UCLG PROFILES

People's Republic of Bangladesh

গণp জাতntী বাংলােদশ (Gônoprojatontri Bangladesh)

Capital : Dhaka Population : 158,570,535 (July 2011 est.) Area : 143,998 sq km

1. Introduction many years, but a democratically elected government was re-established in 1991. Parliamentary elections took place in 1996, 2001 and 2008 with a peaceful transfers of power.

The People's Republic of Bangladesh comprises of three basic organs: The Legislative: resides in the 300 members (45 reserved for women) of unicameral National Parliament or Jatiya Sangsad Parliament, elected directly by popular vote from single territorial constituencies. Members serve five-year terms.

The Executive: The President, elected by the members of Parliament, is the Head of the State. The President holds no more than two times five years term of office, consecutive or not. The executive power of 1.1 General Information the Republic is exercised by the Prime Bangladesh is a located in Minister, appointed by the President from South Asia. Most of its land area is the members of Parliament. Prime Minister bordered to except for a small part leads the Cabinet, which comprise with Myanmar in the far southeast. The Ministers of State and Deputy Ministers. southern border is the 580 km coastline adjacent to the Bay of . Estimated The Judicial: The Supreme Court of population in July 2011 is 158,570,535 Bangladesh is the highest judicial chamber, people with growth rate of 1.566%. comprises of the Appellate Division and the Bangladesh has land area of 143,998 sq High Court Division, headed by the Chief of 1) 2) km . 2011 GDP is 7,875 billion Taka . Justice with the assistance from a number Human Development Index (HDI) in 2010 of other judges. The Chief Justice and 3) is 0.469 according to UNDP data . other judges are appointed by the President. A Judge holds office until he After a violent struggle for liberation from attains the age of sixty seven years in 1971, Bangladesh was established as a parliamentary democracy. 1.2. Overview of Local Government’s The country was under military rule for Development Bangladesh has a long tradition of local government. The structure and functions of 1 CIA factbook local government have been evolved in 2 Board of Investment Bangladesh consonance with socio-economic and 3http://hdrstats.undp.org/en/countries/profiles/BGD.html

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political transformation of the country. of 10-12 square miles. Later, through the Nevertheless, the Bangladesh Constitution enactment of the Bengal Self- (Articles 9, 11, 59, and 60) made Government Act 1919, the former three- provisions for establishing local tier system was replaced by a two-tier government as an inseparable organ of system consisting of union board and state admnistration to safeguard board. democratic values and to secure economic and social justice. These four articles of the From 1947-1971, Bangladesh formed part constitution together constitute the of the eastern part of Pakistan, in which supreme source of all laws, ordinances, the Basic Democracy system introduced a and rules relating to the local government four-tier local government set-up: union system of the country. council, thana council, district council, and divisional council in ascending order. The evolution of local government in the did not follow any In 1971 Bangladesh attained independence specific laws or rules. It experienced and dramatic changes were brought in the dramatic changes in its nature based on structure of the local government in the defining characteristics of the ruling accordance with changes made in the regimes. From 1765 until 1947, governance system to match the Bangladesh was under the rule of the Raj ideological shift of the ruling regime. The in India, and other tribes and ethnic groups early years of independent nationhood from the Mughals and other Muslim rulers were troubled times; between in late 1974 to Hindu and Buddhist potentates. and early 1991 the nation was governed through various states of emergencies, 1.3 History of local government coups and dictatorial leaders. During pre-Mughal era, each village administered its own affairs. During In 1991 free elections took place, though medieval age, village administration was citizen unrest and social instability organized under the Village Panchayat, continued and none of the elected parties responsible for collecting revenues, made good on their election pledges to maintaining law and order, overseeing introduce elected bodies at all education, irrigation, religious rituals, and administrative levels.This instability moral behaviors of the villagers. Later persisted until 2007, for in January of that during the Mughal period, the revenue year the army once again took control, collection system became more systematic, quelling massive street protests and and Sarkar/ Chakla, and Pargana became operating henceforth a military-backed the nerve centers of both general and caretaker government. revenue administration. Voter turnout achieved 80% in the 2008 With the inception of the Permanent general elections, which was the highest in Settlement System, the British colonial the history of Bangladeshi elections. The rulers replaced the indigenous system with election itself resulted in a landslide victory the British model of local governance. The for the Bangladesh Awami League (AL), Pargana and the Panchayat system were defeating the BNP by scoring 263 seats out abolished and civil and criminal law 300. became the basis of local administration and landlords became local rulers. Over the years the successive governments in Bangladesh, have simply Under the Local Self-Government Act twisted the inherited local bodies to suit 1885, a three-tier system came into their political needs. Due to frequent operation: district board for district, local changes and experimentations, the board for , and union committee institutions have suffered and could not for several spreading over an area take a permanent and viable shape. There II

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is also a noticeable tendency towards directly or by its representatives at the building and expanding institutions rather district level. hurriedly without going through necessary stages of development and maturation. Administrative divisions: in relation

2. Territorial Organisation

2.1. Government Tiers and Their Nature Administratively, the central government is territorially divided into seven administrative divisions which are further subdivided into 64 .

Administrative divisions: by number

3. Local Democracy

3.1. Local Political System Local government bodies in Bangladesh are managed by a combination of elected people and appointed personnel. The Chairman and members of the Zila Parishads, including women, are all elected by direct vote. In addition, elected Chairmen of Upazilas and Source: Statistical Pocket Book Bangladesh- would also become members of the 2010, Bangladesh Bureau of Statistics Parishads, without voting rights. The District Commissioner (or Chief Civil Urban and rural areas are divided Administrator) would serve as Executive according to income and size by local Officer of the Parishad while the MPs governments. In rural areas, districts are elected for the Zila would be available as further organized into 483 Upazila Advisers to the Parishad. In the case of the Parishads. There are about 4,498 Union appointed people, for such levels as the Parishads further sub-divided into wards. Thana/Upazila Parishad, Zila Parishads and Urban areas have two alternative urban local governments (Pourashavas and structures: the six largest have City Corporation), there is both staff Corporation status, the remainder known directly recruited by the local body as well as Pourashavas or Municipalities, classified as some sent on deputation (i.e. on the basis of finance and income, which secondment) from the central government. are further sub-divided into wards. The UP Appointments at Gram and Union Chairpersons, Pourashava and City Parishads are all locally done and the Corporation Mayors are directly elected by people selected are also generally from popular vote of the entire constituency within the locality. while the ward members/councilors are elected by their respective constituencies. The Pourashava (Municipal) Parishads and Administratively all employees and senior City Corporation Parishads are elected officials at the devolved Government levels directly by the people. Each Poura Parishad are appointed by the central government is supposed to have a Chairman and a III

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Commissioner for each Ward, while a City central government. The autonomy and Corporation is supposed to have a Mayor authority of local governments are very as head of the Parishad (Council) and a limited. The present Awami League Commissioner for each Ward. The number government (in power on a five-year term of Wards depends on the size of the city. since June 1996) has taken steps to empowerment local governments, Although women can contest for direct beginning at the Gram (Village) Parishad to election, there are also reserved seats for the Zila (District) Parishad. The Gram them. These are filled through election of Parishad and Union Parishad Bills have the Chairman/Mayor and Commissioners been approved, and bills giving greater only. The tenure of an elected urban local autonomy to Upazila/Thana Parishad and government is five years. The latest City Zila Parishad in the development phase. It Corporation elections were held in is hoped that the current regime’s 1994. commitment to empowering local governments will be ongoing. 3.2. Citizen Participation Chapter 3, Article 59 of the 1972 4.2. Supervision of Local Government Constitution emphasizes citizen Currently local governments are subject to participation as the foundation of local strong control from higher level governance, implying direct representation authorities, especially the central in the local government bodies and direct government. Union Parishad is subject to participation of the citizens in local affairs. income expenditures audit from the central However, frequent modifications in local government. Upazila/Thana Parishad and government structure have reduced the Zila Parishad is subject to similar control possible spaces for the participation, and from central government, in addition to the extent and quality has been variable. internal audits.

The Local Government Commission has Central government experts control over also recommended special participation the local level through legislation and methods for various disadvantaged groups detailed regulations relating to: in local body activities, through nomination - conduct of election in committees. - business - powers and duties of chairmen At village level, citizen participation is very - assessment of taxes much in practice in all NGO led programs, - preparation of budget as well as in many government programs. - making of contracts As for the urban areas, local level (i.e. - appointment and service matters of Ward level) participation has been sought, local government employment but with limited success so far. The ability - accounts and audit to hold a referendum is guaranteed by Act - and many other important areas. of Parliament, most notably the 1991 Even when local governments make Referendum Act, but is related principally regulations, these must be approved by to constitutional amendments. the central government.

Central government also has the final 4. Supervision by central authority in the determination of the size government and boundaries of the local body's as well as deciding the structure and composition of the local bodies. In addition

there is substantial control over the 4.1. General Issues personnel system of local bodies, The present system of local government in particularly the appointment of the Chief Bangladesh is under heavy control by the

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Executive Officer in City Corporations and  Conducting socio-economic household Pourashavas. surveys, every five years, and maintaining vital statistics (registration The Central government set the functional of births-deaths, marriage, etc). jurisdiction of local bodies. Aside from  Natural resource management and designated functions (as in ordinance), development plans. central government can assign any other  Supervise management of primary function to a local body, and also settles educational institutes; public inter-institutional disputes within local campaigns of support to education of body areas. children and adult literacy.  Improving public awareness of primary In terms of finances there is wide and strict health care. supervision of local expenditures. In  Maintain law and order addition to financial control in general, the  Ensuring citizen participation in local central government can reduce or enhance and central government development Grant-in-aid to local bodies, even to city planning. authorities like Dhaka.  Encourage co-operatives and NGOs. The Central Government asserts control  Initiate participatory development of and supervision over general local roads, bridges, culverts, etc. administration of local bodies, including of  Supporting agricultural development large City Corporations. They may order an  Encouraging and initiating tree inquiry into the affairs of a local body plantation programs. generally or into any particular affair either  Assisting various organizations in their on its own initiative or on an application development efforts. made by any person to the government. Union Parishads functions are quite similar Finally the central government may to Gram Parishad functions with the dissolve a local body on charge of gross addition of adoption and implementation of inefficiency, abuse of power, or inability to poverty alleviation programs directly and meet financial obligations. However, through NGOs and co-operatives. instances of such drastic action have been rare in recent time. The Thana/Upazila Parishads are entrusted with similar functions with Gram Parishads and Union Parishads with the addition of 5. Local government making integrated 5-year development responsibilities plans for the Thana/Upazila based on the plans submitted by the Union Parishads. Rural and urban local government bodies are entrusted with a large number of Zila (District) Parishads are responsible for functions and responsibilities relating to monitoring activities of the Thana/Upazila civic and community welfare as well as Parishads, implementing district level local development. These responsibilities economic, social and cultural development are laid down in the Gram Parishad and programs and preparing project proposals Union Parishad Bills (approved on 4 for road, bridges and culverts. September 1997), ansd the Thana Upazila/Zila Parishad Bills which have yet 5.2 Urban Local Government Functions to be approved in Parliament. Pourashavas (Municipalities) and City Corporations constitute the two types of 5.1 Rural Local Government Functions urban local governments. The four largest The Gram Parishad functions are as cities of Bangladesh (Dhaka, Chittagong, follows: Khulna and Rajshahi) are City Corporations. The functions of Pourashavas V

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and City Corporations are basically similar  Establishment of veterinary hospitals, with one important difference: the 1997 registration of cattle sale and Pourashavas Ordinance categorized the improvement of livestock. functions of Pourahsavas as compulsory  Celebration of national holidays. and optional. This categorization does not  Reception of distinguished visitors. apply to City Corporations. However, for  Establishment of public libraries and both Pourashavas and City Corporations reading rooms. functions continue to be seen as  Promotion of community development compulsory and optional. schemes.

 Naming of roads and numbering of Mandatory Functions: houses.  Construction and maintenance of

roads, bridges and culverts. The Pourashavas/City Corporations are  Removal, collection and disposal of empowered to perform a variety of socio- refuse. economic and civic functions, as described  Provision and maintenance of public above. However, in practice they cannot streets and street lighting and trees. perform all these functions, owing to sever  Control over traffic and public vehicles. lack of funding caused by poor and  Provision and regulation of water irregular collection of taxes, non-realization supply. of taxes from government, semi-  Establishment and maintenance of government and autonomous organizations public markets. for years together and insufficient  Regulation of unsanitary buildings and government grants. prevention of infectious diseases and epidemics. The functions actually performed are:  Registration of births, deaths and  Construction and maintenance of marriages. roads, bridges and culverts.  Provision and maintenance of slaughter  Removal, collection and disposal of houses. refuse.  Provision and maintenance of drainage.  Provision and maintenance of street  Control over the construction and lighting. reconstruction of buildings.  Provision of water supply.  Provision and maintenance of  Establishment and maintenance of graveyards and burning places. public markets.  Provision, maintenance and regulation Optional Functions: of graveyards and burning places.  Checking food products for  Registrations of birth, deaths and adulteration. marriages.  Control over private markets.  Maintenance of slaughter houses.  Maintenance of education institutions  Control over private markets. and provision of student stipends.  Provision and maintenance of parks  Provision of flood and famine relief. and gardens.  Provision and maintenance of parks  Naming of roads and numbering of and gardens. houses.  Establishment of welfare homes,  Provision of nominal stipends to orphanages, prevention of begging and primary education institutions. organization of voluntary social welfare  Slum improvement. services.  Establishment of public dispensaries, Apart from the formal functions described provision of public urinals and latrines. above, the Pourashavas/City Corporations perform some additional functions such as

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issuance of certificates and settlement of appointments are made by the Mayor. He petty disputes (over ownership/control of is also the supreme chief executive of the land, houses and markets) through Corporation making all major negotiations discussions with concerned parties and and signing and contracts. For other City with the help of commissioners and other Corporations the CEO makes functionaries. appointments.

During the past decade, 20 Pourashavas Except the Union Parishads, all other local and the four City Corporations have also government bodies have officials on been carrying out an additional function secondment, which belong to their (on project basis) of slum improvement in respective cadre services. Their parent partnership with UNICEF. Dhaka City department indicates their service Corporation has even made slum conditions. On the other hand, officials and improvement an integral part of activities employees directly recruited by the Union with its own funding and has targeted Parishad, Thana/Upazila Parishad and Zila programs for slum dwellers and street Parishad are guided by the Local Council hawkers. Service Rules. In the case of Pourashavas and Corporations, these are guided by 5.3 Human resources their respective service rules. The Special Staffing for the different tires of local Affairs Division under the Prime Minister's government is outlined in Gram Parishad Secretariat is responsible for employees of and Union Parishad Bills. Under this Hill District Local Government Parishads. system Union Parishad would have a full- The Ministry of Local Government, Rural time Secretary, 9 Mahalladars Development and Co-operatives is the (Neighborhood Workers) and 1 central personnel agency for the (Caretaker). There would also be a Tax management of Local Council Service and Collector and an Assistant Secretary Pourahsava and Corporation service. /Accountant positions. The Chairman of the Union Parishad is the Chief Executive. In 5.4 Staff training and social protection this system the Thana/Upazila Parishad Training for elected representatives, would represent officers and employees of appointed and nominated personnel are all central government administrative and provided at the National Institute of Local development agencies. All officials are Government (NILG) in Dhaka. Training is answerable to the Chairman. In case of the generally limited to officer levels, some are Zila Parishad; the secretary is a deputed even sent abroad for short-term training. (seconded) official from the government. Lower level technical or general staff are All other officials such as the administrative rarely given any training or chance to officer and others are employees of the improve their skills. Zila Parishad. Salary scale and service conditions are Pourashavas and City Corporation have similar to other government services in the their own organization for personnel. Each country with added benefits such as house of the four City Corporations and several rent allowance, medical allowance, Pourashavas have Chief Executive Officer contributory provident fund, gratuity (CEO) seconded from the central civil benefits, festival bonus, etc. Normal service. The CEO assists the Chairman or retirement age is 57. Class III and Class IV Mayor in the affairs of the Pourahsava or in large corporations and Municipalities Corporation. He or she is the custodian of also form unions to uphold their rights and all Pourashava/Corporation records and privileges. Enforcement of disciplinary may also exercise magisterial powers. action often becomes difficult due to union pressure. There is no available information The case of Dhaka City Corporation is an regarding the number of public officials. exception in that all senior level VII

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Sources of Municipal Revenue 6. Finances locales

6.1 Local Revenues Most major tax bases remain under the control of the central government and while own-source revenue potential varies vertically across the different levels as well as horizontally across different entities at each level.

Local bodies in Bangladesh are in constant shortage of funds. Tax management of Municipalities is weak due to poor assessment system, inefficient manpower, legal issues and corruption resulting in Source: unescap.org poor tax collection. Own-source revenues are taxes, rates, fees and charges levied Urban local bodies raise 55-75 percent of by the local body as well as rents and the revenue from their own source while a profits accruing from properties of the local significant proportion comes from body and sums received through its government grants. Nowadays, foreign or services. Holding taxes is the most international project funds also contribute important own-source revenue of local a significant share of corporation's budget. bodies. Loans and voluntary contributions are rare. 6.2 Local Expenditure Municipal expenditures are mainly geared Contribution from individuals and towards physical infrastructure, which institutions, government grants, profits makes up 30-40% of total expenditures. from investments, receipts accruing from Public Health in turn accounts for 15-20% the trusts placed with the local bodies, of total budgets and administrative loans raised by the local body and expenditure average between 7-16%. proceeds from such services are another Expenditures on social sectors are source of income governments may direct negligible. to be placed at the disposal of a local body. Non-tax revenues are of two kinds: fees and tolls and rents and profits on properties of the local bodies.

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Sources:

Asian Development Bank (2011). “Asian Development Outlook 2011 Update.” Asian Development Bank. Mandaluyong City, Philippines. 2011.

Bangladesh Bureau of Statistics (2009). “Statistical Pocket Book Bangladesh 2009.” Bangladesh Bureau of Statistics, the People's Republic of Bangladesh. Dhaka, Bangladesh. 2009. From:

Board of Investment Bangladesh (2011). “Bangladesh at a Glance.” Board of Investment Bangladesh, Prime Minister's Office, the People's Republic of Bangladesh. Dhaka, Bangladesh. 2011. From:

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Economic Adviser's Wing, Finance Division, Ministry of Finance (2010). “Bangladesh Economic Review 2010.” Ministry of Finance, the People's Republic of Bangladesh. April 2010.

Paul, Sohini and Goe, Pooja Ramavat (2010). “Decentralisation in Bangladesh.” NCAER New-. New- Delhi, India. September 7, 2010.

The People's Republic of Bangladesh (1972). “Constitution of the People's Republic of Bangladesh.”

United Nations Economic and Social Commission for Asia and the Pacific (2011). “Local Government in Asia and the Pacific: A Comparative Study, Country paper: Bangladesh.” Bangkok, Thailand. 2011. From:

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