women’s participation in local government in the lic districts in bangladersh

8/3/2019 Womens Participation in Local Government in the LIC Districts in Bangladersh

1/28


2/28

2

Table of Contents

1. Introduction 3

1.1 Background 3

1.2 Objective of the study 4

1.3 Methodology 4

2. The Legal Framework of Women in Local Government 5

2.1 The constitutional provisions 5

2.2 Local Government law and womens participation 6

2.3 The UP Act, 2009 7

2.4 Government circulars on womens participation in the UP 8

3. Initiatives for change 10

3.1 LIC and empowerment of women members 103.2 UP women in the committees 12

3.3 Participatory Planning and the role of women 14

4. Findings 15

4.1 The achievements 15

4.1.1 General findings 15

4.1.2 Capacity development of women members 17

4.1.3 Confidence building 18

4.1.4 Increased visibility and accountability 18

4.1.5 Empowerment of Community Women 19

4.2 Issues for further attention 20

4.2.1 The UP women members 20

4.2.2 The role of officials 21

5. Conclusion and Recommendation 23

5.1 Conclusion 23

5.1.1 Innovations 24

5.2 Recommendations 25

5.2.1 General recommendations 25

5.2.2 Specific recommendations 26


3/28

3

1 Introduction

1.1 BackgroundAs a measure towards strengthening Local Government and empoweringgrassroots women by ensuring their participation in Union Parishads, an

amendment to the Union Parishad Ordinance (1983) in 1997 introduced thedivision of the UPs into nine wards and reservation of three seats for women 1.Each of the reserved seats comprises of three of the nine general seats which inmost cases are held by men. Through this amendment to the UP law, the ruralwomen of Bangladesh got the opportunity to be directly elected to the reservedseats in the UPs. However this law has not fully assisted the women memberssince each of them have to represent constituencies that are three times larger.This was a big challenge for the elected women representatives as they have tocater to the demands for action by a much larger population. They also have tospend more time and money to interact with the people in the three wards.

Secondly, being directly elected for the first time the women have to facechallenges most persistent being the resistance to participation by the malechairs and members. This is further accentuated by the fact that the law does notclearly specify the responsibilities and functions of the women. In attempts toresolve the matter the government issued a number of orders and circularsproviding a few specific roles and authority to women in UP affairs. These includea role of the women members in the selection of VGD (Vulnerable groupdevelopment) beneficiaries, making it mandatory for women to chair one third ofthe standing committees and the development project committees. Despite theseaffirmative actions the effective participation and empowerment of women haveremained low, calling for further action and follow up initiatives for facilitating the

elected women Union Parishad (UP) members.

Within this background the donors interested in supporting the government incapacity building of local governments in operating independently andresponsibly formulated innovative initiatives. One such initiative is the LGSP-LICProject. To strengthen the UPs as agencies for effective, responsive localservice delivery and accountable governance the Government of Bangladeshwith financial support of the World Bank, United Nations Development Fund(UNDP), United Nations Capital Development Fund (UNCDF), EuropeanCommission (EC) and Danida introduced the Local Government Support Project(LGSP) from mid 2006. Within the LGSP, a Learning and Innovation Component

(LIC) funded by UNDP, UNCDF EC and Danida was introduced to deepen theinnovations from the Sirajganj project and to widen their scope. The expectedoutcome of the LGSP/LIC is improved Union Parishad capacity for effective,efficient and accountable delivery of pro-poor infrastructure and services. TheLIC has introduced some special provisions for empowerment of womenmembers of the UP as well as the community women by involving them in the

1The revised Local Government Act (Union Parishad) 2009 also has the nine wards and similar arrangemet

of three reserved seats for women to be elected directly.


4/28

4

local development processes. These are being piloted in six LIC districts ofSirajganj, Hobiganj, Norshingdhi, Feni, Satkhira and Borguna.

The initiative includes formation of a Women Development Forum (WDF) at theUpazilla to organize the Union Parishad women members in exercising their

rights of participation in UP decision making process; earmarking 30% of theSupplementary Block Grants through the LIC for women prioritized schemes;chairing of one third of the Ward Development Committees (WDC) under the LICby women; conditionality of women members regular and active participation inthe UPs monthly and other meetings for eligibility to the Supplementary BlockGrants (SBGs); and inclusion of at least three women from the community in theUnion Facilitation Team (UFT) with the objective of involving community peoplein the development process.

The project commissioned this study to assess the status of UP members invarious committees including the WDF, a platform for the UP women members to

voice their demands, under the LIC project, looking at the level of development ofthese in facilitating the women members and community women to ensure theirparticipation in the decision making process of the UP and service delivery at thelocal levels.

1.2 Objective of the studyThe overall objectives of this study are:

1. to assess the scope of participation of women in local governmentunder the existing legal framework

2. to review the LIC project for indicating the extent of womens effectiveinvolvement in the UP functions and decisions. And to identify the gaps

in achieving the objectives of empowerment women in the councils andin the community3. to recommend to the measures for removing the gaps through project

initiatives and policy reform

The specific objectives of the study are to:1. assess status of UP women members in the various committees including

the WDF,2. asses the level of development of the committees in facilitating

participation of UP women members and community women in localdevelopment programs and service delivery.

3. identify the issues of basic service provision by UP women members4. recommend possible solutions to increase and enhance their involvementin the UP activities in the light of the learning of the LIC experience.

1.3 MethodologyThe data collection methodology for the study was a combination of desk basedreview, field level qualitative methods and observation. Both primary andsecondary sources are used.


5/28

5

1. A desk based review was done on the LG Ordinances, Laws, theConstitution, Rules, Official orders, circulars, UP manuals on womensroles and functions in the UP, LGSP/LIC documents related towomens development in the UP, WDF constitution and all relevantdocuments.

2. Field level data collection was undertaken on the operation of UPwomen members as WDF leaders, WDC chairs and vice-chairs;community womens roles and functions in the UP decisions andactions and in local service delivery. This was done through FGDs andinterviews. (Check lists in Annex)

3. Fieldwork was conducted in four of the LIC districts of Feni,Norsingdhi, Hobigonj and Sirajganj. FGDs of the WDC, SSC, WDF andof members (male and female) in one Upazila of each and two inNorsinghdi district, interviews of the DDLGs, the UP chairmen andsecretaries, the Upazila Cooperative Officers were done. Discussionswere held on the LIC and womens roles in the committees with the DC

and UNOs. FGDs of UP members and community people were alsoconducted. (See annex for list of persons and groups interviewed andmet in FGDs)

2. The Legal Framework of Women in Local Government2.1 The constitutional provisions

The Constitution of Bangladesh provides a clear mandate for a viable,decentralized local government system with elected representatives anddemocratic participation of all citizens including women. Following the mandateof the constitution the country has had local government laws for every tier of theadministration under all governments, both elected and non democratic. However

the spirit of the constitution for a self functioning local government system withdecentralized and equal jurisdictional and functional authority to all men andwomen elected remained illusive.

The Bangladesh constitution is unique in terms of providing through a number ofarticles for a widely participatory and democratic LG system particularlyemphasizing participation of women on an equal footing. Other than theprovisions for the LGs a number of other articles on equal rights of womencomplements and supports womens strong presence and role in the LGs.

Articles 59 and 60 in Chapter III, Part IV of the Constitution of Peoples Republic

of Bangladesh provide the framework for the composition, scope and powers oflocal government institutions to be established by acts of Parliament (GOB,1972)2.

2GOB Constitution, 1972


6/28


7/28

7

chairs and councilors are carrying out the day to day activities of these bodiesexcept the UZP which was elected in early 2009 after 18 years of suspension butis not yet fully functional. The Zila Parishads law was enacted in 2001 andreplaced by one in 2009, but elections have not been held. An examination of thedifferent laws and its provisions for both functional and nonfunctional local

government enables one to identify the structural, jurisdictional and institutionalarrangements that create issues in womens effective roles and positions in theLGs.

2.3 The UP Act, 2009The Union Parishad, the lowest unit, as is well-known, is the longest existing LGin the country. However the inclusion of women as elected representatives isfairly recent. The UP to date is set up and functions on the basis of the UPOrdinance of 1983 which was amended twice (1993, 1997). This law was revisedin the form of the Local Government Act, 2009 but the changes made are yet tobe implemented. Before the 1997 Amendment women were nominated to the

councils by the elected chairs or the local administrative officers (DC, UNO). This1997 amendment introduced the provision of three seats, reserved for women tobe directly elected by the voters of specified constituencies. The second majorchange was the re-demarcation of the union into nine in place of the previousthree broad wards, each to be represented by one elected member, male orfemale. The nine wards are grouped into three broader wards, each representedby an elected women member from this constituency of three general seats. Thewomens wards are referred in the law as reserved seats.

Under Article 10 of the UP Act 2009, the following sub sections define theprovisions for women in the UPs:Sub section (1) states a Union Parishad shall consist of a Chairman and twelvemembers of whom nine are to be members of general seats and three will bemembers of reserved seats; Sub Section (3) states .. in each Union Parishadthere shall be three seats exclusively reserved for women to be referred as thereserved seats.and the women in the reserved seats shall be elected bydirect election in accordance with the provisions of this Law and the rules:

But the condition remains that nothing shall prevent a woman from being electedto any of the nine general seats provided in sub-section (1) of this law4 Articletwo of the Act states that for the purposes of electing members to the reservedseats a union has to be divided into three wards. Sub-section 9 in Article 13 onthe subject of Demarcation of Wards, states that the UNO appointedDemarcation Officer will demarcate the wards for the Reserve seats.

Based on the 1996 amendment to the UP Ordinance 1983 women have beenelected to reserved seats of the UPs for two terms, in 1997 and 2001 and the

Acts have been passed for all four of these LGs by the Present government in 2009 though the members to

all were elected under the earlier Acts/Ordinances.4The Local Government (Union Parishad) Act, 2009


8/28

8

next elections are due with the expiry of the five year term in 2006. As providedin the law women can contest the general seats but given the socio-cultural andeconomic context very few women venture to do so. Very few women contestand even fewer among them get elected to the general seats or the chairsposition. In 1997 UP election a total of 103 women contested for the seat of

chairperson and 22 won; 456 women contested in the general seats and 110won. In 2003 a total of 232 women contested for chairpersons position and 22won; 617 women contested for general seats and 85 won. Compared to 1997,129 more women contested for the chairs position and 161 more in generalseats in 2003.5

Apparently it may seem that by this provision women in the reserved seats holdgreater responsibilities and more importantly, powers by virtue of representinglarger (three) wards compared to the general seat representatives whorepresents only one third of womens constituency. In practice however, it is quitethe opposite. The reserve seats for women overlap that of three others resulting

in two members representing the same seat. This leads to confusion andcompetition resulting in mis-governance. A negative impact of this is manifestedin the fall in numbers of women competing in reserved seats in 2003 ascompared to 1997. In 1997, a total of 44134 women contested while the numbersin 2003 came down to 39419. 6

Secondly, with no clear cut definition of the role and functions of the reserveseat in the amendment, representatives in these seats came to be virtuallyunwanted in the UPs as has been reported in a number of studies of UP womenmembers and their roles.7 The functions and roles of the women in the reservedseats and the general seats are not specified in the Law, nor is it stated that thewomen members would be responsible for the same duties as the members fromthe general seats. This resulted on the one hand in confusion on the part of thenewly elected women and created scope for the chairmen to exclude womenfrom UP functions on the other. A similar arrangement for the women elected tothe reserved seats in the Pourashavas and the City Corporations resulted in thesame situation of powerlessness of the women commissioners. The status ofwomens reserved seats remained the same in the subsequent revised laws forall the LG units.

2.4 Government circulars on womens participation in the UPThe structural problems of womens incorporation in the local governments,particularly the UP in which the constituencies of the reserve seats and thegeneral seats overlap have been affecting womens participation in the councils.

5Bangladesh Election Commission figures quoted in Jahan, Momtaz in political Empowerment of Women:

Bangladesh Perspective.Women for Women, Empowerment, Vol 13, 20066

Bangladesh Election Commission Public relations department7

Khan, Md. M R & Ara, Fardaus; Women Participation and Empowerment: Bangladesh Union Parishad

perspective in Asian Affairs, Vol29, 2006. Gender and Development resource Centre, Steps Towards

Development, 2003.


9/28

9

They are marginalized in the UP functions in local development and servicedelivery in such areas as shalish,8 law and order maintenance, infrastructurebuilding, citizenship certification, birth and death registration etc. Reports of manystudies also indicate that the women members are also marginalized in UPs roleof ensuring services in education, health, agriculture etc.9

In addition to this the weaknesses of the law restricts them in taking upresponsibilities. The UP Act (remains the same in the Act of 2009) does notclearly define the functional jurisdictions for the women councilors in the UnionParishad nor mention that it is the same as that of the general members. On theother hand, it is given a separate status by the statement that these would bereferred to as reserve seats for women. This sets the women aside as aseparate category in the councils leaving scope for the interpretation that whenthe general seats are mentioned it is not applicable for the reserve seats. Thechairs and male members have been using this major oversight in the law todiscriminate and often exclude the women councilors from participating in UP

activities. For example it is a common complain of the women members that theUP Chairs often prevent them from participating in important decisions in thecouncil by saying that only the members can discuss. In important budgetdecisions they are excluded on the same grounds. The assumption emanatingfrom a general perception that matters such as budget, infrastructure projects,financial management etc are subjects that only men are capable of dealing,combining with the categorization of reserve seats for women as a separategroup results in their exclusion from important UP functions. Thus the labeling ofthe women councilors as a separate category (reserve seat holders) in the lawcreates un-clarity and vagueness providing scope for chairs, in almost all casesmen, to interpret it to exclude women members from all main functions of thecouncils.

Thus initially, when the first batch of women were elected to the UPs on the basisof new law, women were denied a role in project planning, implementation,budget making, financial management, preparing list and distribution of VGD,VGF cards under the food security schemes. Women were also denied the rightto provide citizenship, character and other certificates issued by malerepresentatives. The women were also reported to be often excluded frommeetings and important decisions of the UPs.

In this situation of deprivation of the women members from participation in UPfunctions due to the un-clarity of the ordinance, the ministry had respondedpositively to the complaints from the elected women members and the concernedcivil society organization including the media and issued circulars / orders fromthe Local Government Division of the Ministry of Local Government, Rural

8Informal local arbitration councils for resolution of petty disputes conducted by the UP representatives

9Khan, Z R & Mohsin A, Political Empowerment of Women in Union Parishads, research report for the

Pathways of Womens Empowerment project, BDI, Brac University, 2008.


10/28


11/28

11

implementation with the participation of the community people. One importantdimension of the Sirajganj project was to devise a mechanism through whicheffective roles of women UP members disenfranchised by the overlap of theirreserved seats with general ones leading to their marginalization in the councilsfunctions and decisions, could be established and institutionalized. The project

aimed at providing specific, defined roles to the women members to enable themto address the issues arising out of the un-clarity of the new law on the roles andfunctions of the women members that further aggravated their powerlessness.The conditionality of mandatory womens participation in the committees etc. asblock grant eligibility criteria and additional grants created scope within SLGDFPfor the women to participate in the councils affairs.

The success of the Sirajganj project resulted in the introduction of the LGSP forstrengthening UPs through participatory planning of Block Grants directly to a UPspecial/separate account. The eligibility criteria for the direct BGs includeparticipation of women members in all important functions of the UP. Under

LGSP the UPs plan and implement projects with participation of the communitypeople ensuring accountability and transparency. All UPs in the country arebeing brought under LGSP in phases. In order to innovate more appropriateways of strengthening UPs, a Learning and Innovation Component (LIC) hasbeen introduced in selected UPs in five Districts by the Government with donorassistance.

The LIC design for accessing and utilization of the Supplementary Block Grant(SBG) and the Expanded Block Grant (EBG) incorporated important roles forwomen members in various committees at the ward, UP and Upazila levels.These are the Ward Development Committee (WDC) for planning andimplementation of local development projects/scheme and Scheme SupervisionCommittees (SSC) for supervision and monitoring of the schemes aiming toensure compliance of social and environmental conditions and quality. There is aUnion Facilitation Team (UFT) of people who are trained to provide technical andother training to the WDC and SSCs. A Union Planning and CoordinationCommittee (UPCC) provide guidance to the Ward committees in project planningand coordinate and place the prioritized schemes from the WDCs in the UP. TheBlock Grant Coordination Committee (BGCC) at the Upazila keeps a critical eyeon the Union prioritized schemes, provides technical assistance to the draft UPplans and budget and monitors to prevent duplication of schemes. There is aUpazila Resource Team comprising of the officials of the relevant UPZdepartments.

One third of the WDCs are led by a woman councilor in their three-wardconstituency and vice chairs in the remaining two. No member of the WDC cansimultaneously be a SSC member and vice versa. Fifty percent of the SSCmembers have to be women from the community. The BGCC is chaired by theUNO and among others one woman member from each of the Unions aremembers of the BGCC. The concept of the Women Development Forum (WDF)


12/28

12

as a platform for the UP women members evolved from the experiences ofSirajganj pilot project. While the women gradually started to perform better intheir own constituencies, the felt need for them was to network and organize forcollective action and advocacy for their rightful roles and to be more effective inservice provision to the community. This realization led to the concept and

formation of the WDF under the LIC initiative.

3.2 UP women in the committeesThe purpose of the Women Development Forum for the LIC districts is tofacilitate the full participation of the women members in the local governmentadministration and to assist the UPs in the work of socio-economic uplift of thehard core poor women of the community.11 To ensure more effective roles of theUP women members, the Women Members Development Committees (WomenDevelopment Forum) would be formed at the Upazila and Zila, (GOB,2009)Within this component further innovative initiatives may be introduced.

The Executive Committee of the Women Development Forum at the Upazilacomprises of the following from among the UP women members of all the unionsin the Upazila: one chairperson, one panel chairperson, one secretary, andexecutive members-one from each union of the UPZ. The overall objective of theWDF is for promoting the participation of the women in the union area indevelopmental activities. The forum was to comprise of present and past womenmembers of the UPs.

In the field it was found that the WDFs at the Upazila were formed from amongUPs present and former women members in a meeting convened by the UNO.In most instances the Upazila executive committee was formed with currentmembers only. Only in Tarash one ex-UP member is an active participant of theWDF. The WDF meetings are held quarterly and convened by the UpazilaCooperative Officer. Meeting notices with the agenda and the resolutions have tobe recorded. In all cases meetings were not found to be held regularly butnotices of those held and resolutions were duly recorded. Nabiganj UPZ WDF ofHobiganj was found to be keeping the records most efficiently. In Sadar UPZWDF of Norsingdhi District the UCO being new was yet to be versed in the WDFactivities. However the members of this WDF are proactive and were found to bedemanding regular initiatives on the part of the UCO. The participants of thequarterly WDF meeting are entitled to a travel allowance which encourages andfacilitates participation of all members.

The main innovation of the LIC is the bottom up, participatory planning processthrough ward level committees for project selection and implementation. Theprovision of womens inclusion and mandatory roles in these is a strategic way ofensuring womens incorporation that has been compromised by the uncleardefinition of their position as reserve seat holders.

11Union Parishad Operational manual (for LIC districts), Local Government Division, MLGRD& C,

January, 2009


13/28

13

The LIC process includes democratic and accountable performance of UPs inaccessing and utilizing direct block grants implemented through a thecommittees. The Ward Development Committee (WDC) at each of the UP wardscomprises of a Chair and a Vice Chair, two local elite persons, one school

teacher, one social worker and a NGO worker. It was reported that all membersof the WDC participation enthusiastically. The women UP members chair onethird of the WDCs and are vice-chairs of the rest which are chaired by the malemember. The functions of the WDC is to organize ward level participatoryplanning meeting, ensuring environmental sustainability of schemes, prioritizingselected schemes and submitting to UPs, implementing approved schemes,preparing three monthly report of ward level work, organizing meetings for othermatters. The members from the community were found to be appreciative of theWDC functions and the visible roles of the UP members including women. Somemembers of the community said that now they can see the women and maleward members as they meet them in the scheme planning meetings. They can

also place their grievances and needs to them as they come to the village for themeetings. The WDC activity has given visibility to the women while also enablingthe voters to demand and pressure for accountability for their work. Thedisclosure of the budget for schemes, in particular is mentioned by the people.

The ward based Scheme Supervision Committee for ensuring the quality ofschemes implemented by WDC, comprises of seven members from thecommunity. The SSC members elect from among themselves, a Chair, a ViceChair and a Secretary. The UNO nominates one Upazila official to the SSC.Members of the SSC are elected by the community in an open meeting and atleast one third of total members have to be women. The nomination of the UPZofficial was found to vague, not clear to all concerned if this has been done. TheBelabo UNO said that no officer has been designated and she would soonappoint an officer to the SSC in her meeting with the researcher. The WDCmembers were not found to be aware of such a designated UPZ officer forassistance to the SSC.

The functions of the SSC include supervision and monitoring of ward levelscheme implementation. It monitors the cost and quality of implementation ofapproved schemes. The SSC advises the WDC on faulty scheme implementationand informs the UP if WDC fails to address SSC is useful to involve the localyouth in UP and development work.

The Union Facilitation Team are formed to train the Union Parishad PlanningCommittee (UPPC) for technical evaluation, prioritizing and recommendingschemes submitted by the WDCs; the WDC and SSC members, to assist theWDC and the UP in participatory planning through training on the LIC and otherUP functions. In Hobiganj 144 UFT members 52 women and 92 men weretrained in 2008 from 16 LGSP-LIC unions in 8 UPZs. It is interesting to note that36% of the UFT members in the training were women. The participants training


14/28

14

evaluation reports indicate that the participants feel that training contents weresubject oriented and not only project related but also include knowledge of localgovernance and poverty reduction issues. The participants felt confident to betrainers to the LIC project committees. 12 The UFT members feel that they arelearning local issues in development and services as well as UP affairs through

the training and getting opportunity as ToT to train UP and community peopleWDC and SSC functionaries. The UFT being comprised of local educated menand women (having school/college level degrees) who getting knowledge of thelocal UP, LIC and other developmental issues is creating a local humanresource base as a local elite in Tarash pointed out that is going to remain incommunity. The more progressive UCOs and the project District Facilitators feelthat this will contribute immensely towards sustainable development at thegrassroots.

3.3 Participatory Planning and the role of womenThe 2009 Union Parishad Act gives priority to the planning process making

elaborate provisions for ward based participatory planning. An entire chapter (2)(Articles 3-7) is devoted to formation, functions , responsibilities and powers ofward shabha or forum to be chaired by the respective ward members andcomprising of membership of all eligible voters of the ward. The women UPmembers are to be advisers to the ward shabhas in their reserve seatconstituencies. The ward shabhasare envisaged to be the focal points of all UPdevelopmental planning. A review of the new UP Act shows that women havebeen marginalized in the decision making process of the ward shabhaas theyhave been allocated a role only as advisors whose opinion in important wardmatters is not binding. Their role thus would become ornamental and symbolic atbest.

The UP Act, 2009 also for the first time provides for the union level extensionservices of the central government transferable to the UPs (Article 63). Thegovernment may transfer any service/ personnel to the UP as per the thirdschedule of the Act. A Code of Conduct will guide the working relationshipbetween the UP councilors and the transferred personnel and other local levelgovernment officials (Article 64).

Both these provisions in the 2009 Act hold the scope for the greater need based,participatory planning from the ward levels involving the community. It alsoenvisages more effective services by providing for the line ministry personnel tobe placed at the Union. Yet the potential of womens increased and effectiveparticipation has not been provided for. The advisory position for women willdeprive them of a direct role in the decisions of the ward shabha. In this state theimportance of initiatives like the LIC for womens enhanced participation andempowerment becomes even more crucial. The LIC innovation of WDCs withconditionality of women to be chairs of one third and members in others makes itmandatory and thereby providing them the opportunity of an effective leadership

12Local government division, Hobiganj, LGSP-LIC Hobiganj District Annual Report, January, 2009


15/28

15

role. With regard to the provision of transferred subjects and personnel to UPsthere is potential of active functioning of the UP Standing Committees of whichone third has to be chaired by women members. Effecting this new provision willopen up opportunities for the women members to participate in the important UPfunction of monitoring and ensuring services including primary health and

education to the community.

The practices in monitoring of services by the WDF members under the LICclearly shows that given the mandate women can make the service deliveryagencies perform better. Women members of the WDF have been found to beactively monitoring service delivery in primary schools and the primary healthcenters. The DF members in Tarash described cases in which they intervenedeffectively in primary schools in improving teacher attendance and provision offree text books. The WDF members in Poshuram UPZ narrated their experienceof intervening in cases of violence against women in the family and forcing thehusbands to restrain. They said that they could be successful because of the

support of the community people who recognize their roles in the WDC work.

4 FindingsThe design of the SLGDFP and based on its learning, the LIC project aimed/s ataddressing the issues of UPs powerlessness arising from the central control offunds and the system that marginalize women members in key UP functions.Therefore the LGSP/LIC incorporated the direct block grants to the UPs, planningand implementation by the ward committees with lead roles to women membersand community women. The study findings indicate a positive beginning of theLIC particularly its component of empowering women in the 5 new districts andSirajganj.

The study of the LIC initiative with the objective of understanding the levels ofparticipation and empowerment of UP female members and the communitywomen generally indicate that it is effective in enhancing participation andfacilitating the bearing of responsibilities and assuming leadership roles. Thefindings have been categorized as general, capacity development of the womenmembers, confidence building, increased visibility and accountability andempowerment of community women.

4.1 The achievementsThe study indicates a positive beginning of the LIC project particularly in itscomponent of empowering women in the project districts. This in turn has beenfound to be having a positive impact on the UP as an institution.

4.1.1 General findingsIt has been found that the LIC initiative has been impacting on the institution ofUnion Parishad in the following ways:


16/28

16

1. Creating an environment of tolerance and cooperation in the councils:The processes of receiving block grants through fulfilling eligibilitycriteria, the UPs have to perform in most of its functions withparticipation of all counselor including women members. This calls forthe Chair to involve the counselors to participate.

2. Increasing the acceptability of women as capable partners andcolleagues: In maintaining the UP as a well functioning unit with properfinancial management, record keeping, regular meetings, participatorydecisions, accountability the Chairs and Members have toaccommodate and allow the women counselors to perform. Thewomen members on the other hand have to involve in all UP activities.

3. Leading towards functioning of councils as a parishad of all themembers and not just that of the chairman: Acquiring eligibility toaccess and continue to receive direct BGs under LIC the UPs have tofulfill the requirement of planning through the WDC, SSC and UFTs.

4. Fostering systems of transparency and accountability through the

practice of improved financial management: Catering to the LICprocesses of financial management and open accounting, the UPs arebeing facilitated to be transparent and accountable in theirtransactions, not only or the LIC projects but also for other regularactivities of the UP.

5. Providing opportunities of establishing the councils constitutional rolein local governance: The overall performance of the UPs inimplementing the LIC projects through participation of all members intransparent ways is enabling the effective completion of its tasks. Thisis improving the UPs credibility as a delivery institution among the localcommunity.

The system of participation and accountability of the UP members and thecommunity women in the LIC is gradually changing the practices and perceptionsregarding the UP women in the following areas:

1. Assumption of leadership roles in the UP planning, implementation andsupervision of developmental projects is leading to ownership of theprojects by the women members, thereby fostering greater individualand collective responsibility. The women members have been reportedto be more punctual, informed and proactive in their activities in theUP.

2. Greater interaction of the women UP members with the communitymembers including women and the male co-colleagues is changing theperceptions of the women members and the community regarding theirpublic roles and responsibilities. The community people have beenfound to be appreciative of the women members efforts. Importance ofthe women in the their families is also being enhanced.

3. The open discussions regarding the schemes and the budgetspromoting attentiveness towards accountability in delivery of services


17/28

17

among the female and male councilors. The perception that womencannot assume roles of managing and leading activities and financesis gradually changing.

4.1.2 Capacity development of women members

UP women members direct involvement in accessing and utilizing BGs throughthe LIC project in close cooperation and collaboration of the chairs and malemembers have been contributing in developing the capacities of the femalecouncilors. This came out from the discussions with the WDF and WDCmembers as well as the UP chairs and secretaries in all five Upazila visits. TheUNO of Belabo Upazila, District Narsingdi Ms Nasrin Sultana who has beenreported to be very proactive in following up the LIC implementation commentedthat she has observed qualitative changes in the UP women members in themeetings with them. They are more confident and can put forward points withrelevant information much better than before. She believes that the responsibilityof carrying out financial management functions with the Chairs and the Secretary

have made them attentive and serious in learning more about the system andusing the information in their activities. Fazlul Karim Bhuiya, secretary of BuxMahmud UP said that he finds many of the women members to be doing well inthe handling of the Block Grand funds. They are confident in carrying outfinancial management and are making efforts to discuss UP financial issues withthe Upazila officials for clarification of rules and regulations. They also approachthe chairman for assistance and information. These show that the process andpractices of BG utilization under the LIC is enhancing the capacity of the womenmembers:

1. The capacity of UP women members in project planning and developmentschemes is found to have improved substantially through their training andexperiences as WDC members.

2. The UP women in the WDCs and the WDF reported that they are learningthe technicalities of the developmental programmes like planning andbudgeting of schemes

3. The position of the UP women as chairs and vice-chairs in the WDCs andas joint signatories to the UP Block Grant account

a. provide them with the opportunity to learn financial managementissues through the training, information they collect from the UPZoffices and the practical experiences. The Narsingdhi districtBelabo UPZ women WDF and some WDC members said thatbeing effective has encouraged them to learn more about the UPOperational Manual. The President of Tarash WDF Jainab Beguminformed that she literally carries the UP and LIC Manuals with herand consults it whenever she needs in carrying out her UPfunctions. Manual gulo ami Balisher Nichey rakhi, prai mukhoshto(I keep the manuals under my pillow, I memorized nearly all thclauses)are her exact words.


18/28

18

b. the information and experience they get from this role allow themleverage to counter the chairmen and male members tendency todominate and exclude them from financial decisions.

c. enable and facilitate them to discuss finances with the communityand women

d. create confidence to assert their roles in ensuring service provision.The women UP members in joint FGD with UP chairs, membersand SSC, WDC male members were found to be confidently puttingforward their points and participating with important facts andinformation on the issues of LIC and services during the field studyfor this report. Particularly the women members in Tarash UPZ andBux Mahmud UP in Porshuram UPZ were vocal and assertive.

4. For information of ongoing processes the women members have beenfound to track government orders in Upazila offices. UP womenmembers in the LIC project, particularly in Madhainagar UP in Tarash

Upazila of Sirajganj reported visit the UNO frequently. They also hasmeetings with the Upazila Women Affairs Officer regarding access toinformation and funds for making the WDF more effective and viable.

5. The UP women members in the LIC committees have reported that theycan assert their roles in performing the regular UP functions i.e., selectionof VGF,/VGD, widow and old-age pension beneficiaries because oftraining and their experiences as LIC committee members.

4.1.3 Confidence buildingThe leadership roles and authority of women in the LIC processes haveincreased their confidence in interacting with offices of authority at the UPZ anddistricts as well as with the Chairman and male councilors of their own UPs. Thisis enabling them to be a part of the delivery that is effective in satisfying the localcommunity.

1. The UP women members are found to be regularly visiting and interactingwith the UPZ officials as WDC and WDF committee members forclarification of rules and procedures and information.

2. Many of the UP women members particularly those in the WDF (TarashUPZ in Sirajganj and Belabo UPZ in Norshingdhi) have reported tomonitor schools in the unions, interacting with the school authorities toretrieve drop outs of girls and improving attendance of students andteachers.

3. Many are monitoring and intervening in the union health centers and areeffectively doing similar work in the area of motivating families to installsanitary latrines.

4.1.4 Increased visibility and accountabilityThe status of women members and the women in the community improved dueto their visible role in the public sphere. Many of the women in the community


19/28

19

have been enthusiastic in reporting that they actively participate in the planningprocesses of the WDCs. Their families appreciate and look at them with regardbecause of their public roles in the WDCs and the SSCs.

1. The UP women members work in the LIC committees can now be

viewed by the community, becoming transparent through regularinteractions in planning and scheme selection. The community peopleare part of the monitoring and supervision (in SSCs) and can betterasses the women members performance and ability

2. The chairmen and male members have started to cooperate withwomen members who being better informed can participatemeaningfully. Many of the women interviewed said that they feelconfident to express their views, can now assert their rights and refuseto work if the men do not cooperate. Naznin Akhter, member ChithliaUP, Porshuram UPZ & president UPZ WDF said that they stop workingin UP functions that is mandatory for the chairs to access funds and

this creates pressure on the chair to include them. Mst FerdousiBegum, member Madhainagr UP reported that when the chairman didnot allot one third chair position to the ADP grant the women membersrefused to sign the papers to access the fund until he complied. Shesaid that their awareness of the rules have enabled them to assert.Working together with other women members in the same UP and inothers through the WDF gives them strength.

3. The Committee training and experience help them motivate women inthe community to discuss womens issues in the courtyard meetings.

4. Public awareness created through the WDC/WDF members workprovide pressure on the chairmen to be sensitive to community opinionand needs. This has brought about practices of openness in UPfinancial and other transactions.

4.1.5 Empowerment of Community WomenThrough participation in the ward based planning and implementation (in WDC &SSC) the community women are becoming active in development processes,gaining mobility, social status and economic skill

1. Women are encouraged to discuss their needs and they in turn areinformed of UP activities through the interactions at the ward level inThe WDC and SSc

2. The community womens supervisory roles in the SSCs were found tohave given them visibility and opportunity to participate in ensuringaccountability of developmental activities. The ToTs for the women inthe UFTs inform them of UP and local development issues thatenhances their confidence to participate in public activities. It isreported that 30 to 40 percent of the UFT members are women.

3. Many of the community women are trying to improve their economicconditions by using some of the income generating training facilitated


20/28

20

by the WDF in many UPZ, for example, packet making from usedpaper that is being taken up by the Tarash UPZ WDF. Some activemembers of the WDF suggested a number of more viable and needbased skill training such as goat rearing, fish farming etc. These canbe e taken up as best practices that be replicated in other Unions.

4. The sewing and cow/goat rearing trainings facilitated by the WDF hasopened up scope for poor women in the community to acquire incomeearning skills. These innovations and can be recommended forreplication in other LIC-LGSP and non project UPs as well..

5. Some community members believe that scheme implementation by themembers of WDC reduces corruption and increase accountability ofthe UPs. As Mr Mozzamel a Madainagar UP WDC membercommented, the ward level project planning an implementation is nowknown by all interested people in the community. There cannot be anymisuse of funds and compromise in quality of work as all transactionsare in the public eye

4.2 Issues for further attentionWhile looking at the effectiveness of the LGSP-LIC projects and its facilitation ofrural womens participation in development activities through the UP functionsthe study has also identified a number of issues that need to be addressed forbuilding on the achievements of LIC. This is important for a continuingstrengthened role of UP women in local development and UP service delivery.These are the following in the case of:

4.2.1 The UP women members1. The UP women members of WDC need further training and practice in the

processes of convening meetings, recording and maintaining registers andconducting meetings. Development of such skills will enable them toparticipate better in other UP meetings.

2. More UP women need to be better conversant with the rules andregulations of the processes. Through this their dependency on chairmen,male members or the Upazila officials in performing their duties would bereduced.

3. Women members were found to lack detail/indepth understanding ofbudget preparation and estimates of schemes although there is muchenthusiasm and eagerness among most to learn. They face difficulties inimplementing earth work and road schemes with estimates by Upazilaengineering office. Often market rates vary, it costs more than theestimates, and they have to pay the extra costs or compromise with hequality of work. Because this is technical; matter the women membersfeel incompetent and therefore are diffident in asserting their issues withthe UPZ office. This issue came up prominently in the discussion with theWDF members in of Hobiganj District.

4. Most of the 30% schemes prioritized by the women in WDCs areinfrastructure development oriented, like earth work for roads, small


21/28

21

culverts, etc. These are labour intensive providing scope for income forthe local poor. It was found that the women and the WDC members feelroads etc are justified as it facilitates mobility particularly that of womenand children. But at the same time they find that there is also a demandfor skill development/ income generating projects for impacting in

changing long term economic conditions of the poorer families. The needfor income-earning skill training for the community women was pointed outin the UP womens and community womens discussions during the fieldstudy.

5. The WDF, WDC women members who are also UP representativespointed out that there is a demand for schemes for improving services. Assuch schemes on improvement of service delivery in education, health,social welfare services are not being suggested currently. Most of the UPwomen members met are not aware/clear of their roles in SchoolManagement Committees (SMC), for example. But they pointed out thatpeople expect them to ensure services in these areas.

6. The WDF members are well aware of the LIC processes of planning andimplementation of the schemes but not equally knowledgeable of all theirmandated functions in the UPs. They cannot yet relate their learning in theLIC committees to UP responsibilities in establishing their and communitywomens rights.

7. Many women are not very well conversant with UP operational manualand the women councilors interviewed feel handicapped by this lacking.The LIC manual lacks detail information on how and to whom the womenmembers should contact for discussing the issues and for advice.

4.2.2 The role of officialsThe LGSP-LIC is being implemented by the Government with the assistanceof the District and particularly the Upazila officials. The DC, UNO, UCO andother Upazila offices are involved guiding and facilitating the processes of theproject. As a pilot the role of the District facilitator in LIC implementation iscrucial. It is a general finding of the study that in cases where the officialsbelieve that decentralization is essential for development they are providingthe right inputs and guidance and it is reflected in the performance of theproject. But it was found that some officials are skeptical of the UPs capabilityand are reluctant in providing proactive assistance.1. On many occasions the Upazila officials are not proactive and are

indifferent to the issues that women face in their work in the project and ingeneral UP activities. It was gathered that the UNO and other officials feeldeprived of their authority to direct and control UP affairs under thedecentralized LIC processes of fund disbursement and utilization.

2. In some Upazila the Cooperative Officers are not proactive in theirresponsibilities with the WDF. It was found that these officers feel theresponsibility as additional and are therefore reluctant to participate.However, in one area the young cooperative officer was enthusiastic and


22/28

22

motivated to have the project office equipment like the computer, printerand allowance for mobile phones etc.

3. The officers also see their roles as mediators and negotiators on behalf ofthe WDF/WDC and do not emphasize on the women learning the rulesand rights and to make themselves aware of the orders and circulars.

4. The often multiple roles of the DDLG as magistrates, Nazarat DeputyCommissioners (NDC) etc. put constraints on their roles in the LG affairsparticularly in the WDF. The DDLGs role was found to be critical inensuring the participation of the officials and in guiding theinstitutionalization of the innovative practices of the LIC process into themainstream UP roles and functions.

5. In some cases the project District Facilitators are less proactive inproviding advice, inspiration and motivation to women members toinnovative in addressing issues. In places where the district facilitators arecommitted, the project implementation is doing well with enthusiasticparticipation of the UP members. In the FGDs with the WDF, the women

were very vocal about the roles of the facilitators and the cooperativeofficers.6. The UP women often use the UPZ officers to intervene in resolving

problems with the UP chairs and male members in the schemesprocesses instead of activating the WDF platform and forum to assert andnegotiate. It was found that many of the UP women members still feeldependent on the project officers and UNO in resolving their problemswith the UP chairs and male members. The UCO of Tarash UZPmentioned that often some of the UP members in the WDC in request himto talk to the UP chair to when a dispute arise. The Nabiganj UNO alsosaid that UP women should be assisted by the UPZ officials in dealingwith the chairs and the male members. This hinders their capacitydevelopment to use the relevant information and guidelines to assert theirauthority in interactions with the male colleagues.


23/28

23

5. Conclusion and Recommendation5.1 ConclusionThrough the membership in the various committees and participation in othercomponents of the LIC including training and practice, the UP women members

have gained confidence in their work. Through the training in the WDC, WDFUPPC the women UP members seem to have learnt their roles in the LIC. Theirexpectation is to learn more about the general UP functions and theirresponsibilities, rights and privileges. Working with the people motivates them,and they feel empowered as they can now access information at the officialslevels. All this indicates a changing pattern of power relationship between thedifferent actors in local governance, the local government, local administration,the community and NGOs and more importantly between men and women in theUPs.

This may not yet be very visible or evident but the views of the women

themselves and the other actors and the community people does point towardsan emerging new equation in this. The chairmen and male members arebecoming more and more inclined to gradually open up not only doors of the UPsto the women members but also being transparent and accountable. The projectconditions of mandatory inclusion of women UP members in the committees andin important financial management functions have had several impacts: a) thechairs and male members have to include women in important decisions in theUP, b) the men in the UP recognize and learn to contribute in removing thestructural and cultural barriers that restrict womens participation, c) the hesitancyand reluctance of women members and community women are being graduallyremoved with encouragement and efforts of the chairmen and male memberswho were found to be interested in ensuring womens participation without whichgrants cannot be availed and used. The community participation including that ofwomen in UP development projects through the WDC, SSC and the UFT iscreating new dimensions of participatory planning and implementation and anenvironment of accountable, service provision.

Despite these important positive results some concerns remain, particularlyrelating to the sustainability of the processes and practices of a moreaccountable and democratic UP. The continuity of the processes of direct blockgrant and its transparent use for development, involving women and malemembers and project office cannot be assured with confidence. The innovativesystem has not yet been internalized by the UPs with the envisaged cooperationof the Upazila officials. The expected extent of womens effective participationand through this their empowerment is still to be tested in a project devoidcondition. In the case of the WDF its heavy dependence on the project officersand the Upazila government officers can delay the process of strengthening theforum as a platform for voicing, advocating and implementing policy on women.As the newly appointed DDLG of Feni district commented, training can giveshape to a system of work but it cannot ensure poverty reduction or cannot


24/28

24

address the structural causes of womens issues, It has so be accompanied withways and means of improving the economic and social status of the communityconcerned. The changes in practice have to be sustained and institutionalized. Atthe same time income earning capacities have to be enhanced and madesustainable.

However the effective activation of the processes of the WDCs, the SSCs andthe UFT involving the community is gradually becoming rooted in the projectdistricts. The participation of the community in ensuring transparency andaccountability of services is facilitating a closer link of the people with the electedlocal government and the government departments. Through this the potential ofsustainable good governance practices in the institutions is being enhanced.Through the project initiated committees, particularly the UFT a local base ofhuman resources is being built. It needs to be maintained and nourished bycontinued support and strengthening of the innovative systems that have beenintroduced.

5.1.1 InnovationsIn the course of the field study of the LIC project some interesting innovations orexperiments were identified. Since the LIC itself is based on learning from theSirajganj project it encourages further innovations to improve the UPs roles inlocal governance.

1. As the WDF Committee became active trying to identify and addresswomens issues the question of funds to carry out the work arose. TheTarash Upazila WDF initiated a project for resource generation. Theypooled some money and purchased a number of cows and sold them towomen in the community. The payments would be made in installments,leaving a profit margin for the WDF. The members hope to create a fundfor WDF through this mechanism. The results of this initiative are yet to beseen.

2. Conflicts often arise between the UP councilors in WDCs that are chairedby male members. He refuses to cooperate in disbursing funds forprojects implemented under the Vice Chair/ female member. In order toavoid such a situation or to resolve it the councilors in a Union in TarashUPZ in Sirajganj district had agreed to open a ward level bank account

jointly operated by the Chairs and Vice Chairs of WDCs. In this mannersmooth and transparent disbursement of funds was expected to beensured.

3. Learning from the experiences of utilizing BGs under LGSP and SBG andEBG under LIC the councilors of Madainagar UP under Tarash UPZ ofSirajganj district decided to set up a computer and internet serviceprovider in the UP complex. The UP earns an amount of Tk. 6000 to 8000per month from this.

4. The enthusiasm of the community to participate in the SSC and the UFT isfacilitating a knowledgeable human resource base at the Union level. The


25/28

25

training of UP members traditionally have been in distance places, awayfrom the union and by people they never meet again. Once the learningfrom the training becomes redundant the participants cannot refresh theskills. With the UFT made of local people and trained as ToTs in LIC andUP affairs and with refresher trainings from time to time the skilled

manpower is retained in the locality. At the same time a substantialnumber of relatively young men and women in the UFTs are gainingknowledge on local governance and other development issues. Local elitepersons, the UFT members and the District Facilitators feel that this is oneof the best practices that will sustain and can easily be incorporated in allLGSP unions.

5. The provision of 30% women prioritized schemes is being accepted by theUPs and the community. This may be taken as an indication that thewomen are listing schemes that not only benefit women but the entirecommunity. This is an innovative way of integrating grassroots levelwomen in the planning process but also of establishing the credibility of

women UP members as responsible leaders in such activity. This isenabling the breaking down of the myth that only the chairs and malemembers have the capacity to do so. Again this is an innovation that canbe replicated as a sustainable practice in all UPs

6. The DDLG of Feni District shared his view on how the WDFs can be madeself sufficient in the resources. He suggested that the WDF members cantrain in fish farming and set up fish cultivation and sale for incomegeneration for the forum. WDF can facilitate similar training by the relevantgovernment UPZ departments for women from the poorer sections of thecommunity. Joint recommendations of the WDF and the DDLG may makesuch groups eligible for credit from the Government or NGOs.

5.2 RecommendationsThe following recommendations are made on the basis of the study of womensparticipation under the LIC project.

5.2.1 General recommendationsTo further deepen the processes of equal participation of men and women in theLIC project of strengthening UPs, leading to changing relationships, somegeneral recommendations are being made. The changing nature and role of theUPs as a democratic, service oriented institution also needs to beinstitutionalized for sustainability.

1. Although the implementation of the LIC project for empowering women inservice provision is showing signs of activation of women in localdevelopment processes, the socio-cultural perception of their traditionalroles is also persisting. Gender training for both men and womencouncilors as well as the community people in the committees should becarried out.


26/28

26

2. The bureaucratic tradition to dominate and control local government is notfully reversed. Efforts on the part of the project and the government haveto be taken in order to reduce it.

3. It was found in the study that although the UP women are providingeffective leadership and management in the LIC committees in ensuring

services they are still not being able to do the same in other UP functions,like the Standing Committees, one third of which they are mandated tochair. The LIC training modules can include this for equipping them toperform similarly in the UP functions outside the LGSP-LIC.

4. Women have to be mandatorily involved in all financial management ofUPs. UP funds have to be jointly operated by the Chair/ Secretary and awoman councilor. In order to foster the emerging collaboration andcooperation between male and female councilors, the male members mayalso be made joint signatories.

5. Focused efforts should be given to institutionalize the practices of WDC,SSC in all functions of the UP. For example in the area of convening

meetings and recording minutes, openness of all transactions, publicincorporation in important activities such as Standing Committees formonitoring services in schools, health units, agriculture etc.

6. District level WDFs need to be formed and made functional so that the UPwomen may advance their advocacy for institutional and policy reform atthe district.

7. The project should in collaboration with the government formulate a policyfor aligning the WDC, SSC, UFT processes with the new ward shabha(2009 Act). In this connection the UP councilors have to be oriented withthe provisions of the new UP Act regarding the ward shabhasand transferof subjects/personnel to the UP.

5.2.2 Specific recommendations1. Training for all councilors on womens roles in UP standing committees

particularly in education, women and health and agriculture.2. Encourage women members in WDC to organize ward meetings on

other UP matters including the work of Standing Committees3. Training for UP and community women to participate and involve in

women related issues i.e. violence against women, anti dowry laws,prevention of child marriage

4. Introduce long tem benefit oriented training e.g. sewing, income skilldevelopment.

5. A circular or order from the Government for the engineering departmentestimates to be based on market rates.

6. Most women members reported that the experience sharing cross UPvisits for the Committees members have been very positive as theylearnt and shared their innovations. Such experience sharing visit toother districts may be encouraged. This will also facilitate mobility andincrease confidence. Facilitate interaction with DC, UNO, DDLG


27/28


28/28

Impacts of the new roles of different actors indicate changing patterns ofrelationships in the local governance scenario, between LGs and localadministration, community members and NGOs. It is also indicative of anemerging balance of relationship between men and women among the LGmembers. Institutionalization of the process through further project and policy

support can be expected to lead to sustainable behavioral and institutionalchanges towards decentralized LGs. In considering this the great expectation ofthe UP women members expressed by a male community member of WDC inPoshuram UPZ of feni District may be remembered. He said women are provingthat they can work for the community given the opportunity. But the situation isstill tough for them to perform. They are in the UPs and want to stay there. Thecommunity is realizing that womens participation along with men provides morebenefit to all. The government should enable the women and the union parishadsto serve the community.

women’s participation in local government in the lic districts in bangladersh

Documents