximum amount or ceiling of the funds to be allocated is up to BDT 150 million for category-B pourashavas, and BDT100 million for category-C pourashavas.

The Project will also introduce special allocation of investment fund to create a new, additional financial incentive mechanism for pourashavas to implement sub-projects and thereby strengthen rural-urban linkages. The special allocation is intended to promote sub-projects under this sub-component that contribute to strengthening of linkages between pourashavas  and surrounding rural areas by providing pourashavas with additional fund to such sub-projects. The sub-project funded by the special allocation will improve the pourashava road and build connectivity among the disconnected Upazila road/Union road and the disconnecting pourashava road.

 The physical work sub-projects will be prepared by the DSM consultants performing necessary survey, data collection, consultation with the beneficiaries etc. The sub-projects so prepared will be procured and implemented by PIUs with the direct supervision and monitoring of DSM consultants.

(2-2)Governance improvement and Capacity development: The Project will support to improve the governance and develop the capacity of pourashavas.Target pourashavas will carry out series of reform activities in six key areas defined in the Urban Governance Improvement Action Program (UGIAP): (i)citizen awareness and participation, (ii) urban planning (formulation ofPDP),(iii) women’s participation, (iv) integration of the urban poor, (v)financial accountability and sustainability, and (vi) administrative transparency. The UGIAP is used in ADB funded Urban Governance and Infrastructure Improvement Project (UGIIP) 1 and2, and the Project adopts are fined version based on experiences and lessons. The activities will be supported by training and facilitation. The performance of pourashavas will be intensively monitored and assessed to determine the amount of investment funds allocated to them.

In co-operation with LGED Training Unit and UMSU, GICD consultants will conduct capacity development activities under this sub-component on Urban Governance Improvement Action Program (UGIAP) implementation for pourashava mayors, officers, and citizens through orientations, trainings, workshops, and Training of Trainers(ToT). GICD consultants will: (i) prepare Pourashava Development Plan (PDP) of each target pourashava; (ii) prepare operational guidelines and implementation methodology of UGIAP, including the preparation of operational guidelines forTLCC and WLCC; (iii) provide training of Assistant Engineers(urban planners)and other staff on urban planning; (iv) introduce computerized modern accounting system; (v) introduce computerized tax record system; (vi)improve holding tax assessment and collection; (vii) provide training on financial management;(viii) introduce communication campaign; and (ix)introduce e-governance, such as web based information management and disclosure.

Component 3;Institutional Development: This component will support to strengthen institutional development of the Project, by providing the manpower and procurement of vehicles and equipment. This component consists of two part; (3-1)Administration support, (3-2) procurement support.

(3-1)Administrative Support: This sub-component will provide incremental staffing for Project Management Office (PMO) and Urban Management Support Unit (UMSU) in LGED. For PMO and UMSU, six types of incremental staff will be hired; (i)project monitoring and reporting support (PMRS) assistant,(ii) project accounting support (PAS) assistant, (iii) equipment procurement support (EPS) assistant,(iv) performance monitoring and evaluation (PME) assistant for UGIAP evaluation,(v) statistical analysis (SA) assistant for rating of UGIAP, and (vi) publicity campaign (PC). In addition, the cost of a chartered accountant firm for internal audit will be borne by this component.

(3-2)Procurement Support:  For the smooth implementation,this sub-component will support to procuring activities for the Project.Vehicles and goods, including heavy construction and maintenance equipment such as static roller, will be procured by central buying. The static roller (8-10ton) will be provided to each PIO and PIU to rent out to the contractors for road construction and maintenance works in order to ensure good quality of compaction works.

Component 4;Consulting Services: This component will support overall management,implementation and reporting for component1 and 2. This component consists of the following three consultancy services; (i) design, supervision and monitoring (DSM) for component 1, sub-component 2-1, and component 3; and(ii)governance improvement and capacity development (GICD) for sub-component2-2 and component 3; (iii)benefit monitoring and evaluation (BME). Hence, three categories of consultants specifically (i) DSM Consultants, (ii) GICD Consultants and(iii) BME Consultants are to be deployed.

Specials features: The NOBIDEP have some special features specifically (a) Inter Ministerial Steering Committee; (b) Inter Agency Working Group; (c) Municipal Performance Review Committee; (d) Auditing (by FAPAD, CA Firm); (e) External Monitoring Agency; (f) Anti-corruption Strategy. A briefing of the features is summarized below:

a)Inter-ministerial Steering Committee (IMSC)

Roles and responsibilities

The Inter-ministerial Steering Committee (IMSC) for the Project will be responsible for verifying the progress of the Project and ensuring smooth inter-ministerial coordination of the Project. The IMSC will discuss the overall problems under the Project and play a role in coordination among the IMSC members to resolve them. The IMSC will also provide necessary instructions for the field offices and Pourashavas through the members based on reports and recommendation from the Inter-agency Working Group (IAWG). The first IMSC meeting will be held within two months of loan effectiveness. After the first meeting, the IMSC will convene a regular meeting every six months.

In order to make sure necessary cooperation among the member organizations, IMSC members will sign Memorandums of Understanding (MOU) for cooperation based on mutual agreement before the second meeting. When cooperation issues arise during the Project implementation, Pourashavas may officially request technical support from any offices of member organizations. This will be implemented smoothly if the MOU has been already signed. In addition, the MOU will complement the institutional framework for inter-institutional coordination of TLCC that has already been established at the Pourashava, since local offices of District Administration, LGED, DPHE, Road and Highways Department, Public Works Department, Department of Social Services, Department of Cooperatives, and Bangladesh Telecommunications Company Limited are members of TLCC. IMSC is expected to play a role to increase participation of TLCC member from concerned agencies in TLCC.

                      Composition of members

The IMSC will be chaired by the Secretary of LGD and include a representative from LGD. Its members consist of representatives of the LGED, Planning Commission of Ministry of Planning, Economic Relations Division (ERD) of Ministry of Finance (MOF), Finance Division of MOF, Implementation Monitoring and Evaluation Division of Ministry of Planning, National Institute of Local Government (NILG), Department of Environment (DOE), Ministry of Women and Children Affairs, Ministry of Housing and Public Works as shown in table 1.

Table 1: Composition of members of IMSC

b) Inter-Agency Working Group (IAWG)

Roles and responsibilities

The Inter-agency Working Group (IAWG)for the Project will be responsible for: 1)reviewing implementation of infrastructure development and governance improvement of Pourashava in Component 2; 2) providing necessary consultation for formulation of modules and materials for capacity development of Pourashava; 3) sharing good practices on governance improvement of Pourashava;and 4) collecting recommendations to provide supports for Pourashava and proposing them to the LGD through the IMSC annually. The IAWG will convene the first meeting within one month after the first IMSC meeting is held. A regular meeting will be organized every three months. The IAWG will call ad-hoc meetings when any issues arise. The minutes of meeting will be created and circulated among the IAWG members every time a meeting is held. The summary of main points discussed in the regular meeting of the IAWG will be submitted to the IMSC. The following are the areas to be discussed and coordinated within their mandates stipulated in legal frame work of GOB under the IAWG:

•         Technical advice to Pourashava by LGED local offices about surveying,   designing, supervision and inspection of construction works;

•         Operation and maintenance works with the LGED Road Maintenance and  Road Safety Unit (RMRSU) after completion of sub-projects in Pourashavas under the Project;

•         Harmonization of training under the Project with routine training programs  for mayors and councilors by the NILG;

•         Collaboration in Horizontal Learning Program (HLP) with NILG;

•             Technical support to Pourashava by DPHE local offices about water       quality and water vein for construction of drinking water system and sanitation;

•         Technical trainings  within DPHE;

•             Any other issues necessary for planning, implementation, monitoring and evaluation, and operation and maintenance in Component 2 of the Project.

Composition of members

The IAWG will be chaired by the Project Director (PD) of the Project, and include Deputy Project Director (DPD)for Component 1, DPD for Sub-component 2-1, DPD for Sub-component2-2 (Deputy Director (DD) of UMSU), representative of RMRSU, representatives at the Division head level from DPHE and NILG as permanent members. In addition,any additional members from the IMSC member organizations and LGED units should be assigned for specific issues.

Table-2: Composition of members of IAWG

c)Municipal Performance Review Committee (MPRC)

Roles and responsibilities

Transparent and fair assessment of performance will be critical for successful implementation of performance-based fund allocation. The Municipal Performance Review Committee (MPRC) has been established in the LGD of MLGRD&C to conduct regular review of performance of Pourashavas and City Corporations, and recommend remedial actions for improvement. It also provides policy support to UMSU which serves as the secretariat of MPRC. To support project activities in Component 2, an MPRC for the Project will be established and take responsibility of performance evaluation of UGIAP actions applying the criteria for performance-based fund allocation in order to enhance transparency and accountability of the Project. The regular MPRC meeting will be held to assess the performance of each Pourashava against the set criteria semiannually. The MPRC meeting will be mandatory at the end of UGIAP Phase 1 and 2, respectively. The PD can request the ad-hoc MPRC meeting when evaluation by the MPRC is needed to assess if a Pourashava will qualify for entry into Phase 2 before the end of UGIAP Phase 1. The MPRC needs to be planned and organized well in response to requests from the PD not to cause the Project to be delayed and the UMSU will work as a secretariat of the MPRC.

Composition of members

The MPRC should be independent from the PMO to ensure transparency in performance evaluation of Pourashavas. Moreover, its members should be ranked at par with Pourashava mayors.Therefore, the MPRC will be chaired by secretary of the LGD, and its members comprise: 1) Chief Engineer (CE) of the LGED; 2) Additional Chief Engineer in Urban Management of the LGED; 3) Director General of the LGD; 4)representative of Planning Commission; 5) Implementation, Monitoring and Evaluation Division of the MOF; 6) Economic Relations Division of the MOF; 7)Financial Division of the MOF; 8) three mayors from outside of target 18Pourashavas; 9) urban governance professional nominated by the LGD; 10)representative of the JICA Bangladesh Office; 11) DPHE; and 12) Director of UMSU as Member Secretary as shown in table 3.

Table-3: Composition of members of proposed MPRC

             d) Auditing (by FAPAD, CA Firm):

All accounts and financial statements will be audited to ensure that funds are utilized for the Project purpose in accordance with international standards on auditing by auditors acceptable to JICA. Foreign Aided Project Auditing Directorate (FAPAD) will conduct the yearly external audit on behalf of Auditor General. Besides, a Chartered Accountant Firm (CA Firm) will be employed by LGED for internal audit of the project. Also, an ex-post procurement audit may be carried out during/after the implementation stage by independent auditors, who will be designated by JICA,in order to ensure the fairness and competitiveness of procurement process, in case JICA considers it necessary.

e) External Monitoring Agency:

The external monitoring,which will be conducted by the External Monitoring Agency (EMA),will focus on social impacts of sub-projects on Project Affected Persons(PAPs), and status of entitlement provision to PAPs. The EMA will be recruited from an independent consultant, academic research institution, or NGO which has enough experience in monitoring on land acquisition and involuntary resettlement. 

The timing of the external monitoring are proposed as post sub-project phase, since the expected scales of land acquisition and resettlement are considered small. Such monitoring should be conducted six month-after the completion of land acquisition or resettlement. 

Through consultations with the PAPs and on-site investigations, the EMA will assess the socio-economic conditions of the PAPs, and aftermath impacts. Perceptions of the PAPs on their received entitlements are also confirmed. Baseline information on PAPs’ income and livelihood level will be properly referred in the post sub-project monitoring. Based on the monitoring, lessons learned from the land acquisition and resettlement activities will be derived, and they will provide important feedback for future sub-projects involving land acquisition and resettlement. 

The Rehabilitation and Resettlement Specialist (RRS) and the Project Management Office (PMO) shall provide necessary assistance, including the provision of field data and information and arrangement of field surveys, to the EMA.

f)Anti-corruption Strategy: A set of parameters have been adopted in the anti-corruption policy of the project which are tabulated below:

(1) Special training course on e-procurement: LGED has a training unit, and conduct training one-procurement through the unit. The e-Procurement is considered to be highly prioritized in the training and all staff involved in the e-procuring process is required to complete training on public procurement regulations before they are involved in e-procurement, aiming to raise the standard of professional competence and efficiency among those staff. In co-operate with LGED Training Unit, PMO (DPD for component 2) will organize three-day special training course on e-procurement procedure and financial management for LGED and pourashavas.

(2) Participation in the Tender Evaluation Committee(TEC): JICA staff or its representative including the consultant employed by JICA’s assistance if nominated by JICA,can participate in all the meetings of the Tender Evaluation Committee (TEC) for ICB method as an observer to ensure transparency in the procurement process of the Project. LGED will issue invitation to JICA.

(3) Fraud and corruption hotline: LGED will include the following contact information on the fraud and corruption hotline in the bidding documents including the RFP documents for selection of consultants and PQ documents.

For JICA

          In Japanese: https://www2.jica.go.jp/ja/odainfo/index.php

             In English: https://www2.jica.go.jp/en/opinion/index.php

For GOB

Central Procurement Technical Unit, Implementation

Monitoring and Evaluation Division (IMED),Ministry of Planning

             Block-12 (2^ndFloor), Sher-e-Bangla Nagar, Dhaka 1207

Phone:880-2-9144252,53

Fax:880-2-9144250

E-mail: info@cptu.gov.bd

(4)Internal audit: LGED will employ a chartered accountant firm for internal audit of the Project in accordance with the draft TOR, apart from the external audit conducted by the Auditor General. LGED will submit the annual internal audit report to JICA within 6months after the end of each fiscal year.

(5) Independent procurement audit: An ex-post procurement audit may be carried out during/after the implementation stage by independent auditors, who will be designated by JICA, in order to ensure the fairness and competitiveness of procurement process, in case JICA considers it necessary. GOB including LGED will take necessary measures to enable and facilitate the audit.

(6) Bid Opening Committee: Now the Bid Opening Committee (BOC) is functioning in each District and Upazila to open bids in public. Also, e-bid opening committees are available for on-line procurement in the district and head quarter level.

(7) Complaint mechanism: In the Chief Engineer’s Office, PMO, LGED District Offices, the LGED will newly be introduced a complaint box by the end of July, 2013.

(8) Disclosure of the procurement: LGED will publish the procurement plan in LGED website and update twice a year. Within two weeks of contract awarding, LGED will also post the information about contract.