Job: INTERNATIONAL CONSULTANT TO LEAD POLICY RESEARCH CONTRACT - LOCAL GOVERNMENT SYSTEM IN BANGLADESH - COMPARATIVE PERSPECTIVE AND PRACTICES

Location: Dhaka, Bangladesh
Deadline: Saturday, 14 September 2013 

Description

INTERNATIONAL CONSULTANT TO LEAD POLICY RESEARCH CONTRACT - LOCAL GOVERNMENT SYSTEM IN BANGLADESH - COMPARATIVE PERSPECTIVE AND PRACTICES

Location :

Dhaka, BANGLADESH

Application Deadline :

14-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

Background

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). 

Description of Local Government System (LGS) in Bangladesh:

History of local governance and LGS in Bangladesh dates back to the British rule when the Bengal Village Chowkidari (watchmen) Act of 1870 was passed. This was the first step of organized local government at villages and Union level. Structured progress was made under the Bengal Local Self-Government Act, 1885that provided a three-tier system of LG for rural areas i.e. District Board, Local Board and Union Committee.

The next substantive iteration was during the Pakistan period under the Basic Democracy Order of 1959, LG bodies were set up at four tiers Union Council, Thana Council, District Council and Divisional Council. After independence of Bangladesh in 1973 under President’s Order three tier LG system i.e. Union Parishad, Thana Parishad and Zila Parishad, continued functioning as it was under the Basic Democracy Order (1959). From 1972 to-date series of Laws, Act, Rules, etc. were enacted and Amended for Union Parishad, Upazila Parishad, Zila Parishad, City Corporation, Pourashava (municipality), Hill District LG, etc.

Similary, Bangladesh has also documented and practiced its transition in adopting LGS i.e. form Colonial rule to East Pakistan to independent Bangladesh. At national level, in 1975, it adopted Presidential form of government leaving Parliamentary system. There was subsequent transition from Presidential to Parliamentary form of government through the 12th amendment to the Constitution in 1991. The LGS draws its strength in Bangladesh from the 4th Amendment to the Constitution in 1975. However changes at national level have had consequent effects on LGS. It has seen range of legislation, sub legislation and rules enacted and amended for shaping and reshaping tiers of LGS and its consequent functioning. It has been an iterative process to date, which is still evolving.

There are 7 Division and 64 administrative Districts in Bangladesh that constitutes Rural and Urban local government system as follows:

• Hilly Areas: 1 Regional Council, 3 Hill District Councils;
• Urban Areas: 10 City Corporations & 310 Municipalities (Pourshavas);
• Rural Areas: 61 Zila Parishads, 485 Upazila Parishads and 4500 Union Parishads.

Rationale for Policy Research:

Local Government System (LGS) is an institutional need in the realm of political and administrative governance that needs no further justification. The need extends across the globe in all types of political systems and is being customized as per local needs to provide for participatory local governance through LGS.

Since the independence of the Bangladesh in 1971, there has been substantive iterations in organizational structuring and corresponding legal provisions for the local government system in Bangladesh. Despite these attempts, the LGS is yet to be fully operationalized within its multi-tier system, across rural and urban divide, to strengthen local democracy for local level development.

Currently, Local Government Systems in Bangladesh has separate systems for rural and urban areas. The rural system has 3 tiers whereas urban system is double tiered. The inter and intra institutional interface among these tiers is non-existent despite complementary mandate especially within the perspective of funds, functions and functionaries. All the tiers of LGS, be urban or rural, have been generally been documented to be operational with each level having its share of institutional hiatus.

Therefore, culture of institutional cooperation, citizen engagement and LGIs tier specific participatory local planning & development for service delivery has also not been indoctrinated. Thus having its effects on functioning and accountability of the respective LG tier.

This establishes the need for undertaking a comprehensive national review and analysis of existing local government system and drawing a comparative perspective and practices based analysis of the operational LGS in India, UK and South Africa. The perspective and practice based analysis will focus at institutional (tier) and legal level.

Duties and Responsibilities

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, in line with UZGP programme output, is to:

‘Strengthen the Local Government Institutions (LGI) and local governance in Bangladesh through effective policy review and comparative analysis.

The Specific objectives of the study will be to:

• Assess and review existing Local Government System, both urban & rural, in Bangladesh within its tier based institutional structure and corresponding legislative framework; 
• Undertake comparative perspective and practices analysis of functionality and operationalization of LGS in India, South Africa and the UK;
• Recommend policy options for institutional streamlining and legal strengthening of LGS in Bangladesh.

Scope of Policy Research:

Following research dynamics will be the basis for critical evaluation, policy research and reporting for perspective and practices based comparative analysis:

• Rural and urban LGS – a divide or interface;
• Multi-tier or Single tier LGS system;
• Interface of local administration and local government in LGS with reference to funds, function and functionaries
• Corresponding legal provisions for tier based LGS structuring.

A comparative international perspective and analysis of practices of decentralization process will also be integrated in the study to reflect on policy options for Bangladesh. The study is expected to focus on LGS in India, South Africa and the UK.

The study will:

• Analyze historic evolution of administrative, institutional and legal frameworks focusing LGS in Bangladesh;
• Evaluate existing LGS tiers, its level of decentralization & fiscal flow patterns, complementarity and gaps. (funds, functions & functionaries);
• Co-relate and validate secondary data analysis and findings through desk and literature review, filed visit, expert views and stakeholder consultation through range of activities;
• Comparison of decentralization process and operationalization of LGS with at least 3 countries i.e. India, South Africa & the UK to suggest lessons learnt and adopt good practices.

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 and re-organization.

The policy research will identify “Pros and Cons” within the existing LGS in Bangladesh and recommend policy options for the policy makers to further promote decentralization and strengthen local democracy through initiating appropriate policy and legal reforms, which will help eradicate poverty and expedite achievement of “Vision 2021”.

The recommendation will be in the realm of administrative, political, institutional and legislation focusing reorganization and connect of tier based LGS. It will identify responsible partner/agency and a proposed time frame for realization of the proposed options. Gender will be used as a cross-cutting and integral theme of the entire study. The comprehensive report will be submitted to the Local Government Division to initiate appropriate 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. Incase 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 key results of the policy result will have an impact on the design, operation and programming of activities, creation of strategic partnerships with relevant stakeholders in strengthening local governments and promoting decentralization as well as reaching overall project targets. 

The policy research will identify pros and cons within the existing LGS in Bangladesh and recommend policy options for the policy makers to further promote decentralization and strengthen local democracy through initiating appropriate policy and legal reforms, to contribute to eradicate poverty and expedite achievement of “National Vision 2021”. 

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, Living Allowance, 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 interim progress report as stipulated in the section “M” of this ToR;
• 3rd Payment: 30% of total contract value will be paid after delivery of hard and soft copies of the draft 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. 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).

Competencies

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;

Required Skills and Experience

Acadcemic Qualification:

• Master's Degree in Social Sciences preferably in Political Science, Development Studies and/ or Law.

Experience:

• 10 years of comprehensive working experience on research, reviews & evaluations focusing Policy reform, local governance & government and institutional & legal development;
• Working experience in South Asia will be an asset;
• Having experience of working with government and local government representatives preferably in South Asia;
• Having demonstrated research, review, evaluation experience in social sector especially Policy reform and service delivery reform focusing local government and public sector for at least last 5 years. A list of work should be enclosed with the bid with title of report and client’s name. 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% marks 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 literacy (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.

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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