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| Location : |
Dhaka, BANGLADESH |
| Application Deadline : | 16-Sep-13 |
| Additional Category | Democratic Governance |
| Type of Contract : | Individual Contract |
| Post Level : | International Consultant |
| Languages Required : |
English |
| Expected Duration of Assignment : | 36 working days |
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Background
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Upazila Governance Project (UZGP) & Union Parishad Governance Project (UPGP): The
platform for local governance in rural Bangladesh is provided by the
Union Parishads (UP) and Upazila Parishads (UZPs). The elected local
government institutions are responsible for coordinating many aspects of
local social and economic development in Bangladesh. For the last
decade (based on a pilot UNDP and UNCDF project in Sirajganj district),
some UPs have recipients of discretionary fiscal transfers, which they
employ for development activities through an open process of citizen
involvement. The success of this effort has led to a major scale up of
the good practices nationwide by the government, in the form of the
Local Government Support Programme (in its second phase), a new project
to strengthen Upazila Parishads (UZGP) and a project to develop and
pilot the next generation of innovations with Union Parishads (UPGP).
The
prime objective of UZGP is to strengthen capacities of local
governments and other stakeholders to foster participatory local
development service delivery for the MDGs. The key outcome focuses on
(a)strengthened Upazila Parishads as more functional, democratic,
transparent and accountable institutions; (b) Strengthened Planning and
Budgeting system at UZP with MDGs orientation for pro-poor service
delivery mechanism; and (c) Strengthened technical capacity of Local
Government Division for effective policy review, monitoring, lesson
learning and capacity development of LGIs for improved Local Governance.
The Union Parishad Governance Project (UPGP) and Upazila
Governance Project (UZGP) are a part of the overall programmatic
framework for UNDP and UNCDF support to the Government of Bangladesh in
the area of Local Governance reforms, supported by the European Union,
and the Governments of Switzerland (SDC) and Denmark (DANIDA).
Over view of service delivery context and role of functional assignment Bangladesh:
Bangladesh
has impressive achievements in releasing households from poverty,
significantly increasing the number of children (particularly girls)
attending school, and access to clean water. Child survival has improved
rapidly. Bangladesh is among the 16 countries who have received UN
recognition for being on track to achieve MDGs. The impressive
achievements have been a function of a multi-pronged effort by the
Government of Bangladesh and its Non-Governmental partners, with
significant support from external development partners.
Leadership
for the large scale efforts in the health and education sectors have
come from the Government, through the respective sector Ministries. In
addition to policy guidance, the leadership has been exercised through
preparations of sectoral plans, directing both capital investments as
well as operational expenditure, and managing the bulk of staff in these
sectors, who work at the central and local levels.
In recent
years, a major effort has been initiated to strengthen the role and
capacity of local governments, at the Union Parishad and Upazila levels,
to contribute to service delivery. Legal provisions to play these roles
have been clarified and expanded, and fiscal transfers to local
governments have grown in size. This has meant that local governments
are increasingly looking to play a meaningful role, alongside centrally
designed and funded initiatives, in the health and education sectors,
which serve the vast majority of the people.
All the same,
recent studies carried out for the LGD suggest that the bulk of services
are traditionally managed directly by the central government officials
and their field functionaries without systematic involvement of the
Union Parishads either in design or implementation process, allowing for
a sense of institutional "isolation' and ‘incapacity’ of local
governments in providing critical services to the rural poor.
The
limited role of the local governments also needs to be viewed in the
context of the available capacities at their command, as well as the
technical and self-contained nature of major service provision units
(schools and health care facilities). On the other hand, there is
growing recognition that the supply side efficiency needs to be
complemented with beneficiary mobilization (like parent – teacher
associations and the like) in order to address crucial gaps, such as
school drop-outs and ante-natal care. In other words, there is evidently
room for leveraging the comparative advantages of local governments in
furthering the effectiveness of service provision. Insights into this
important theme are likely to provide a basis for enabling local
governments to evolve into effective partners of the central ministries
in achieving the country’s targets and the aspirations of local
communities.
Rationale for Policy Research: This
policy review is to take place in the context of the effort of the
Government of Bangladesh to ensure effective performance of roles
assigned to local governance institutions through the Upazila Parishad
and Union Parishad Acts, which have broadly defined areas of work to
these local governments without clearly specifying the assigned
functions. The imperatives to establish and assign functions to LGIs
fall into three broad categories: technical, political, and financial.
From the technical perspective, the stated priority is to improve
efficiency and effectiveness in service delivery and oversight. From the
political perspective, the bunch of priorities range from
redistributing power from central to local institutions, increasing the
autonomy and scope for local leadership, and facilitating the reduction
of ethnic and/or regional imbalances. From a fiscal perspective, the
main priority of initiatives promoting decentralization is often stated
as improving cost efficiency, whereby local institutions have greater
accountability to mobilize and manage resources and revenues, as well as
functions and expenditure. While the raison d'etre for decentralization
and functional assignments often draw strength from political
imperatives, and the principle of subsidiarity, the ability of such
initiatives to deliver benefits and generate governance results of such
efforts depends heavily on the extent to which they actually improve the
delivery of services.
The manner in which decentralization and
decisions regarding assigning functions to different levels of
government (or administration) falls into three broad approaches. The
first approach is deconcentration, where specified tasks and
responsibilities for outputs and results are transferred from higher
level offices (say ministries, departments or national bodies) to other
subsidiary offices under their vertical line of control (regional,
district, sub-district offices). The second approach is delegation,
where selected tasks, and related responsibilities for results and
outcomes is transferred by the national bodies to organizations not
directly under their control – to regional or local governments,
semi-autonomous entities like specialized institutes, and NGOs. The
third approach is devolution, where a closely related set of tasks, as
well as the authority, responsibility and funds (at least partial) to
implement them and achieve the related results and outcomes, are
transferred from the national government to local governments. In
practice, effective assignment of functions across different tiers of
government usually involves all three elements. The assignment of
functions is also closely tied to changes in the manner in which the
assigned functions are financed, extent of authority to manage the
expenditure (and possibly any related revenue), oversight of personnel
that come with the functions, and flexibility to borrow or seek
additional external grants and assistance.
Several operational
issues arise when functional assignments are left at a broad level.
While legislation on decentralization seldom has capacity to go beyond
specifying intent and guiding principles, it is usually secondary
legislation or sectoral regulations that operationalize functional
assignments. A major gap, therefore, in the early stages of politically
driven decentralization is the absence of formal and clear assignment of
functions. The issues closely related to this gap are ambiguity in
roles and tasks, overlapping areas of work, and absence of mechanisms to
deal with tasks that have to be shared or carried out jointly. Another
serious gap that offices assigned with new functions and
responsibilities face is in finding adequate resources to discharge the
assigned functions effectively and deliver services of significantly
better quality that communities often expect. While lags in decisions
regarding inter-government transfers constrain the local government
institutions that have been assigned new functions and responsibilities,
the transferred service delivery machinery also encounter challenges in
securing funds for routine work. These issues are further exacerbated
by non-availability of personnel that would enable the offices that have
been newly assigned some additional functions.
Several
international good practices are available in terms of methodologies to
analyze complex service delivery functions as well as to implement the
functional assignments. The decentralization experiences adopted in the
Indian states of West Bengal and Kerala are often discussed in
Bangladesh. While the framework for decentralization was provided by
amendments to the Constitution in India, the best practices related to
functional assignment have primarily been the result of detailed
subsequent exercises by state governments, particularly in Kerala.
Technical
exercises focused on particular sectors, such as education and health,
have been carried out in several countries with the assistance of
international development agencies. The key steps in establishing
effective functional assignments in relation to services, begins with
identifying the functional components that contribute to the service,
and as well as identifying the key offices/stakeholders involved in
these components. This is followed with a mapping of the current role of
each office in implementing the functional components. The third step
would be proposals for changes, taking into account the political,
technical and financial conditions. The fourth would be consultations
among the stakeholders (national bodies and local government) to arrive
at a consensus, leading to preparation of regulations and directions.
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Duties and Responsibilities
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The projects seek to support the Local Government
Division (LGD) to conduct a policy review of the current assignment of
functions to Local Governments (Union Parishad and Upazila levels) in
delivering of health and education services, and derive recommendations
for LGD to provide guidance on functions and expenditure in these
sectors, as well as a knowledge base to initiate capacity development in
this regard.
Objective of Policy Research: The objective of the study is to:
Conduct
the policy review of the current assignment of functions to Local
Governments (Union Parishad and Upazila levels) in delivering of health
and education services, and derive recommendations for LGD to provide
guidance on functions and expenditure in these sectors, as well as a
knowledge base to initiate capacity development.
The
International Consultant will lead the assignment, with the support of a
national expert team being hired under separate procurement process, to
carry out a full-fledged functional review of the role of local
governments (Union Parishad and Upazila Parishad levels) in the
delivering services related to the health and education sectors, and
provide evidence based recommendations to strengthen the performance of
these local governments in terms of scope of service delivery functions
they should take on, the enabling policy framework to perform the
proposed functions, and the manner in which resources should be provided
to carry out the functions.
Scope of Policy Research:
The main components of this assignment will include:
- Identifying and proposing a detailed methodology, based on international good practices, for conducting this functional review;
- Review
of legal provisions and mandates related to the role of local
governments in delivering services in the health and education sectors;
- Review
of legal provisions and mandates of sector ministries (health and
education) that assign roles to different levels in delivering services;
- Comparative
analysis of local government role in service delivery with a relevant
regional model – say Kerala or West Bengal, in India;
- Prepare an introductory note for LGD’s consultations with health and education ministries;
- Carry
out a small set of well-structured field observations and
consultations, on the current state and scope of services being
delivered to households;
- Explore, reflect and identify
areas and options for actions whereby local governments could contribute
to improve service effectiveness;
- Prepare a discussion
note for LGD’s review of potential proposals for local governments to
contribute to improve service effectiveness, gender responsiveness and
inclusion, and discussion with sector ministries;
- Recommend
the clarified functional assignments for local governments, the
enabling policy framework to perform the proposed functions, and the
manner in which resources should be provided to carry out the functions.
The policy research will integrate all LGI
perspectives and stakeholders through range of research tools. The
secondary research tools will be employed to focus on reports of earlier
governmental review commission & committees and any similar work of
the civil society. The critical research(s) of at least last 5 years,
which are complementary to the objectives of the current research, will
also be consulted along with the selective work of development partners
to Bangladesh.
The primary research tools will be used to bring
in operational ground realities and existing legislations in perspective
both in terms of challenges and opportunities for the LGS tiers. The
stakeholder perspective will also be integrated from Central to all LGIs
level focusing existing institutional mandates and delivery mechanism
in terms of funds, functions and functionaries to identify gaps and way
forward towards the policy reform.
Composition of Research Team: The International Consultant (IC) will lead the policy research and the nationally selected firm’s team of expert.
The
national team will be separately procured through competitive bidding
but operationally will have close link to this TOR. The expected
operational details and coordination requirements, as elaborated in this
section, are to inform prospective IC about the proposed national team
composition and working arrangements. IC that will take part in bidding
process under the existing TOR will have no role and/or responsibility
in connection to hiring of the national team/ firm. The details in this
section & TOR are to ensure that the IC is well informed about the
expected team dynamics.
There will be 2 separate procurement
processes for engaging (a) firm and (b) international consultant. Since
hiring of the international consultant and the firm will be done
separately, UNDP will follow due process in informing and introducing
both the international consultant and the selected firm post completion
of the procurement process for instant linkage and coordination.
Research team & Responsibilities:
International Consultant (to be hired under exiting TOR ) The
International Consultant (IC) will lead the policy research. He will be
engaged for a period of 6 weeks i.e. 36 working days spread over 15
weeks/3 months. The International Consultant, in close coordination with
the firm will be responsible for policy research design, methodology,
tools and work planning. The first result of coordination will be an
inception report.
The International consultant in coordination
with the national firm will be responsible for research design,
methodology, tools and work planning. Collectively, they will be
translated into an inception report. In parallel to the inception
report, IC in close coordination with selected firm/team, will prepare a
coordination matrix to implement the research highlighting respective
roles, responsibilities and oversight. This matrix will have time bound
milestones for both national team and international experts. The matrix
will highlight both virtual and in country based input and level of
engagement of international consultant along with mode of interaction.
The agreed milestones will be linked to the financial delivery. The
Project designated focal person will oversee coordination (see
institutional arrangement section).
The selected international
consultant will be required to have at least 2 visits to Dhaka i.e. at
the beginning to ensure design and methodology of research with the
research firm and at the end for finalization of analysis, first draft
and presentation to key stakeholders. The engaged firm will identify a
team lead that will be the interlocutor with the international
consultant.
Firm/Team (separate procurement process & linked TOR) Under separate TOR services of firm is being procured, through competitive bidding, to support the IC in this assignment.
The
selected firm will deploy a team of three experts to undertake the
assignment. The team will be sub divided into proposed national team
lead and two team members. The team lead is expected to have
understanding of the overall objective of study. There will be one
Education and Health expert each. In case of proposing a fourth team
member the bidder will have to provide justification and utilization of
the same. CVs of all team members will be submitted with the technical
bid along with their proposed utilization plan. The team will work in
close coordination and lead of IC as explained above.
Expected Outputs:
- Desk review literature and prepare initial research design in collaboration with national firm (4 days);
- Meeting
with key government officials, UNDP, UZGP-UPGP project staff and
national firm to finalize research design, para-meter, processes,
working relationships and its approval (4 days);
- Inception Report & Coordination Matrix (4 days);
- Distance support during Roll out of research, field research, data collection, analysis, etc (17 days);
- Draft report & presentation of key findings (7 days).
Impact of Results:
The
policy review will primarily provide the LGD, the UZGP and the UPGP
with evidence on the current status of involvement of local government
bodies in delivering services in the health and education sectors.
Recommendations from this review will also enable the LGD to engage in
structured dialogue with the health and education ministries, to
generate guidelines and directions for local governments to effectively
discharge their mandate in relation to these services. It will also
serve to improve the effectiveness of interventions implemented directly
by these ministries, as well as actions taken up through local
governments, in a manner that will enhance cost effectiveness, gender
sensitivity and inclusion, and responsiveness to the special needs of
the poor. The guidelines will, after due reflection, be generated by
LGD, and provided to the Upazilas and Union Parishads, enabling them to
clearly identify the additional tasks that they need to carry out, as
well as the modus operandi to be adopted in cooperating and
collaborating with interventions directly implemented by the sector
agencies.
Institutional Arrangement:
The International Consultant will have following institutional arrangements for execution of policy research:
- To
lead and guide national team as elaborated in research team section
above. The national team lead will be the key interlocutor. The
coordination arrangements will be elaborated in the coordination matrix;
- Close
coordination with the Project Manager for project based institutional,
operational and field support. The Project Manager UZGP will ensure
availability of support and cooperation from the National Project
Director and Local Government Division of M/o LGRD&C, as required,
along with the UNDP and the UNCDF. The Project Manager will be provided
the progress of work as per agreed coordination Matrix;
- Maintain
technical coordination with UPGP & UZGP’s International Technical
Advisors, as required, with Project Manager in loop.
Duration of the Work and Duty Station: The
estimated duration of the study is expected to be 06 weeks with 36
working days i.e. 6 days/week spread over 15 Weeks (3 months).
The
principal working location to execute policy research (duty station)
will be in Dhaka. However, identified projects locations outside Dhaka
will be visited as per work methodology area as required by the
assignment.
The selected International Consultant will be
required to have at least 2 visits to Dhaka i.e. at the beginning of the
assignment to ensure research design & methodology, meet
stakeholders and agree on coordination matrix with national firm; and at
the end of assignment for finalization of analysis, draft and
presentation to key stakeholders.
Final Products/Services:
The IC will be expected to submit following in close coordination with nationally selected firm:
- detailed research methodology & design for the assignment – Inception Reports at the end of 2nd week;
- Coordination Matrix detailing roles & responsibilities, work plan with nationally selected firm at the end of 2nd week
- Introductory note for LGD’s consultations with Health and Education ministries;
- Discussion note for LGD’s review of potential proposals;
- Interim Progress report – end of 5th week;
- Final
report Recommend the clarified functional assignments for local
governments, the enabling policy framework to perform the proposed
functions, and the manner in which resources should be provided to carry
out the functions.
All reports will be shared in 3
hard copies along with Word Format soft copies in CD and through email.
In case of any discrepancy the hard copy will be considered as final.
The language of communication and reporting will be English. All
research tools will be prepared in English and translated into Bangla
for field application, as required. The final report will have a
certified Bangla translation to be prepared by the national firm.
The
cost of reports will be borne by nationally selected firm. IC will
ensure quality of reporting and linguistic consistency and standards for
English.
Scope of Bid Price and Schedule of Payment:
The
Budget of the successful bidder will be fixed, therefore, comprehensive
and all inclusive budget should be prepared. The assignment will be
time bound and no extension and/or financial addition is expected to be
provided. The price should take into account all HR costs and
professional fees, travel costs, DSA, subsistence and ancillary
expenses.
UNDP shall effect payments, by bank transfer to the
successful bidder’s bank account, upon acceptance by UNDP (in
consultation with LGD) of the deliverables as specified in the ToR.
Payments will be made in tranches based on the following percentages and
milestones.
- 1st Payment: 20% of total contract value
will be paid after submission of inception report as stipulated in the
section “M” of this ToR;
- 2nd Payment: 30% of total
contract value will be paid after submission of introductory note for
LGD’s consultations with health and education ministries and discussion
note for LGD’s review of potential proposals as stipulated in the
section “M” of this ToR;
- 3rd Payment: 30% of total
contract value will be paid after delivery of interim progress report as
stipulated in the section “M” of this ToR;
- 4th Payment:
20% of total contract value will be paid after submission of final
report as stipulated in the section “M” of this ToR.
Terms:
- The
selected IC shall prepare and submit the work plans for approval and
submit reports as stipulated in the section “M” of this ToR;
- Payment
for services of the contractor will be made upon satisfactory
certification by the Local Governance (LG) Cluster of UNDP and will be
remunerated by the UZGP Project.
Recommended Presentation of Proposal: The
bidders are to submit a comprehensive technical proposal to
substantiate its credentials and expertise for appraisal of bids in the
below of CV. This includes technical proposal, details of which are
listed below.
Technical Bid: The
Technical Proposal must contain a detail description of the process it
intends to follow to complete the tasks including a detailed work plan
and time schedule for completion/delivery of the assignment. The same
will be agreed upon by LG Cluster of UNDP in consultation with the UZGP
project in the early stages of the commencement. This section must
provide following:
- Understanding of the assignment (Max 2 pages);
- Proposed research design & strategy (Max 2 pages);
- Proposed research tools to be employed in alignment with research methodology (Max 2 Pages);
- Proposed time bound work plan ( 1 Page).
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Competencies
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Corporate Competencies:
- Displays cultural, gender, religion, race, nationality and age sensitivity and adaptability;
- Treats all people fairly without favouritism.
Functional Competencies:
- Knowledge Management and Learning;
- In-depth
knowledge of local governance/ local development issues in general and
administrative and fiscal decentralization issues in particular.
Specific experience carrying out research/studies on local governance
systems in developing countries is desired;
- Ability to advocate and provide policy advice on decentralization, performance based grants and local governance;
- Demonstrated
experience with capacity building: Good understanding of capacity
assessment methodologies; excellent ability to identify capacity
building methods;
- Excellent communication skills (written
and oral): Sensitivity to and responsiveness to all partners, respectful
and constructive relations with host government counterparts, UNDP,
UNCDF and project (UPGP and UZGP) staff.
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Required Skills and Experience
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Academic Qualification:
- Master’s Degree in Social Sciences preferably in Political Science, Development Studies and/ or Law.
Experience:
- Have
10 years of comprehensive working experience on research, reviews &
evaluations focusing local governance, local government and
institutional & legal development. Working experience in South Asia
will be an asset;
- Have demonstrated research, review,
evaluation experience in social sector especially Service delivery
reform, Health and Education for at least last 5 years. A list of work
should be enclosed with the bid with title of report and client’s name;
- Having
experience of working with government and local government
representatives preferably in South Asia. Similar understanding of the
local governance system & institutes in Bangladesh will be value
addition. Details must be listed;
- Computer literacy is
must especially for MS Word applications. The CV must state the level of
expertise in the usage of computer and office software packages (MS
Words, MS Excel, Power Point etc.).
Language Requirement:
- Fluency in English (Written and Oral).
Evaluation of the Candidate:
Individual consultants will be evaluated based on the following methodology:
Cumulative analysis
The
candidates will be evaluated through Cumulative Analysis method. When
using the weighted scoring method, the award of the contract will be
made to the individual consultant whose offer has been evaluated and
determined as:
- Responsive/compliant/acceptable; and
- Having
received the highest score out of a pre-determined set of weighted
technical and financial criteria specific to the solicitation.
Only candidates obtaining a minimum 70% mark in technical evaluation will be considered eligible for financial evaluation.
Technical Evaluation Criteria (Total 100 marks): Experience and qualifications of the IC (35 marks)
- Related Work Experience of at least 10 years in education, Health & Service delivery reform (5 marks);
- Experience of working with National Governments & local governments for last 5 years (5 marks);
- Experience of working with National Governments & local governments for last 5 years in South Asia (5 marks);
- Experience of working with National Governments & local governments in Bangladesh (5 marks);
- Experience of working with UN & donors (5 marks);
- Computer literate (5 marks);
- Experience of team lead at least 5 assignments (5 marks).
Proposed Methodology and work plan (65 marks)
- Understanding of assignment (10 marks);
- Proposed Review Methodology & approach (20 marks);
- Proposed Research tools data collection & analysis (15 marks);
- Proposed work plan & time line (10 marks);
- Proposed use of national team members in line with methodology (10 marks).
Financial Evaluation (Total 30 marks): All
technically qualified proposals will be scored out 30 based on the
formula provide below. The maximum points (30) will be assigned to the
lowest financial proposal. All other proposals received points according
to the following formula: p = y (μ/z) Where:
- p = points for the financial proposal being evaluated;
- y = maximum number of points for the financial proposal;
- μ = price of the lowest priced proposal;
- z = price of the proposal being evaluated.
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UNDP is committed to achieving workforce
diversity in terms of gender, nationality and culture. Individuals from
minority groups, indigenous groups and persons with disabilities are
equally encouraged to apply. All applications will be treated with the
strictest confidence.
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