The Implementation of Rural Poor Programmes in Bangladesh
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THE IMPLEMENTATION OF RURAL POOR PROGRAMMES IN BANGLADESH A Study of the Initiatives of the Government and Non-Government Organisations Tanvir Ahmed Khan Submitted to the Department of Town and Regional Planning at the University of Sheffield in fulfilment of the requirements for the degree of Doctor of Philosophy. August 1989 ABSTRACT THE IMPLEMENTATION OF RURAL POOR PROGRA1+(S IN BANGLADESH A Study of the Initiatives of the Government and Non-Government Organisations Tanvir Ahmed Khan August 1989 This study explores the initiatives of the public and private sector in the context of the alleviation of poverty of the rural poor in Bangladesh. The central thesis is that the public sector has made a significant departure, at least in theory, towards the conceptualisation of the rural poor progranine in a way that the private sector, particularly the non-governmental organisations, have been performing for the last two decades. This study emphasises the recognition by the NGOs, particularly the "moderate ones, that the nature of both the problems and the solutions change in the process. Bangladesh Rural Advancement Coninittee (BRAC), the "moderate" NGO under study, has gone through a "learn as it goes", responsive, inductive process. This study argues quite the contrary with the public sector initiative. It was only prior to the preparation of the Third Five Year Plan that debates were initiated to seriously criticise the rather sterile two-tier cooperative model for rural poor mobilisation around employment generation and acquisition of assets. Presently, BRDB opened the "flood-gate", which so long prevented the NGOs to contribute to the formulation of the training module of BRDB rural poor progranine towards human development and institution building. Although it has been argued that "moderate" NGOs, like BRAC, are not institutions setting about to prove a specific model or theory of development in a dogmatic or absolutist sense, it would be difficult to say that they are not guided by an ideology, as this study argues, when the NGOs themselves have accepted the "Freire-type- conscientisation", which in itself is a loaded concept. This study presents a "mobiuising" NGO, where the concept of "conscientisation" has been shown to transcend the limits of present day thinking of moderate NGO5. To my parents LIST OF CONTENTS List of Tables 5 Acknowledgements 7 Glossary, Abbreviation and acronyms 9 CHAPTER 1 Background to the research 1.1 Background 11 1.2 What has been done to face the challenge 13 1.3 Findings and recommendations from past studies 16 1.4 Rationale of the study 20 1.5 Main purpose 21 1.6 Hypotheses 21 1.7 Methodology 23 1.7.1 Methods of testing hypotheses 23 1.7.2 Methods of data collection and analysis 24 1.7.2.1 Data collection method 24 1.7.2.2 Methods of analysis 29 1.7.3 Evaluation techniques used 29 CHAPTER 2 Theoretical and institutional aspects of development and their relation to the Bangladesh rural sector 2.0 Introduction 31 2.1 Theoretical study of the concept of development 31 2.1.1 Bangladesh and how it relates to the development models particularly the organisations under study 43 2.2 Examination of the characteristics and problems of the Bangladesh rural sector 53 2.2.1 Patronage 53 2.2.2 Strategies 56 2.2.3 Victims of development 61 2.2.4 Comilla 67 2.2.5 Agrarian issues 74 2.3 Programmes other than the two-tier cooperative 76 2.3.1 Deedar Cooperative 76 2.3.2 Grameen Bank 76 2.3.3 District Governor's Scheme 91 2.3.4 Gram Sarkar 91 2.3.5 Iipazila system 92 2.3.6 Non-governmental organisations 93 2.4 Conclusion 93 CHAPTER 3 Examination of the public and private sector organisations involved in the rural poor programmes in Bangladesh 3.0 Introduction 100 Part 1 3.1.0 Introduction 102 3.1.1 Background of BRDB/RPP 102 3.1.2 Key development phases 103 3.1.3 Major objectives 104 3.1.4 Job description of the line functionaries 107 3.1.4.1 ARDOs 107 3.1.4.2 FOs 107 Part 2 3.2.0 Introduction 109 3.2.1 Problems due to structure and policy 109 3.2.2 Examination of the following issues prior to the Mid-term operational review 109 3.2.2.1 Consumption and production credit 110 3.2.2.2 Strike by UCCA 111 3.2.2.3 Search for space outside the two-tier cooperative 2 reflected in the "Banking plan for RPP", Aug. 1984 112 3.2.2.4 Recognition of "Freire" and departure from the two-tier model 113 3.2.2.5 Possibility of institutional flexibility 113 3.2.3 Conclusion 114 Part 3 3.3.0 Introduction 115 3.3.1 Examination of the following issues with literature of recent origin 116 3.3.1.1 Credit utilisation and functioning of primary societies 116 3.3.1.2 Linkage between primary societies, UCCAs and BROB 118 3.3.1.3 Operation of the Sonali Bank 123 3.3.1.4 Training of BRDB 127 3.3.1.4.1 Training module on "Human development and institution buildingu prepared for BRDB/RPP 130 3. 3. 1.4 .2 Examination of the training module related to the following issues: 133 3. 3. 1.4.2. 1 Core elements of a participatory process 134 3. 3. 1.4 .2.2 Role of the intervenor 140 3. 3. 1.4.2.3 Entry of the intervenor into the community 143 3. 3. 1.4.2.4 Investigation, reflection and analysis 144 3. 3. 1.4. 2.5 Emergence of organised actions 147 3.3.1.4.2.6 Participatory organisation 148 3. 3. 1.4.2.7 From animation to facilitation 149 3.3.1. 4. 2.8 Transition from external to internal 150 3. 3. 1.4. 2.9 Pre-requisites of an animator 151 3. 3. 1.4. 2. 10 Pre-requisites of an internal worker 153 3.3.2 Conclusion 154 Part 4 3.4.0 Introduction 163 3.4.1 Background of BRAC 164 3.4.2 Key development phases 165 3.4.3 Major objectives 167 3.4.4 Job description 169 3.4.5 Conclusion 170 Part 5 3.5.0 Introduction 170 3.5.1 Problems due to structure and policy 171 3.5.1.1 Core elements: Conscientisation 171 3.5.1.2 Participatory organisation 174 3.5.1.3 Strengthening economic base 178 3.5.1.4 Multiplication and linkage 182 3.5.1.5 Value system 184 3.5.1.6 Role of intervenor 184 3.5.1.7 Experience in animation and facilitation 186 3.5.2 Conclusion 186 CHAPTER 4 Examination of the human resource function, study of the background of line functionaries and examination of the organisational environment of the existing and desired situation PART 4.1.0 Introduction 192 4.1.1 Age 193 4.1.2 Rural urban background 194 4.1.3 Main occupation and income of father 196 4.1.4 Father's income 197 4.1.5 Family members being supported 197 4.1.6 Extra income 198 3 4.1.7 Education 198 4.1.8 Length of service 199 4.1.9 Employment status 200 4.1.10 Promotions 201 4.1.11 Inservice training 201 PART 2 4.2.0 Introduction 205 4.2.1 Rank ordering and average score on 12 dimensions 206 4.2.2 Perception of the respondents of existing environmental dimension 212 4.2.3 BRAC and BRDB organisational environment perception 215 4.2.4 Comparison of "ARDO/PO", "10/PS" and "OTHERS" category of line functionaries on organisational dimension 218 4.2.5 The desired organisational environment 219 4.2.6 Conclusion 225 CHAPTER Economic analysis of BRDB and BRAC 5.0 Introduction 229 Part 1 5.1.1 Logical Framework Analysis: BRDB 230 5.1.2 BRDB Work Breakdown Structure 231 5.1.3 BRDB costing by activity 233 5.1.4 BRDB Benefit by activity 233 5.1.5 BRDB catalog 235 5.1.6 BRDB Activity text file 236 5.1.7 Results of the analysis 240 Part 2 5.2.1 BRAC Logical Framework Analysis 243 5.2.2 BRAC Work Breakdown Structure 244 5.2.3 BRAC costing by activity 246 5.2.4 BRAC benefit by activity 247 5.2.5 BRAC catalog 250 5.2.6 BRAC Activity text file 252 5.2.7 Results of the analysis 259 5.3 Conclusion 263 CHAPTER Examination of the participatory development process in Bangladesh as perceived by policy planners, academics and practitioners 6.0 Introduction 265 6.1 Response to question one: Important elements of the participatory development process 265 6.2 ResDonse to auestion two: Additional elements that contribute td the participatory process 266 6.3 Response to question three: Role of an animator 267 6.4 Response to question four: Self-liquidating role of animator 270 6.5 Response to question five:Strengthening economic base as part of an overall process to develop alternative value systems 271 6.6 Response to question six: Values of anti-participa- tory structure 272 6.7 Response to question seven: Whether target group should be stimulated to identify alternative values 273 6.8 Response to question eight: Target group lacks staying power when economic base remains poor 276 6.9 Response to question nine: Should poor take alternative forms of self-reliance? 276 6.10 Response to question ten: Useful to organise 4 participatory organisation? 277 6.11 Response to question eleven: Need for multiplication and linkage 278 6.12 Response to question twelve: Should leadership grow among the bittoheens? 280 6.13 Response to question thirteen: Usefulness of BRDB 282 6.14 Response to question fourteen: Usefulness of BRAC 283 6.15 Response to question fifteen: Possible degeneration 284 6.16 Conclusion 286 CHAPTER 7 Examination of a "mobilising" Non-governmental organi sat ion 7.0 Introduction 289 7.1 Background of Gano Shahajya Songstha (GSS) 289 7.2 Objectives 292 7.3 Core elements of GSS in the process of mobilisation 293 7.3.1 Conscientisation 294 7.3.1.1 First level 295 7.3.1.2 Second level 296 7.3.1.3 Third level 297 7.3.2 Strengthening the economic base 297 7.3.3 Multiplication and linkage 299 7.3.4 Participatory organisation 300 7.4 Emergence of organised action 302 7.5 Conclusion 303 CHAPTER 8 Summary and Conclusion 305 APPENDICES APPENDIX 1.1 Letter to Dr.