CHAPTER 1: INTRODUCTION

1.1 Background

Bangladesh is a developing country – economically and socially –its half of the total
population comprises women. Their socio-economic circumstances are very poor. The
genesis of women in Bangladesh civil service is not a story of long back. They have
been regularly appearing in the Bangladesh civil service since 1982 due to women‘s
increased demand for job and affirmative actions taken by the government. The
position of women in the family is very tricky regarding different features like
convention, ritual, tradition, security and equality of men-women, social regality and
for multifaceted distress. Here participation of men and women social development
proceedings is not equal. Many activities of women are not counted as worthwhile
work. Consequently, socio-economic development cannot be executed in the real
sense without the strong participation of women at the decision making activities in
society. According to practice of our society, Women are leg behind culturally,
socially and economically. All kinds of expediency and plausibility are needed to be
delivered to ensure active participation of women in all compass of life. The
government is the largest employer in Bangladesh. Therefore, women’s incorporation
in different cadre service is very outstanding and needs superior attention from for the
appointment of women in Bangladesh Civil Service (BCS). The Government of
Bangladesh (GOB) has already taken some policy measures to ensure arguable
participation of women in the civil service arena. A quota system was introduced by
GOB to increase participation of women in the government service division. Hence,
detecting the stumbling blocks of women's participation in the BCS and take
necessary steps to remove the stagger blocks and discuss the challenges of a woman
in civil service is the main purpose of my research. An effort has been made in this
paper to evaluate the prevalent employment status of women in BCS cadres with a
focus on the stumbling blocks faced by the women civil servants which discourage
participate them in the BCS.

1.2. Background of Bangladesh Civil Service

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BCS came into view from the Central Superior Services of Pakistan. Bangladesh
Public Service Commission (BPSC) is the main policy setting and recruitment body
of BCS. In the parliamentary democracy of Bangladesh, the ultimate responsibility for
running the administration rests with the elected representatives of the people which
are the ministers. But a sprinkling of ministers cannot be expected to deal personally
with the miscellaneous problems of modern administration. Thus the ministers lay
down the policy and civil servants carry out this policy. The civil bureaucracy is a
colonial inheritance in this part of the world. The British used to precept the native
population through Indian Civil Service (ICS) and most of the officers in ICS were
British themselves. It was in the early 20th Century that the Indians also started
competing against the British and many Indians eventually made it to the ICS. With
the partition of India in 1947, the term 'Central Superior Services' was used in
Pakistan and the concept of All-Pakistan Services continued. After the independence
of Bangladesh in 1971, Bangladesh Civil Service is formed to gear up the government
system of the newly born country by an act from the then President Sheikh Mujibur
Rahman. Bangladesh Public Service Commission a constitutional body established
primarily to recruit persons for various services and posts in the government. It is also
involved in decision processes relating to other service matters such as promotion,
posting, transfer, discipline, and appeal of the government servants. The main purpose
of constituting such a body, designated in most countries of British heritage as 'civil'
or 'public' service commission, is to ensure that all decisions relating to recruitment
and other service matters are made consistent with the principles of merit and equity.
In Bangladesh, this body is presently designated as the Bangladesh Public Service
Commission (BPSC). 1

BPSC usually performs the following functions:

1. To conduct competitive examinations and/or interviews for direct recruitment

of persons in the government service;

1Syed Giasuddin Ahmed, Bangladesh Public Service Commission, Dhaka, 1990; M A Muttalib, The
Union Public Service Commission, New Delhi, 1967; C.J. Hayes, Report on the Public Service
Commission’s of British Commonwealth Countries, London, 1955.

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 2. To conduct psychological and intelligence tests for candidates who qualify in
the competitive examinations seeking selection to the various civil service
cadres;

3. To conduct tests and/or interviews for promotion of government servants from

one service to another.

4. To select candidates from among the serving temporary government servants

for appointment to permanent posts;

5. To endorse ad hoc appointments made under various ministries/divisions;

6. To advise on matters in respect of framing necessary recruitment rules as well

as the principles to be followed in making recruitment, promotions and
transfers in the government service, including the determination of inter se
seniority position of government officers;

7. To examine and approve rules and syllabi of various departmental and

professional examinations as well as conduct such examinations for
government servants;

8. to advise on matters affecting the terms and conditions of service of

government servants; and

9. To advise on disciplinary and appeal matters affecting government servants. In

addition, BPSC also performs functions in the field of personnel research,
such as to compile data and analyze statistically the aptitudes including
academic, socio-economic, regional and institutional backgrounds of persons
seeking government employment.

The Constitution stipulates in specific terms that BPSC shall, not later than the first
day of March each year, prepare and submit to the President an annual report on the
performance of its functions during the previous year. The report shall be
accompanied by a memorandum setting out –

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 1. The cases in which the advice of BPSC was not accepted by the government
and the reasons furnished by the latter for non-acceptance of such advice; and

2. The cases in which BPSC ought to have been consulted, but was not
consulted, and the reasons of such deviation.

1.3. Background of Female Officers in Bangladesh Civil Service

(BCS)

The genesis of the present BCS taken place during the British rule in the Indian Sub-
continent. The civil service system developed in Pakistan inherited to Bangladesh era,
which was an inheritance of the Indian Civil Service (ICS). The ICS was entirely
staffed by men. No entrance of women in the ICS till 1935. The Civil Service of
Pakistan sustained its evolution and brings the tradition of the ICS. During the
Pakistan era, only unmarried women account for only about mostly are entitled to
work in the four services. The main empirical behind this was to keep women
confined mostly desk-bound jobs. In this period, it is believed, because of the broad
field of women's visits and assessments, called for the perpetuation of law and order
and the collection of revenues which were not suitable for this kind of work. So
women are not fit to dispatch in levels or administrative cadres. It is clear that women
are four services, namely;

 Audit and Accounts Service

 Railway Accounts Service
 Military Accounts Service
 Income Tax and
 Postal Service

Postal Service will only be considered to have been mentioned in the service of the
Civil Service Recruitment Rules. Because of this resolution, women could not work in
various important services including many other Class I Civil Service, the Civil
Services of Pakistan, the Pakistan Foreign Service and were absolutely lacking of
women.2

1.4. Present history of woman in Bangladesh civil service

2 The State in Post-Colonial Societies: Pakistan and Bangladesh,‖ New Left Review Vol. 1,
No.74, pp.59-62.

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 In Bangladesh over the last three decades insistence has been given on ensuring
gender equality and recognized gender issues through various policies and strategies
to ensure employment of women in various professions. Yet women participation in
government services has not reached a middling level. The total strength of female in
government service is 10 percent and only 8 percent in both class I and class II posts.
In the 29 cadres most of the women are at the lower levels. The presence of women at
higher levels of administration and policy formulation is not average. Against these
flats, a sincere attempt has been made in this paper to analyze the prevailing women
employment situation in BCS cadres with a focus on the problems faced by the
women officers who cause low female participation in the BCS.

1.5. Women falling behind men in recent BCS exams

Though women in Bangladesh are advancing in various sectors, the number securing
government jobs through the Bangladesh Civil Service or BCS exams has decreased.
State Minister for Public Administration Begum Ismat Ara Sadique presented a report
on the issue in parliament on Sunday. The proportion of successful women candidates
has declined significantly in the past five BCS exams, according to the Public Service
Commission or PSC report.

Women were well ahead of the male candidates in the final exam of 32nd BCS
(Special). Since then the proportion has decreased.

 In the 32nd BCS exams, women made up 55.1 percent of the successful
candidates (923 persons), while men made up 44.9 percent (752)

 In the 33rd BCS exams of successful candidates 38.26 percent (3,255

persons) were women while 61.74 percent (or 5,252 persons) were men

 In the 34th BCS exams, women made up 35.62 percent of successful

candidates (775 persons) while 64.38 percent (1,401 persons) were men

 In the 35th BCS exams, 27.92 percent of successful candidates (609

persons) were women while 72.07 percent (1,572 persons) were men

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  In the 36th BCS exams, 26.22 percent (609 persons) of successful
candidates were women while 73.78 percent (1,714 persons)

As the above statistics show, the highest number of women passed the 33rd BCS
exams while the lowest number passed in the 35th and 36th BCS exams. Analysis of
the 36th BCS exam shows that 141,270 (66.86 percent) of the total 211,282
candidates, were from male, 70,006 were female (33.13 percent) and six (0.003
percent) were third gender.

Among these candidates 109,002 (79.70 percent) men and 2,777 (20.30 percent)
women passed the preliminary exam. Only 1,210 (20.20 percent) women and 4,780
(79.80 percent) men passed the written exam. Finally, 1,714 (73.78 percent) men and
609 women (26.22 percent) passed the oral exam.3

1.6. Conceptual Framework

3 SourcesSyed Giasuddin Ahmed, Bangladesh Public Service Commission, Dhaka, 1990; M

A Muttalib, The Union Public Service Commission, New Delhi, 1967; C.J. Hayes, Report on
the Public Service Commission’s of British Commonwealth Countries, London, 1955

The State in Post-Colonial Societies: Pakistan and Bangladesh,‖ New Left Review Vol. 1,
No.74, pp.59-62.
Sources
Public Service Commission, New Delhi, 1967; C.J. Hayes, Report on the Public Service Commission’s
of British Commonwealth Countries, London, 1955.
The State in Post-Colonial Societies: Pakistan and Bangladesh,‖ New Left Review Vol. 1,
No.74, pp.59-62.
bdnews24.com/bangladesh/2018

- Syed Giasuddin Ahmed, Bangladesh Public Service Commission, Dhaka, 1990; M A Muttalib, The
Union Public Service Commission, New Delhi, 1967; C.J. Hayes, Report on the Public Service
Commission’s of British Commonwealth Countries, London, 1955.
The State in Post-Colonial Societies: Pakistan and Bangladesh,‖ New Left Review Vol. 1,
No.74, pp.59-62.
bdnews24.com/bangladesh/2018/04/09/women-fall-behind-men-in-bangladesh-civil-

service-bcs-exams, Sazedul Haque, Parliament Correspondent, Published: 2018-04-09

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During the last two decades the term gender mainstreaming has become an important
issue in current development discourses. Before launch into a discussion gender
prevailing in BCS cadres it is essential to define the concepts.

a. Gender
b. Women
c. Civil service
d. Gender mainstreaming
e. Reservation system

1.6.1. Gender

Basically, the differences between man and women are determined zoologically, then
socially.

Sex defines biological differences between man and women. Gender is socially
determined psychological and personal features relating to man and women..
Different factors like religious, economic, cultural, sociological and political factors
produced gender differences and every society has created gender differences.

But the gender inequality has been improving a lot in Bangladesh, inequalities in
areas such as education and employment remain ongoing problems but women have
great political freedom. In 2015, Bangladesh was ranked 139 out of 187 countries on
the Human Development Index and 47 out 144 countries surveyed on the Gender
Inequality Index in 2017.

1.6. 2. Women

Women represent nearly half of the total population and half of its potential.
Therefore, Socio-economic development cannot be truly achieved without the active
participation of women at the decision making level in society. Women are
discriminated through customs and laws, represents them as disadvantaged and
vulnerable social groups. They are considered with discrimination because of their
gender. It is widely accepted today like class and race/ ethnicity, gender is a source of
inequality. Women constitute closely half of the entire population and prospective

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also. Thus, without the active participation of women at the decision making level in
society the socio-economic development of the country is impossible. Women are
always staying at the back of economically, socially and culturally in Bangladesh. All
sorts of conveniences and breaks are to be provided to them, to confirm the active
participation of women in all section of life.

Women are categorically distinct from the complex chemistry of social relations
which initiate and disseminate their construction. The different appearance of the
woman that emerges in the global capitalist market is what is issuing around that
she herself appears to conspire in the patriarchal structure of her personality.
Household chores easier to work with them when technological revolution, it must
be mentioned. Women go out to work which is the increasing demands of
consumerism of the family necessities. So, they have to carry out a double
workload both as an employee and as a housewife. They accomplish duties which a
range includes increasing her husband’s career prospects and bring pleasure for the
family.

1.6.3. Civil Service

Generally Civil service of a country rejects defense service, although some civil
servants work in defense ministry and its various departments. It includes all
permanent functionaries of government. A member of civil service cannot be a holder
of political or judicial office. In a group, the civil servants of a state called civil
service.

The civil service is a body of impartial and professional experts in administration,

which devoted to serve without affection to its personal gains or without reference
to class interests or party political sights. The civil service – that standardizes the
administrative portion of the government that accomplishes the government’s vision
and mission. Civil Service of a country basically indicates all permanent
functionaries of government excluding defense service. A member of civil service
also excludes from judicial or political offices. According to Finer, “Civil Service is
a professional body of officials, permanent, paid and skilled.4

4 Field Administration and Rural Development in Bangladesh, Centre for Social

Studies , Dhaka

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Policy formulation is the function of cabinet/ ministry, but policy implementation,
the main aspect of development is the function of the civil servants. Although the
policy formulation is the jurisdiction of cabinet/ ministry, it depends largely on civil
servants for data of policy formulation”. The civil servants face difficulty in the
political-administrative environment, which demonstrates the ineffectiveness for
any documentation with any or other structures.

1.6.4. Reservation System

Gender and minority issues of public sector employment in most developing countries
needed to be analyzed critically. Constitutional provisions usually declare equality
between men and women and forbid any discrimination on the basis of sex or other
considerations in the ground of recruitment and promotion of government employees.
So far, different barriers like social, cultural, and educational and security paves the
way of women from enjoying fully their constitutional rights and agreements. Against
this impediment, equal participation has become a key concern. To increase the poor
participation of the backward section of the society in the civil service, some
developing countries have made some important arrangements. To minimize the
drawbacks faced by those the constitutions of such countries have allowed reserving a
specific percent of their posts in the public services for women.

1.6.5. Gender Mainstreaming

The United Nations Economic and Social Council (ECOSOC) in 1997 pointed out in
detail the meaning of gender mainstreaming: It is a process of assessing the
implications for women and men of any planned action, including legislation, policies
or programmers, in any area at all levels.’’ It is a strategy for making the concerns and
experiences of women as well as of men an integral part of the design,
implementation, monitoring and evaluation of policies and programmers in all
political, economic and societal affairs so that women and men benefit equally.’’5

5 Women in Bangladesh: From Inequality to Empowerment. Dhaka: A H Development

Publishing House.

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1.7. Statement of the Problem

The civil service in any country, as the administrative arm of the government, plays
a consequential role in the administrative system. But Bangladesh civil service, along
with its many other problems, is also being supposed for having ‘glass ceiling’ against
women, religious and ethnic minorities etc. Against this backdrop, a sincere attempt
has been made in this paper to analyze the existing career development situation in
cadres with a cornerstone on the problems faced by the deprived which cause their
low participation at the top of the ranking. And so, it is a very little effort to look into
the imputation of ‘glass-ceiling’ in Bangladesh public service. In a democratic system
power emanates from and rotates round the legislature, the Parliament, the
government or the executive or Bureaucracy. Therefore, power spreads around
Politics and Bureaucracy where only a few women so far could make their entry
achievable. Only 10 percent of Bangladesh Civil Services (BCS), 14.48 percent of
BCS Administration and 8.2 percent of top position are represented by women.
Research and evidence shows that unless women are at senior administrative and
policy level position in a critical mass, they are unable to make meaningful and long-
term gender mainstreaming decisions in service delivery to all citizens.6

1.8. Objectives of the Research

Our main objectives are

 To discuss the status of woman in the present situation.

 To find out the prospects of women in Bangladesh Civil Service (BCS)

1.9. Research Question

6 Women in Bangladesh: From Inequality to Empowerment. Dhaka: A H Development

Publishing House.

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  Do women represent herself to civil service in the perspective of
Bangladesh?
 What are the challenges to woman in BCS?

1.10. Significance of the Research

In Bangladesh, men were helping in public administration for more than 200 years
and for obvious reason they level almost in all the apex positions. Women have
included in the conventional of administration from 1982 batch of BCS and
entrenched themselves in the arena of public administration, which had traditionally
been a male preserve. The dynamics of social - cultural notions and structured values
still not ready to see women largely in decision making process.

1.11. Scope of the Study

The strategy making level of the government is expected to know what bothers female
officers when they are eager to go ahead. This study will help to discern the barriers
of women and why they are Under-representation and Concentration in the problem
facing. This will also help to take pragmatic measures to remove those obstacles and
promote them in service by giving needed supports. From that point of view, this
research has policy insinuation for government and concerned stakeholders.
Constitutional and legal approval which is known as safeguards for women cannot
ensure equal and equitable employment opportunity for women if their operational
and glass ceiling problems are not addressed properly and triggering tools are not
used to influence them on the basis of the findings of a systematic study. It is
important to know about the factors that determine women‘s representation in civil
service, because on the basis of the findings of this study, we can address those factors
to encourage women and increase their number in desired level.

1.12. Methodology

There are at least three points that should be in mind while choosing an appropriate
research method, these are:

 Answering to the research question,

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  Current state of knowledge and
 The nature of the variables involved in research.
Mentioning these three matters, a combination of content analysis, Interrogation and
Case Study methods has been selected for this study. Selected three methods are the
most suitable for the study considering the variables intricate and for answering the
research questions and are expected to be a reliable instrument for the study.

Data analysis method critically and objectively reviews the published or printed facts,
figures, opinions, observations, speculations in the light of its content value.
Therefore, it is helpful to give discernment about the research topic from the
secondary sources. Content analysis acts as a base and directs the research in a proper
line.

The case study helps to examine the complex situation and combination of factors
involved in that situation so as to identify the causal factors operating it enables us to
explore, unravel and understand problems, issues and relationships. The problems
faced by women public servants are not isolated issues; those are derived from
complex interplay of factors – historical, cultural, socio-economic, administrative and
attitudinal. So, through study of cases it became possible to abstract the properties
which are common to, or typical of, many cases from those which are peculiar only to
the exceptional cases with special focus on women civil servants. The use of case
study method provides an opportunity for relating facts and concepts, reality and
hypothesis. Another reason for choosing it is that it is a holistic approach in which
cases are studied as wholes. The interview method has been taken to gather clear idea
about the topic through discussions with the relevant personnel. Case study has been
used for in-depth learning of the phenomena. Observation method has been used to
watch the overall fact, and in-depth Observation of events with structured observation
techniques is really very helpful to explain the issue.7

1.12.1 Sources of Data

7 Status of Implementation of Policies and International Commitments Related to

Women in Bangladesh, in Policies, Budget and PRSP: Are They Promoting Women’s
Rights in Bangladesh?, ed Rokeya Kabir, University Press Limited, Dhaka, pp. 3-
154.]

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The study was carried out with the civil servants working in the field levels and also
in ministries. It is notable that as the research topic is about top management so
interview was made with senior civil servants mostly from administration cadre. 10
senior civil servants and 15 junior civil servants were also interviewed to know about
the motivational level, planning for career progression and responses towards
society‘s view.

1.12.2 Area enveloped

The respondents of this study were disseminated in Dhaka Division.

1.12.3 Techniques of Data Collection ;Secondary Data:

In this study, the use of books, journals, reports, some official‘s records and
documents were some of the most important sources of data. The books and published
documents relevant to the study collected from various sources are- Mohila Parishod
(A Human Rights Organization); Library, Women for Women, Central Library, Dhaka
University; Library, Nari Grantha Probortona, Seminar, Department of Women
Studies, Dhaka University; Central Library, Ministry of Women and Children Affairs;
Resource Centre, Institute of governance studies, BRAC University Dhaka
University; Bangladesh Public Administration Training Centre.

1.12.4 Validation of Data

Interrogations and discussions were governed by the researcher as well. In case of

content analysis, principle of permissible and objectivity was maintained. So data
were plausible and reliable as feasible.

1.12.5 Data Processing and Analysis

Qualitative method was used to explain the significant phenomena, causalities, social
realities and experiences. But it was not intended to test any theory. This is the best
way to get the insiders perspectives, the actor‘s definition of the situation and the

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meanings people attach to things and events. They are well able to deal with the
complexity of social phenomena.8

The study incorporates both at the Ministry level and at the field level. The study is
limited to civil servants who belong to BCS Administration Cadre only working at
different Ministries in Bangladesh Secretariat and at Dhaka Districts in various
positions. Ministries have been sorted out on the basis of the importance in terms of
key policy issues, the accessibility of the researcher and the solidity of the female
officers.

1.12.6 Problems in Data Collection

Every social research has some shortcomings, and nothing is exact in Social Science
as because everybody has a distinguishable view and argument. Time curtailment is
the prime limitation of this study. Another limitation is that all the respondents were
very busy especially in order to perform his/her duties. It was quite difficult to
interview them. Schedules have been changed several times. The documentation
system of the government is not systematic. It took huge time to get relevant data. It
was also very difficult to get permission to enter into the secretariat and collect
information. Getting relevant information was a very tough job. Use of authoritative
connections was helpful in this regard. Some of the questions were related to the
personal experiences; so, it was not very easy to get answers for those. To persuade
the respondents to get adequate response was a big challenge. It was a privilege for
the researcher that the population was qualified and the researcher did not face
communication problem in collecting information from the illustrative. The
interrogation period, therefore, was interesting.

8 Introduction to Social Research- Quantitative and Qualitative Approaches, Sage

Publications, London.

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 CHAPTER-TWO: REVIEW OF LITERATURE

2.1 Review of Literature

Literature review gives knowledge to reader to know the gist point of the research
project. Different researcher gives various comments about the object. Different
researcher’s point of view is given below:

Jahan and Kabir (2006:155-170) decomposed the global impact on advancement of

women in Bangladesh. In the endeavor of eliminating discrimination against women,
during the last three decades of the twentieth century, the United Nations has taken a
number of tramp to enhance women‘s status, roles and rights and advancement. They
scrutiny the various attempts made by the UN and focused of attention the policy and
programmed initiatives of the Bangladesh Government in improving the status of
women‘s advancement and development.9

9 Public Administration in Bangladesh, Background Paper for The State of

Governance in Bangladesh, Produced in Collaboration with Research and
Evaluation Division (RED), BRAC, Dhaka

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Jahan (2007:41-72) worked on Gender Mainstreaming in Bangladesh Civil Service:
Prospects and Constraints‘ and found that gender streaming in BCS has already found
a place in policy scheme of Bangladesh, however, female participation in Civil
Service has not outreached at the desired stage so far. The role of female officers in
policy influencing is very small. She identified some reasons behind the inadequate
participation of women in BCS such as transferable nature of the job and posting in
remote areas, family responsibilities, lack of child care facilities in office, non-
cooperation of male colleagues and family members, absence of appropriate and
encouraging environment in work place such as absence of day care center,
unavailability of individual room in which to work, lack of separate toilet and rest
room facilities, inadequate residential and transport facilities, superiority complexes
and negative attitudes of male colleagues, lack of security and consequences of social
towards the back.

Kabir and Jahan (2007:2-17) discussed the position of women in BCS and reasons for
their under-representation in their paper. Women representation in bureaucracy: A
study on Bangladesh‘. Prevailing socio-cultural norms, contradictory policies and
laws with regard to employment of women, symbolism, and historical imbalances in
educational opportunities with regard to genders are identified as some of the
contributing factors to the underrepresentation of women in Bangladesh public sector.

Salma Khan (1995:71-85) collected primary data on the number of women in

different Ministries and different positions of administration and she displayed that
women are underrepresented in those areas. She argued that despite constitutional
assurance and different measures taken by the government including quota system.
Women participation in bureaucracy is still very low. Khan statistically revealed that
development planning and policy formulation in Bangladesh is essentially
administered and controlled by men.10

10 Women and Bureaucracy: Bangladesh Perspective, in Huq, J. et al.eds.

Women in Politics and Bureaucracy, Women for Women, Dhaka

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Nazmunnessa Mahtab (1995:86-99) discussed the status of women in Bangladesh and
the position of women in education, in labor force and in civil services. She also
corroborated that women were appropriately accepted in certain cadres like BCS
Health, BCS Education considering their dual and balancing duties in office and
home.11

Nilufar Begum argued for special training and facilities for women in civil service.
She pointed out the temperament of the society in Bangladesh and mentioned
women‘s subordinate status in family and society in that patriarchal society. She
suggested special training on the art of public speaking to remove the shyness and
hesitation which are inherited from the culture of the society and training course on
personality development, leadership quality and physical fitness to make them
competent and professional for civil service.12

Momen studied the employment status of women in the service of the Republic in
terms of women‘s participation in decision making and influencing policy making in
the public sector of Bangladesh‘. This study is carried out on Class-1 female officers
who belong to Grade 1 to Grade 9 of the National Pay Scale. It covered both cadres
and non-cadre services and included different cadres with wide range of positions
from entry level to top level. Both primary and secondary source of information is
used for the study, and the questionnaire survey as well as the informal interview
methods was applied for the study. The study found that discrimination against
women as decision makers is on the decline.

Kabir studied on Indian women‘s political and administrative quota using the
secondary sources that mainly include review of books, journals and research reports.
She came up with the findings that without affirmative action women‘s representation
in legislatures and local governance remains negligible. It is very much true in the

11 Womenin Bangladesh: From Inequality to Empowerment,A.H.

Development Publishing House, Dhaka.

12 " (Situation of Women in Bangladesh Civil

Service)‖, Khomotayon, No.4, pp.61-86.

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case of India because there is no quota for women in entering in the civil service.
Therefore, the participation of the women in the civil service is very low if we
compare it to other develop/developing countries of the world. Women‘s position in
Lok Savha and Rajya Savha are also same like the condition of women in the civil
service as they don‘t have any special reservation for women in this regard. But in the
case of local government the situation of women in India is totally different.
Reservation of seats for women in local bodies has shown that it has tremendous
implications, not merely in terms of the number of women entering the public arena
and holding public office, but also in terms of the social, economic and political
impact that these reservations have had for the total system.

Kabir also studied about women participation in Bangladesh Civil Service. She
collected primary data from Ministry of Establishment. Now the Ministry is named as
Ministry of Public Administration and showed the marginal presence of women in
different levels of administration as well as in different Ministries. According to the
article, women are severely under-represented at higher levels of public
administration comparing to men. Meanwhile, women are likely to be well
represented in redistributive agencies, such as the Health and Family Welfare
Ministry, Cultural Affairs Ministry, Women and Children Ministry, Primary and Mass
Education Ministry and Fisheries and Livestock Ministry, whereas they are extremely
under-represented in regulatory and distributive agencies like the Liberation War
Affairs Ministry, Youth and Sports Ministry etc. The author also discussed about the
reasons of under-representation of women in civil service of Bangladesh. The writer
categorized the barriers of women participation in civil service into two main types:
personal and attitudinal barriers, and organizational and functional barriers.13

Karim in his paper presented the state of women in Bangladesh Civil Service
recruited through BCS Examination conducted by Bangladesh Public Service
Commission (BPSC). In particular, he discussed about the structural, institutional and
operational factors responsible for under-representation of women in civil service.
Finally, he provided a set of policy recommendations for reducing the vulnerability

13 Towards Gender Equity in Bangladesh Civil

Service‖, Empowerment, Vol.15, pp.41-54.

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and challenges confronted by women during selection of civil servants. The paper was
based on key informant interview, review of official documents and reports. 14

Afroz performed a research on effect of organizational governance on women‘s

participation in decision making. Research findings shows that since women have
considerable experience in balancing their work and family lives and in catering to the
demands of their husbands ‘careers, organizational policy is an important element
which helps to develop a culture within the organization to encourage women at work.
People come into the organization with their own values, attitudes and preferences.
Organizational forms, structures, norms and values also help to shape the behavior
and attitudes of people. Female employees emphasize the supportiveness dimension
of their organizational cultures and will value support from their colleagues,
especially for child care.

Jahan did a research on problems of working women civil servants of Bangladesh at

the field level. The study revealed that the women working in the field are in
disadvantageous position compared to their male colleagues as well as compared to
the officials of head offices. Though women civil servants are part of very powerful
respected and sometimes feared organizations; because of their gender identity they
have to bear most of the problems those other women in the society experience.
According to this study, dual responsibility of job and household chore (95%),
housing (84%), safety at duty station (67%) and uncongenial working environment
(47%) were the major problems being faced by women at the field. In addition to
difficulties, there are some common barriers that seriously inhibit women to carry out
duties spontaneously. The results revealed that one of the major problems is the
negative attitude towards them from the community, colleagues and the authority.
Society perceived women as soft and not fit for taking challenges. Respondents noted
that they have to face sexist comments, even threats of stigma. Their ability as civil
servants is constantly put in question, and they have to put extra effort to prove their
competence. The reasons behind most of the problems they face are: male
domination, patriarchal mentality and perceived lower social status of women. Other
problems are related to conservative view, lack of education among people and
14 Bangladesh Public Service Commission: A
Diagnostic Study‖, Transparency International Bangladesh.

Page | 19
underdevelopment of the country. Consequences of these problems are: reduced
performance, mental and physical stress, problem in the family, negative effect on
children, disturbance in family life, impaired career development and weakened
initiative and innovativeness. 15

The workshop was designed to assess the opportunities for forming Women‘s Civil
Service Network and gender guidelines and other methods of professional
development for women in the Bangladesh Civil Service, to increase the
representation of women in the service and to provide better service delivery to all,
male and female, citizens of Bangladesh (UNDP, MoE & CSCMP:2010). The
participants of the workshop were requested to discuss what formal and informal
measures discourage women in joining or remaining in the BCS and why. Their
opinion was summarized in the report made by CSCMP. Female civil servants said
that the things that persuade them against remaining in the BCS are lack of logistical
supports to contribute to challenges in performing one‘s job to the best of her abilities,
transfers to different districts away from the home district which causes separation
with family, promotion uncertainty, limitations in infrastructure and office facilities
like day care service and bathroom facility, poor salary structure and absence of
proper evaluation and recognition.

They suggested for introducing quota system for promotion and training, bringing in
Performance based evaluation, establishing a Career Planning Cell, providing suitable
posting for women, properly enforcing of the laws and regulations related to gender
issues, increasing salary and taking more gender sensitive initiatives.16

Arafunnesa studied on the prospects and the problems of female officers in public
administration and found that women are doing the administrative jobs successfully,
however, there are some problems for female officers. She categorized the problems
into four broad groups: work environment related problems, non-cooperation from

15 A Workshop was held on ―Women in the Bangladesh Civil

Service: Addressing Career Development and Improved Service Delivery, in Dhaka at the Bangladesh
Institute of Administration and Management (BIAM), on 20 April, 2010 organized by the Ministry of
Establishment and its Civil Service Change Management Program (CSCMP).
16 (2010), Public Administration in Bangladesh, Background
Paper for The State of Governance in Bangladesh, Produced in Collaboration with Research and
Evaluation Division (RED), BRAC, Dhaka

Page | 20
male colleagues, familial problems and problems related to mindset. She found in
questionnaire survey that transfer without considering the familial condition and
inappropriate residential facility are the two major problems in work environment,
and caring for children without having day care service is the greatest problem for
female administrator.17

Bilkis studied on the Motivation and De-motivation of female Civil servants: A study
on Bangladesh civil service administration Cadre and it has been found that female
officers are highly motivated to the job of administration. Job security, job
characteristics and family influence are the core motivating factors to join and
continue in BCS Administration Cadre. Interestingly it has been seen that
physiological need is not the foremost motivating factors for female civil servants in
the socio-cultural context of Bangladesh. However, there are few de-motivating
factors such as transfer in field level especially in remote areas which made them
separated from family members, absence of separate and clean toilet facility and day
care service in office, negative attitudes of male colleagues, gender discriminate
behavior by boss, no assured promotion, lack of market based salary and dual duties
in office and home. Since historically the roles of women were limited dealing with
domestic affairs in the patriarchal society, and women are working in public
administration only for last three decades, enough time has not yet passed to
overcome all the de-motivating issues. However, day by day the situation is gradually
improving for female officers in the BCS Administration.

Aminuzzaman studied on Policies Budget and PRSP and found that women are very
much underrepresented in the civil service. Despite the government‘s policy of equal
opportunity, affirmative action, and the situation has not improved to any significant
degree. It becomes particularly serious when considered against the fact that women
constitute roughly half of the country‘s population, but their representation is not
adequate in institutions that affect economic and social development. Policy makers
have realized that contribution to development cannot be confined to men, but this
realization is undercut by tokenism and lip service to the ideal of gender balancing.
[20] The number of women in the leadership positions in the civil service does not

17 Women in Public Administration: Problems and Prospects

of the Female Officers belong to BCS Administration Cadre (Jonoproshasone Nari: BCS Proshason
Cadrer MohilaOdhikarikgoner Somossa o Somvabona), Muktochinta Publication, Dhaka.

Page | 21
adequately represent the existing pool of trained female labor in the country. It is an
imperative that women are adequately represented in the policy making and policy
implementation levels so that incorporation of women‘s critical and strategic needs in
the development plans can be ensured and women‘s interest in various sectors are
taken care of. We can summarize the main observations of these researches are as
follows:18

 Women understand additional stress from disputes between their jobs and
family responsibilities.
 There is an outstanding difference in the appreciation between male and
female employees with respect to recruitment, selection, promotion and
transfer, condition of services and personal standards.
 Women‘s position in terms of power and dominating decision making has
not yet developed.
 The existence of women at the higher level is still low.
 The dual responsibility of women for home and family act as a barrier to
advancement professional commitment.
 Personal, attitudinal, organizational and functional barriers hamper
women‘s participation in civil service.
 Gender prejudice and sexual persecution in the working place are two
major concerns for working women.
 Truancy of friendly working environment is another area of discuss.
 Despite government‘s policy of equal opportunity and affirmative action
the situation of women has not improved to any significant degree.

18 Status of Implementation of Policies and

International Commitments Related to Women in Bangladesh, in Policies, Budget
and PRSP: Are They Promoting Women’s Rights in Bangladesh?, ed Rokeya Kabir,
University Press Limited, Dhaka, pp. 3-154.]

Page | 22
No comprehensive and in-depth study has been tackled to judge the challenges and
prospects of woman in Bangladesh civil service. This study, therefore, would attempt
to fill in a significant gap in the literature of women in tier of administration.19

2.2 Introduction:

The civil service of a country is an indispensable organ of the government. The term
‘civil service’ generally includes all functionaries of the government excepting those
in the military service. ‘The need for performing routine administrative duties is
present in both the developed and the developing countries. But, in a developing
country, the additional function of promoting development must also be done.
Bangladesh, as a developing country, needs a civil service of high quality and
integrity’. 20

2.3. Classification:

The civil service of Bangladesh has several features in its organization, composition
and classification. Before going to the discussion on the position of women in the
civil service it is imperative to discuss these features. The civil service has been
classified vertically into four categories, Based on such variables as levels of
responsibility, educational qualification and pay range. Namely –

 class-I,
 class-II,
 c-III and
 class-IV

The differentiation between the classes is strictly maintained and inter-class

movement is discouraged and extremely difficult. So those who belong to the lower
ranks of the public service, more specifically classes III and IV are usually considered
as scheduled castes within the public service system. The situation of those who

19 4/09/women-fal0ezul Haque, Parliament

Correspondent, Published: 2018-04-09

20 Report of the Pay and Services Commission,

1977.

Page | 23
belonging to class - II is relatively better. The category class-I is the highest category
of civil servants.

All government employees are broadly classified into two broad categories, As-
gazette and non gazette. The employees whose appointment, transfer, promotion,
posting and so on are notified in the official gazette -a public document published
periodically by the government which are known as gazette officers. All class-I and
most class-II government servants are treated as gazette officers. They are normally
invested with high powers and responsibilities and consequently enjoy greater
privileges than the non gazette employees.

Within the public service a very small number of civil servants belong to the cadre
service. Cadre services are those services, which are constituted under law with a
number of positions or structure and recruitment and promotion rules. On the other
hand, non cadre services are mostly based on position, with no definite structure of
mobility either horizontally or vertically.

A cadre system entails organization of civil servants into semi-functional occupational

groups or cadres. At present there are 29 cadres in Bangladesh Civil Service (BCS).
The name of the cadres are : B.C.S. (Administration), B.C.S. (Agriculture), B.C.S.
(Ansar), B.C.S. (Audit and Accounts), B.C.S. (Economics), B.C.S. (Co-operative),
B.C.S (Customs and Excise), B.C.S. (Family Planning), B.C.S. (Fisheries), B.C.S.
(Foreign Affairs), B.C.S. (Forestry), B.C.S. (Food), B.C.S. (General Education),
B.C.S. (Health), B.C.S. (Information), B.C.S. (Judiciary), B.C.S. (Livestock), B.C.S.
(Police), B.C.S (Postal), B.C.S. (Public Health Engineering), B.C.S. (Public Works),
B.C.S. (Railway Engineering), B.C.S. (Railway Transportation and Commercial),
B.C.S. (Roads and Highways), B.C.S. (Statistical), B.C.S. (Taxation), B.C.S.
(Technical Education), B.C.S. (Tele-communication), B.C.S. (Trade).

Recruitment to the cadre services is made through the Public Service Commission
(PSC) on the basis of open competition. Subsequent to the completion of the selection
process, direct recruits to the BCS are assigned to an occupational cadre on the basis
of performance, vacancies and preference of candidates. A civil servant usually
remains a member of his/her chosen cadre throughout his/her career. Consequently,
the job types, posting and promotional prospects are determined by the cadre to which
one belongs. ‘All cadre civil servants are class-I officers but all class-I officers do not

Page | 24
belong to the cadre service. The cadre officers compared to other class I officers enjoy
more facilities and benefits, prospect for relatively rapid promotion, better training
and varied job assignments’.21

2.4 Legal basis for the selection of BCS officers

It should be noted here that the recruitment policy was first introduced in
Bangladesh by an executive order in September 1972, called Interim Recruitment
Rules 1972, before the constitution came into operation in December of that year.
In 1976, recruitment rules for appointment of superior positions were framed.
This has undergone changes from time to time (Ali, 2004). The rules for
recruitment of Civil Service cadres followed the framing of rules for the creation
of BCS cadres in 1980. The recruitment rules were notified in January 1981.
These rules mainly dealt with the procedure for recruitment, period of probation,
and conditions of confirmation in service. In 1982, elaborate recruitment rules
were framed for appointment to various cadres of BCS. These rules prescribed
criteria for eligibility in respect of age and qualifications of candidates to be
recruited directly to various services.

The constitution of Bangladesh has granted equal employment opportunities for

citizens. The constitution declares, “There shall be equality of opportunity for all
citizens in respect of employment or office in the service of the Republic”
(Article 29 [1]). “No citizen shall, on the grounds only of religion, race, caste,
sex, or place of birth be ineligible for, or discriminated against, in respect of any
employment or office in the service of the Republic” (Article 29 [2]). However,
under Clause (3) of the same Article, the constitution has provided certain

21 The fifty percent: Women in development and

policy in Bangladesh. Dhaka: University Press Limited.

Page | 25
exceptions that read as follows: “Nothing in this article shall prevent the state
from -

1. Making special provision, in favor of any backward section of citizens for

the purpose of securing their adequate representation in the service of the
Republic;
2. Giving effect to any law which makes provision for reserving
appointments relating to any religious or denominational institution to
person of that religion or denomination;
3. (c) reserving for members of one sex any class of employment or office
on the ground that it is considered by its nature to be unsuited to members
of the opposite sex (Article 29 [3]).
This constitutional provision indicates that civil service recruitment policy in
Bangladesh is an admixture of merit and quota.

2.5 Reservation of Seats (Quota)

Recruitment policies regarding BCS are characterized by reservation of posts

based on the principle of representation and special consideration shown to
specific groups of people . The prevailing system, which is quite complex and
based on many factors, has an anti-merit bias. 55 percent post reservation for
various categories deny meritorious individuals from entering the civil service
(Jahan, M. 2012). Quota may be necessary for the advancement of backward
sections in the society, but it can never continue for an indefinite period as it is
going on at present in Bangladesh. Due to quota policy, relatively poor caliber
officials get entry into the civil service. So, long-term bad impact of quota system
is evident in the civil service of Bangladesh. In this situation, we propose to
abolish quota from the civil service recruitment process except in the case of
tribal people (5%); but not for Chakmas who on an average are financially better
off than the general people of Bangladesh; and also their literacy is higher, around
75 percent, and then the general literacy in Bangladesh, which is 63 percent.
Thus, Chakmas in no criterion belong to the backward section in Bangladesh
(Wahhab, 2009: 8). Akbar Ali Khan, a former Adviser to the Caretaker
Government, said that allocation of appointments based on quotas should not be
greater than based on merit; it gives people an impression that the less efficient

Page | 26
people get appointments through the quota system and, thus, the quality of public
administration drops.

In both general and technical cadres, candidates having lower marks in written
examination are getting recommendations for cadre posts. But, a great number of
candidates having comparatively higher marks are not getting recommendations for
cadre posts. The following statistics of 29th and 30th BCS published by BPSC in its
Annual Report, 2011has been shown in Table-3 & Table-4 as evidences in favor of
the above-mentioned statement. Within the existing legal framework, this
discrimination can happen due to the present quota system for the selection of BCS
officers.

Table-2.1: Statistics of 29th BCS Examination

Marks For General cadres For Technical cadres

obtained No. of candidates No. of candidates No. of candidates No. of candidates

passed in written recommended for passed in written recommended for
examination cadres examination cadres

50-52 1298 3 (0.70%) 871 523 (40.48%)

52-54 1262 4 (0.93%) 880 183 (14.16%)

54-56 1162 35 (8.14%) 864 211 (16.33%)

56-58 831 54 (12.56%) 719 184 (14.24%)

58-60 511 94 (21.86%) 489 122 (9.44%)

60+ 435 240 (55.81%) 403 50 (3.87%)

Page | 27
 Source: Annual Report 2011, published by BPSC.

Table-2.2: Statistics of 30th BCS Examination

Marks For General cadres For Technical cadres

obtained No. of candidates No. of candidates No. of candidates No. of candidates

passed in written recommended for passed in written recommended for
examination cadres examination cadres

50-52 1290 10 (1.34%) 1006 767 (47.37%)

52-54 1462 19 (2.54%) 1010 130 (8.03%)

54-56 1480 48 (6.42%) 1055 180 (11.12%)

56-58 - - 940 196 (12.11%)

58-60 998 152 (20.32%) 742 181 (11.18%)

60+ 1128 439 (58.69%) 869 165 (10.19%)

Source: Annual Report 2011, published by BPSC.

Due to reservation of posts, for freedom fighters’ wards there has been emerged the
question as to whether it infringes upon the constitutional right of every citizen to an
absence of discrimination on account of birth. It inflicts a further blow on the
principle of merit. The 30 percent quota for the wards of freedom fighters “though
Page | 28
sanctioned by a wave of sympathy and gratitude has not a legal leg to stand on unless
the beneficiaries proved to be disadvantageous (Khan and Kazi 2008: ). If we really
want help the wards of freedom-fighters, we should ensure their better education by
providing stipend as we already did for female education which has yielded good
results (Wahhab, 2009: 9).

As for women quota, it may be mentioned here that civil service officers are mainly
recruited from among the graduates of different universities. There is no female quota
for admission to the universities of Bangladesh. Both male and female students get
admission to the universities based on merit. A large number of female students are
pursuing their studies in different universities and other educational institutions. And,
they are doing well there. Therefore, there is no justification of keeping quota for
women in the civil service recruitment process.22

Moreover, quota has always been implemented without transparency. The

appointments under quota have never been made public, either by PSC, or by MoPA,

in official documents and gazette notifications (TIB, 2007: 9). According to the
annual report of the PSC for 2011 that was presented in the Parliament, the
implementation of the current policy regarding the quota system is 'very much
complex, difficult and requires (too) much time'. It is almost impossible to select
eligible candidates following a 100 percent perfect way for the complexity in the
current quota system. It is warranted to simplify the current quota system in order to
select candidates through BCS examination. "Otherwise, it is not possible to be free
from the complexities to implement the current quota system," the report said. In
addition, it proposed appointment of candidates in quotas for freedom fighters,
women, and small ethnic groups by categorizing them nationally. "The complexity
will increase if they are appointed on the basis of districts, division or size of
population."23 Practically, most of the researches and analyses on Bangladesh Civil

22 Flippo and Edwin 1984. Personnel Management, Mc

Grow Hill, Singapore.

23 bdnews24.com, 29 May 2012.

Page | 29
Service have recommended a modification of the existing quota system in the
country.

2.6. Interference of Political Forces and Corruption

The reputation of PSC as an independent body carrying out its duties impartially and
with probity has been significantly undermined over a period of several years. It has
been said that governments in the past have appointed politically aligned persons as
the Chairman and Members to establish a partisan control over the civil service
recruitment process (IGS, 2008:2). As a result, there are allegations of recruiting
candidates who are aligned to the ruling party. This trend has badly affected the
quality of BCS. There have been blatant examples of partisan recruitments in the
important cadres like Administration and Police (TIB, 2007: 8).24

The attempts to politicize the bureaucracy bring back the spoils system (patronage
appointment and political favor) in the government, thus damaging the efficiency of
civil service. Recruitment based on political connections has brought a decline in the
standard and quality of human resources in the civil service. It also puts barriers to
attracting qualified candidates and reduces their morals .25

Leakage of BCS question papers has been happening on a regular basis. PSC had to
cancel the 24th BCS Preliminary Test due to the alleged leakage of question papers.
Corruption in viva-voce, discrimination against religious minorities, changing marks,
and giving extra-ordinary marks to some particular candidates, and bribe-taking by
the Members, officials, and staff of the PSC are among the serious allegations made
against the PSC which have damaged the credibility of PSC as well as civil service
examination process (TIB, 2007).

All these problems have not only created anomalies, contradictions, confusions, and
deficiencies in the recruitment and selection process of the country, but also have

24 Transparency International Bangladesh (2007), Bangladesh

Public Service Commission: A Diagnostic Study. Dhaka: TIB.The Daily Shamokal, August 14, 2009
25 Jahan, M. (2012), Recruitment and Selection
process in Bangladesh Civil Service: A Critical Overview, Public Policy and
Administrative Research, Vol.2, No.5, 2012, Dhaka: University of Dhaka

Page | 30
helped undermine the people’s trust in the recruitment process (Zafarullah and Khan,
1983:132).26

‘Successful recruitment and selection depend on an adequate supply of competent or

educable workers, an effective information network that reaches the appropriate
population of prospective employees, a sufficiently attractive organizational
environment to entice the desired job candidates, a clear sense of organizational
priorities, and a reliable means of choosing the applicants who are the most highly
qualified” (Hays and Sowa, 2010).

2.7. Government Policy and Status towards Women in Bangladesh

After the genesis history of Bangladesh, it was found that, in the civil service, women
were under represented. Recognizing this problem, in each case of Bangladesh
Constitution to provide equal opportunities for women and men has important
provisions. Moreover, the government adopted quotas or reservation of posts for
women in entering the civil service and took many policies not only to increase
women's representation in the civil service but to integrate women into the
mainstream of development.

2.8 The Constitutional Guarantee of Equal Job Opportunities

Bangladesh Constitution to assure equal treatment for men and women in every
aspect of life.

Article -29 of the Bangladesh Constitution states that:

 “There shall be equality of opportunity for all citizens in respect of

employment or office in the service of the Republic”.

 “No citizen shall, on grounds only of religion, race, caste, sex or place of birth,
be ineligible for, or discriminated against in respect of, any employment or
office in the service of the Republic”.

26 [Zafarullah, H. and Khan, M.M. (1983), ‘staffing

the Higher Civil Service in Bangladesh: An Analysis of Recruitment and Selection
Processes,’ Public Administration and Development, vol.3, Issue.2, pp.121-133.]

Page | 31
  “Nothing in this article shall prevent the State from-

(a) Making special provision in favor of any backward

 Section of citizens for the purpose of securing their adequate representation

in the service of the Republic;
(b) giving effect to any law which makes provision for reserving appointments
relating to any religious or denominational institution to persons of that religion
or denomination; reserving for members of one sex any class of employment or
office on the ground that it is considered by its nature to be unsuited to members
of the opposite sex.

 Article 9: The State shall encourage local government institutions composed

of representatives of the areas concerned and in such institutions special
representation shall be given, as far as possible, to peasants, workers and
women.
 Article 10: Steps shall be taken to ensure participation of women in all
spheres of national life.
 Article 19 (1): The State shall endeavor to ensure equality of opportunity to
all citizens.
 Article 27: All citizens are equal before law and are entitled to equal
protection of law.
 Article 28 (1): The State shall not discriminate against any citizen on
grounds only of religion, race, caste, sex or place of birth
 (2): Women shall have equal rights with men in all spheres of the State and
of public life.
 (4) : Nothing in this article shall prevent the State from making special
provision in favor of women or children or for the advancement of any
backward section of citizens 27

By incorporating the above articles, the constitution gives special attention to women
in democracy and local government.

27 (GOB,1993:9,13,19).

Page | 32
The nation puts no legislative barrier in the way of promoting gender equity in the
sphere of social, political, and economic activities. The constitution gives guarantee of
equal rights to women and also makes special provision for providing all necessary
protections to backward sections of the society. 28

2.9. Problems behind Low Participation of Women in BCS Cadres

The reason behind this inadequate representation of women in BCS Cadres is multi-
dimensional. Women facers in cadre services face multi faceted problems which arise
both at home and in the office. Women’s marginalized position in the BCS could be
seen as stemming from a complex interplay of factors – historical, cultural, socio-
economic, administrative and attitudinal.

Social reasons include too many household and reproductive duties, limited mobility,
insecurity and societal backwardness. Administrative reasons include among others
lack of appropriate work environment. Attitudinal problems refer to negative outlook
and attitudes of colleagues, clienteles, bosses and general people towards women
officers. The masculine cultural pattern of our society also limits female employment
opportunity.

2.10. Quota System and Policy in BCS

After the birth of Bangladesh, though there were no recruitment rules were framed,
number of recruitment was made. An interim recruitment policy was framed in 1972
for the recruitment to various posts and services.29

To achieve equitable presentation of people was the major thrust of that policy. There
was quota reservation for different categories like- district quota on the basis of
population, quota reservation for war-affected women, tribal and freedom fighters.
This policy had undergone changes from time to time.

28 Government of Bangladesh. (2011). The Constitution of

Bangladesh. Dhaka: GOB.]

29 Government of Bangladesh. (2011). The Constitution of

Bangladesh. Dhaka: GOB.[26]-Bangladesh Civil Service: A Political–Administrative Perspective.
Dhaka: University Press Limited.

Page | 33
Bangladesh government was first promulgated Reservation of quota for women in
public services under a notification of the government in 1976. With the declaration of
1975 as the International Year of women and 1976-85 as the UN decade of Women, it
was a straight consequence of a greater national awareness created about the
importance of women’s role in the development procedure. The order quotes
as-“There shall be 10 percent quota for women candidates in all categories of
vacancies subject to their fulfillment of basic qualification. This, however, will not
apply in respect of recruitment to technical post, post in defense services and in such
other post as may be considered unsuitable by the Ministry concerned”.30

The provisions for quota reservation by GOB shown at below table:

Table 2.3. Quota Reservation Policy, 1997

SL Type of Quota Class I and II Class III and IV Non

no Gazetted Posts Gazetted Posts (Percentage)
(Percentage)
I Qualification (out of 45
District Quota)
II Physically 10
handicapped/mentally
Retarded (out of
District quota)
III District or Regional 30 30
quota (based on
Population): The
Fighters of the
Liberation War or in
the absence of
them martyred
fighter’s children
Women
Tribal 10 15

30 The fifty percent: Women in development and policy

in Bangladesh. Dhaka: University Press Limited

Page | 34
 Ansars/Village 05 05
Defence members
Remaining (for the 10
general candidates
for the District)
10 30
Total 100 100

Sources-Quota System in Bangladesh Civil Service: An Appraisal. Masters

Dissertation. Dhaka: BRAC University.

Currently, 56% of public services is covered by quota-preferences, thus only 44% jobs
are left for recruitment based on qualification. Additionally, 1% is preserved to
physically disabled citizens.

So, the GOB for women, in non-gazetted posts 15 per cent quota and 10 per cent
quota for the employment of reserves gazetted posts as special measures to enhance
31
the participation of women in the civil service. The government's positive goals and
desires for attaining gender equality in the civil service, this policy actually reveals
that.

In case of direct recruitment, the government has introduced the quota system. After
independence, the government found that, in the public service not only women, but
ethnic religious groups and some of the regions were under represented. The
constitution, as a result, indicated its faith in the broad tenets of Equal Employment
Opportunity, which were to govern the recruitment and selection of public personnel.
In fact, recognizing the urgency of the problem the government adopted quotas which
was reflected in the Interim Recruitment Policy of 1972 and is still followed by the
government with various modifications from time to time. This was designed to
achieve greater equity in the representation of all regions and groups in civil service
by reservation of positions and giving preference to certain sections of the population.
The following table shows the present quota distribution in BCS.

Table 2.4– Administration of quota System

31 Direct Recruitment in the Cadre Services in

Bangladesh: An Overview. Pakistan Journal of Social Sciences, 3 (7), 915-921.

Page | 35
 Distribution of
vacancies Gazetted Posts Non Gazetted
(Class I & Posts (Class I &
Class II) Class II)

Merit 45% Nil

Women 10% 15%

Wards of Freedom
Fighters 30% 30%

Tribal People 5% 5%

Others 10% 10%

Ansar and VDP -- 10%

Source: Ministry of Establishment, GOB

The present quota system reveals that, for the recruitment in cadre services, 45 per
cent of available vacant posts would be filled on the basis of merit and the remaining
55 per cent would be based on district quota. Special quota like 30 per cent for wards
of freedom fighters, 10 per cent for females and 5 per cent for tribal’s would be
adjusted from the district quota. Different special types of quotas would be distributed
among the qualified candidates on the basis of their merit in their respective group.
Quota distributed rules-

1. The percentage reserved as a special quota would be calculated on the basis of

the total number of vacant posts.
2. Merit quotas would not be affected by any other special or district quota.

Page | 36
 3. After distribution of vacant posts on the basis of special quotas, the rest of the
posts would be distributed among the candidates of respective district after
adjustment with the special quota distribution.

In selecting the candidates as non-gazette officers, all vacant posts should be

distributed district wise on the basis of the population of the district. Then different
special quota like as 30 per cent for wards of freedom fighters, 15 per cent for
females, 5 per cent for tribal and 10 per cent for Ansar and Village Defense Party
(VDP) would be maintained on the basis of their merit. Finally, undistributed vacant
posts would be distributed against the number of posts available in the respective
districts to the qualified candidates. Number of available post under each district
would be determined after deducting the number of persons selected in the respective
districts through different special quota.32

Thus, the GOB has made special arrangements to enhance female participation in the
civil service, by reserving a 10 per cent employment quota for gazetted post and 15
per cent for non gazetted post, for the females. This policy reflects government’s good
intention and wishes for attaining gender equality in the civil service.

2.11. Status of Women in the Higher Civil Service Position

Class I leadership posts of the civil service are classified vertically into six ranks
includes Secretary, Additional Secretary, Joint Secretary, Joint Secretary, Deputy
33
Secretary, Senior Assistant Secretary and Assistant Secretary . The selection of
applicants for the different cadre services is made through an open competitive
examination at present.

Table 2.5: Number of Female Officers in the Civil Service

32 Review of Quota System Government sits on PSC

recommendation. Daily Star. Retrieved from http://archive.thedailystar.net/beta2/news/govt-sits-on-
psc-recommendation
33 .“Women in Bangladesh Civil Service: Present
Statusand

Challenges,” Society & Change 6 (2): 62-70.]

Page | 37
 Ministry/ Autonomous Divisional/ Deputy

Department/

Class Division Bodies/ Commissioner’s Total

Directorates

(Secretariat) Corporations office

I 435 9794 5310 248 15787

II 277 3866 2901 0 7044

III 313 150682 7022 940 158957

IV 315 43196 3003 1124 47638

Total 1340 207538 18236 2312 229426

Bureaucracy in Bangladesh: A Reformist Perspective. Dhaka: BRAC University.

The table 2.5 depicts that, the representation of women in the civil service is very
much insignificant. The table shows that the number of women in the Class I post
in different Ministries/Divisions, Department/ Directorates, Autonomous
Bodies/Corporations and Divisional/Deputy Commissioner’s office is only
15787. The total number male in the Class I post is 103776. The percentage of
women holding first class posts are 15.21% and the percentage of men holding
first class post is 84.79%. Women are also in poor condition in class II clerical
posts. Women’s representation in the leadership position shows a very frustrating
picture.

The table 3 presents data about the male and female officers at middle and senior
levels working in the civil service. Women are made up 21 percent of middle and
senior level of administration in 2011.

Table 2.6: Representation of Male and Female Officer’s Breakdown by Sex from
1999 to 2011

2011 2006 1999

Rank

Page | 38
 Me
n Women Men Women Men Women
(%) (%) (%) (%) (%) (%)

Secretary 96.1 3.9 98.4 1.6 98.0 2.0

Additional Secretary 94.8 5.2 100.0 0.0 98.2 1.8

Joint Secretary 90.2 9.8 93.2 6.8 98.5 1.5

Deputy Secretary 88.1 11.9 88.3 11.7 98.6 1.1

Senior Assistant Secretary 79.8 20.2 84.3 15.7 91.0 9.0

Assistant Secretary 79.8 25.9 77.3 22.7 85.7 14.3

Total 79 21 85 15 91.5 8.5

[Source: 34.UNDP, 2014.]

We can see from the table 3, there are progresses of numbers by comparing from
right to leftover time. There is slow and steady progress with intensifications up
to the position of Joint Secretary from 1999 through to 2011. Though, there is no
noticeable increase in 12 years at Secretary Position and, at the Additional
Secretary position. There is intensification in 2011 to 5.2 percent only. Still, it is
very low in absolute numbers. In the Bangladesh Civil Service Administration
Cadre, about 15 percent of officers were women, but at the level of Secretary
represent only about 2 percent and 7 percent of the level of Joint Secretary in
2006. The participation of women in the civil service was around 15 percent and
by 2009, this had increased to 21 percent and their percentage at class I position
was 14 percent in the year 2006 (UNDP, 2014).

Page | 39
There is noticeable difference can also be found in the leadership position of field
administration. The country is divided into four tiers: Division-District-Upazila
and Union for administration purposes. Therefore, leadership position in the field
administration poses very distinctive position in the civil service. Particularly
position of the administrative head of Division, District and Upazila is an
important leadership position in the civil service system. They are recognized as
an elite position in the field level bureaucracy. It was found that in Bangladesh
the officials of the BCS (administration) cadre filled up this position. Those who
are posted in this position have high probability to take the position of Secretary.
The following table shows the representation of women in this leadership
position:

Table 2.7: Women in Field Administration, Leadership Position

2016

Rank

Men Women

Division Commissioner 8 0

Deputy Commissioner (District Head) 64 5

UpazilaNirbahi Officer (Upazila Head) 425 70

Source: 35. The Ministry of Public Administration, 2016.

The table 10 shows that women have no representation in divisional

commissioner position. The analysis of the document also shows that women
were never posted as divisional commissioner in Bangladesh. However, women
are posted as Deputy Commissioner (DC) and currently 5 female officers are
serving as DC in five Districts. The most positive change happened for women
mainly in the position of UpazilaNirbahi Officer. Female UNO can be easily
found in this position. Even several women are working as UNO in most remote
Upazilas of the different hill district. The above table shows that 70 out of 425

Page | 40
UNOs are women. This can be taken as a positive trend for women in Civil
Service leadership issue.

The following Table 2.7 depicts that, the presentation of women in different
cadres of the civil service serves no way for satisfaction. The other cadres of the
civil service, excepting the administration, the representation of women is poor.

Table 2.8: Number of Selected Male and Female Candidate in Different BCS
Examinations

Name of BCS

Men Percentage Female Percentage Total

Examinations

26th BCS 703 66.13 360 33.87 1063

27th BCS 2417 74.62 822 25.38 3239

28th BCS 1520 69.41 670 30.59 2190

29th BCS 1232 71.54 490 28.46 1722

30th BCS 1623 68.57 744 31.43 2367

Total 7495 70.83 3086 29.17 10581

[Source:36.psc , 2012.]

The table 11 depicts that, the number of female candidates in the 26 th, 27th, 28th,
29th and 30th BCS examinations less than half of their male counterpart at the
entry level of the civil service as assistant secretary level. The percentages of
selected male candidates are 70.83, where the percentages of selected female
candidates are only 29.17. So, it can be said that women are very poorly

Page | 41
 represented at the entry level of the civil service, though there is an opportunity
of quota for the female candidate.

2.12. Rationale behind Women Quota in BCS

The quota system aims at improving the scope of employment for women in BCS as
they have long been deprived of education, training, and all other opportunities. Their
participation in the civil service is minimal due to low educational rates, restricted
mobility, lack of security and traditional social values as mentioned in many studies.
But it is very difficult to develop the society by keeping them away from the
bureaucracy as it determines most of the government policies. So Women should get
the chance to enter into various positions of civil service. Through the quota system
women are accessing better scopes of employment. It can ensure the participation of
women in all possible cadres as well as help to remove stereotyped images towards
female profession.

Opponents of quota system say that, it is a barrier to merit and administrative

efficiency. It is often criticized that in the face of unemployment of males, females are
given undue privileges through the quota system. This system also supports
underestimation of abilities, discrimination and gender specific standards of females,
which could lead to further discrimination of women. But there is no cause to believe
that women who were hired through the women quotas being hired without their
required qualifications. Rather, they have to show their competence by appearing in
different examination, the same as males. A quota system may be explained here as a
way, whereby, some eligible female candidates are getting an added opportunity to
enter into the civil service.

Considering the history of the country, there have been barriers for female
participation in civil service for a long time. The women should therefore be entitled
to opportunities to show their competence. Section-3 of Article –29 of the constitution
of Bangladesh has empowered the state to make some special arrangements for the

Page | 42
backward classes of people. Article-4 of the Convention on the Elimination of All
forms of Discrimination Against Women (CEDAW) also stated that, it will not be
treated as discriminations, if the state parties take special measures for equality
between male and female. However, the women quota in BCS cannot be treated as
discrimination, since women have been obstructed to come in civil service for a long
period of time. The quota system is necessary until women representation reaches a
specified level in the civil service cadres. One of the PSC member stated that, the
quota policy would reduce the social tension and ensure social justice for women as
well as voice their concerns in every sphere of the society.

2.13.Bangladesh Civil Service A Political-Administrative Perspective

Politicization of civil service has been much discussed in the media. Little research as
to its implications on economic, social and political order exists. The author’s analysis
of this burning issue is truly revealing. Drawing on examples from the United
Kingdom, the author acknowledges that civil servants have to act under political
direction. However, politicization of civil service in Bangladesh has been carried to
absurd lengths. The point he makes is that this type Of politicization is anathema to
constitutional governance. In public eye, the civil servants become almost
indistinguishable from the party activists. Viewed in this perspective, politicization of
services will clearly appear as self-defeating political stratagem — it destroys
institutional governance that makes way for a failed state. The study comprising
twelve chapters provides considerable information on the historical background of the
civil services and their developments since 1757 AD. The study provides data and
information which should serve as an important backdrop to a proper comprehension
of the dimensions of any future exercise of the reform and reorganization of services
in Bangladesh. ‘The inter-relationships of the civil service and the judiciary, ministers
and parliament discussed provide a worm's eye view to anyone interested in the
subject and would help in dispelling misperceptions about the character, role and
conduct of public servants in a complex and difficult environment. This dispassionate
and objective study fills a yawning gap that exists in the availability of literature on
the subject.’

2.14 Government Policies Regarding Women Employment

Page | 43
The GOB has declared the National Policy for the Advancement of Women (NPAW)
on 8 March, 1997. It has addressed 14 different and relevant issues where
employment and administrative empowerment of women were given special
emphasis. With a view to create employment opportunities for the women,

The following measures were suggested.

1. Increase efforts to employ all educated and uneducated females.

2. Increase female quotas and ensure its effective implementation in all spheres.
3. Motivate all appointing authorities to follow government quotas and to
provide equal facilities for females under the purview of government
employment policy.
4. Create congenial atmosphere to sustain the entry of females in the job market
in greater numbers, their continuation and advancement there on.

For the administrative empowerment of women, the following policies were

undertaken.

 Make provisions for contracts and lateral entry to facilitate female access to
government service in the higher levels of administrative structure.
 Appoint females to the higher positions of Judiciary, University Grants
Commission, Ambassadors, State Representatives in different United Nations
Bodies and other International Organizations.

 Continue the quota system and increase the quota at all levels.

Increase efforts for achieving a 30 per cent female population at all levels of decision
making, including policy level post. The National Action Plan (NAP) was declared by
government in 1998. It has furnished the role of 15 concerned ministries and some
other relevant ministries in the plan for increasing female participation in public
sector and decision making levels. Moreover, the Ministry of Law, Justice and
Parliamentary Affairs and the Ministry of Labor and Manpower were assigned to take
action for recruiting women in Judicial and senior management position.

Page | 44
It is therefore very clear that, excluding the constitutional guarantees and ‘Quota
Policy’ for women, many other policies has also been taken by the GOB to increase
women participation in the civil service. So it can be said that, government’s policy
objective is streaming women in BCS.

2.15 Components, Affecting the Prospects of Women in Bangladesh

Civil Service (BCS)

The reason behind the inadequate representation of women in the civil service staff is
multi-dimensional. Women cadre service officers, which arise both in the home and
office facing multiple problems. Women’s sidelined position in the BCS could be seen
as restricting from a difficult relationship of different issues, including historical,
attitudinal, traditional, socioeconomic and organizational also. Some influencing
factors are debated below:

2.15.1 Lack of Appropriate Policies

Policies and procedures regarding the recruitment transfer, training and deputation of
female civil servants is suffering from inappropriateness. The existing policy is very
much unfriendly to women and discourages them not to join the civil service.

2.15.2 Negative Attitude of Male Colleagues

Our society is highly a male controlled society. Society's values, norms, religious
beliefs do not allow women to be in decision making positions. Men cannot accept
women as mentally bosses and colleagues. Men's fit enough to take the challenge and
make the decision is in the top positions. Male colleagues have a tendency to
dominate their female colleagues, and in many cases the distribution of unequal
treatment women receives official duties. These experiences create negative impact on
them.

2.15.3. Family Responsibilities

Due to the cultural heritage of the responsibility lies with the women in a family.
Sometimes they give priority to the family when they need to choose between the
family and career. She has to look after his office and the house, because it is a

Page | 45
working woman, a double burden. Full-time working women from domestic
responsibilities are not forgiven. This office is an obstacle to maintaining a high
standard of performance, which takes away a big part of their productive energy.
Women are expected to play at home and office due to the multiple roles, it is difficult
to perform efficiently.34

2.15.4 Lack of Adequate Facilities and Services

Lack of adequate facilities and services like day care centre’s, separate washroom for
female staff; amiable working atmosphere; transport and accommodation, etc. for
working women are not duly considered and that discourages women to join the civil
service [39]. Women in Bangladesh Civil Service: Vulnerability and Challenges.
Paper presented for the 12th World Congress of Rural Sociology, Goyang Korea. 35

2.15.5Widespread Touring

Remote areas are often mandatory tours, night hold, law enforcement, disaster
management, emergency duties entails physical and psychological dangers. Men
Senior Women officers keeping restrictions, state "important issues" do not depend on
them. This approach limits the opportunity for women to hold important positions
36
.-- Reflection of Structural and Cultural Mindset in Representation of Women in
Bangladesh Civil Service.

2.15.6 Security Problems

Abuse and harassment is a very common affair in Bangladesh. Lack of proper

security is a major cause for not to join the civil service. Though it is challenging job,
security is a very vital issue for women.

34 Gender Mainstreaming in Bangladesh Civil Service:

Prospects and Constraints. Asian Affairs, 29 (1), 41-72.
35 http://www.irsa-world.org/XII/papers/1-2.pdf

36 SAARC Journal of Human Resource Development,

7(1), 83-93

Page | 46
2.15.7 Lack of Women’s Participation in Policy Making

Women are absent in policy formulation, implementation and evaluation regarding

women’s advancement. A sufferer can make a solution of his or her problem the
better. Involvement of women in policy making can advance them more, but lack of
women’s participation in this arena hinders the way of progress.

2.15.7 Non cooperation of male colleagues and family members

Women face difficulty when posting them at remote place. Then they feel difficulty in
performing the household activities, child care and other family commitments. In such
situation, non-cooperating attitude of the husband and family members also act as an
impediment in continuing and joining the job. Women’s role as a ‘working women’
and as a ‘wage earner’ is not adequately and properly considered. Most of the
husbands do not share responsibilities in the household work but expect that, their
working wives would look after all the comforts of the family as perfect ‘home
managers’. The male colleagues have dual sets of values towards the roles of females.
At home, they want to see their female members perform their roles effectively, and
yet most of them do not like to consider the plight of their female colleagues if, they
want to leave early or arrive let because of household duties or childcare problems

2.15. 8 Lack of Awareness Building Prgramme

There is a lack of mass awareness campaign programs and gender sensitive code of
conduct also. This campaign specially needed to male civil servants. But such
awareness program is still missing in Bangladesh.

2.15.9 Societal Backwardness

There exists a belief, staring from the employer to the common people that women are
unsuitable for administrative and challenging jobs, owing to the cultural alignment.
Accordingly, by the community women are not accepted as a ‘magistrate’ or ‘police
officer’. Very rarely, people inspire women to join or continue their jobs in such

Page | 47
positions. There have developed close mindedness in both males and females because
of social preconceptions and old-fashioned approaches generated by cultural
conditioning along with norms, values and the socialization process. Negative social
approaches towards female professional career create low career interest among
female. 37

2.15.10 apprehension of getting posted in remote areas and transferable

nature of jobs

Women have a natural tendency to live with family. They are not willing to go to
other places for the purpose of services, leaving family members. They do not like
transferable jobs because of family concern and family barriers. Sometimes they are
forced to resign from jobs because of transfer problem, which creates conflicts in their
family life. But it is not always possible to post the females in their husband’s work
area due to non availability of the required post. Apprehension of getting posted in
remote areas and frequent transfers in government services make women less
interested to pursue a career in civil service. Women are in favor of jobs which have
less transfer problems.

2.15.11 Lack of child care facilities

Childcare has become one of the main issues for all working mothers. Due to the
changing family structure, people live in nuclear families where there is virtually
nobody to look after the children or to extend support in the household chores. In the
absence of childcare facilities a woman has to depend and rely on inefficient and
unreliable maidservants. As a result she is usually mentally occupied with her children
and household work while she is at work, which disrupts her office work. Sometimes
it becomes difficult for her to reach office in time and she is often forced to return
home before the office closes or go on frequent leaves that are why women are still in
favor of jobs related to teaching which have more leave opportunities.

2.15.12 Absence of appropriate and supportive environment in the work place

37 Gender Mainstreaming in Bangladesh Civil Service:

Prospects and Constraints. Asian Affairs, 29 (1), 41-72.

Page | 48
Lack of favorable work environment is one of the main reason for the low presence of
women in civil service. Socially, we still consider men’s work much more important
than women’s work. As a result, work-space, work-patterns are completely male
oriented in our country. Special arrangements for women officers are absent in our
office environment. The following problems are found to be responsible for limited
entry of women in civil service, as identified in several research works.

 Absence of a day care centre.

 Unavailability of an individual room in which to work.
 Lack of separate rest room facilities.
 Lack of separate toilet facilities.
 Absence of a congenial working environment.
 Inadequate transport facilities.
 Inadequate residential accommodation.
 Lack of Career women’s hostel facilities.

2.15.13 Superiority complexes and negative attitudes of the male colleagues

Our society is a male dominated society. The values, norms, religious beliefs of our
society do not permit women to be in decision making position. Men are not mentally
oriented to accept women as bosses and colleagues. Man feels humiliated working
under a female. His male ego hurts. Men think women are not competent enough to
be in top position, to take challenges, to make decisions. The male officers want to see
women officers in the typical ‘female image’ and think that they would always be
docile and dependant on males. Male colleagues have a tendency to dominate their
female colleagues and in many cases female officers receive unequal treatment in
distribution of responsibilities. The tendency to treat women officers in a gender
biased fashion creates a negative impression among women which also make a
negative impact on the overall work environment.

2.15.14 Lack of Security

Lack of security refers to the protection of women’s privacy as well as protecting

abuse and harassment. Most of the females feel insecure when having to work after
the normal office hours in vacated offices.

Page | 49
2.15.15 Societal backwardness

Because of the cultural orientation there exists a notion staring from the employer to
the common people that women are unsuitable for administrative and challenging
jobs. As a result women are not accepted as a ‘magistrate’ or ‘police officer’ by the
public. Very few people encourage women to join or continue their jobs in those
positions. Social prejudices and traditional attitudes created by cultural conditioning
as well as norms, values and the socialization process have developed closed
mindedness in both males and females. Social attitudes towards female work create
low career interest among female.

All of these contribute to create lack of interest among women as well as their
guardians towards civil service.

Page | 50
 CHAPTER-THREE

GLASS CEILING EFFECTS AND CAUSES IN BANGLADESH

3.1. Glass ceiling in Bangladesh Civil Service:

Our Constitution requires that there shall be equality of opportunity for all citizens in
respect of employment or office in the service of the republic and Clause further
requires that no citizen shall, on grounds only of religion, race, caste, s ex or place of
birth, be ineligible for, or discriminated against in respect of any employment or
office in the service of the republic [Constitution of Bangladesh). But, in reality,
discrimination persists in various forms of glass ceiling in the path of career
advancement in Bangladesh Civil Service.

The concept of a glass ceiling is an oft-used metaphor for the relative disadvantages
regarding women career opportunities, alluding to the growing difficulties for
women when moving up the career ladder. But, In the case of Bangladesh civil
Service, it also represents the discrimination in career advancement at the highest
echelons because of race, religion. Besides that, some ‘special types of glass
ceiling’ arises from politicization of civil service and maintaining ‘informal
superior cadre culture’ in bureaucracy.

Here, in this study, we will discuss about glass ceilings in highest echelons of the
civil service of Bangladesh. These are –

 Glass ceiling for women

 Glass Ceiling for minority and tribal people.
And two special types of Glass ceiling in Bangladesh civil service-

 Glass ceiling of Political Nature

 Cadre biased Glass Ceiling
3.2. Glass ceiling for women career advancement in Civil service:

Page | 51
In Bangladesh civil service women are recruited since 1982 but in the highest
echelon, their representation is still low. Though, Women embody nearly a half of the
country‘s human resources but their visibility in the civil service is not satisfactory. If
we look at the trends of overall intake from 1982 to 2010 women constitute 16.75%
of the total number and 4.6% in secretary level, 6.7% in addl. Secretary Level and
12.58% in joint secretary level. ‘As the ladder goes up female representation become
negligible and grievously underrepresented in the senior echelons of the civil service,
in most of the cases not reaching the very modest goal of 10% of new senior service
positions’ (9). Only 10 percent of Bangladesh Civil Services (BCS), 14.48 percent of
BCS Administration and 8.2 percent of top position are represented by women.

The following table represents data provided by the Ministry of Public Administration
on the proportion of male and female officers at middle and senior levels, which can
show the existence of glass ceiling in civil Service-

Table:- 3.1 Breakdown by sex of male and female officers at middle and senior
levels, 1999-2011

2011 2006 1999

Men Women Men Women Men Women

(%) (%) (%) (%) (%) (%)

SECRETARY 96.1 3.9 98.4 1.6 98.0 2.0

ADDITIONAL 94.8 5.2 100.0 0.0 98.2 1.8

SECRETARY

JOINT
SECRETARY 90.2 9.8 93.2 6.8 98.5 1.5

DEPUTY 88.1 11.9 88.3 11.7 98.6 1.1

Page | 52
 SECRETARY

SENIOR
ASSISTANT 79.8 20.2 84.3 15.7 91.0 9.0
SECRETARY

ASSISTANT 79.8 25.9 77.3 22.7 85.7 14.3

SECRETARY

TOTAL 79 21 85.0 15.0 91.5 8.5

Source: Ministry of Public Administration, Public Administration Computer Cell, 5

September 2011, and Human Development report in Facts and Figures of Gender
Compendium of Bangladesh 2009, BBS.

In Bangladesh, Secretary is the highest post in public Administration. Above table

reveals that there are only 1.6-3.9% Secretaries were female, and it worth noting that
they were posted in comparatively soft Ministries which are not that much influential,
challenging and powerful, and not related to core policy making and national
decision making. Among all the ranks of administration, the rate of female officers is
highest in Assistant Secretary level which is the lowest rank in the hierarchical public
administration in Bangladesh.

Again, we can realize this glass ceiling more vividly if we take a batch of civil
servant and analyze gender-wise career advancement of that Batch for a particular
period. Here, we take 84 Regular Batch for our analysis-

In 84 Batch, 389 male and 46 female, altogether 435 officers were appointed in civil
service. So, the intake percentage was 10.17. Now, there are 419 officers who are in

Page | 53
the position of Deputy Secretary to Addl. Secretary. So, the intake percentage was
10.17. Now there are 419 officers in service who are in the position of Deputy
Secretary to Addl. Secretary.

Table-3.2: Ranking 84 batch

Rank Total Male Percentage Female Percentage

Number Officer Officer (%)
(%)

Addl. 77 72 93.6 5 6.4

Secretary

Joint 179 154 88.29 25 11.71

Secretary

Deputy 163 155 90.93 8 9.06

Secretary

Source: Ranking 84 batch

The table shows how the percentage declines as it moves to the upper hierarchy of the
civil service, and that surely represents the existence of glass ceiling in civil service.

3.3. Causes of the glass ceiling in women advancement:

3.3.1 Impediment in access and completion of training

Training and professional development is an important factor in advancing in one’s

career, providing knowledge and skills as well as visibility and networking
possibilities. In Bangladesh cadre service, there are some core training courses,
completion of which is necessary and important to advance the next echelon of the
hierarchy, such as- Foundation training course, Professional training course, Mid-level

Page | 54
training Course, Training for senior-level officers. These mandatory trainings and
some other career development trainings performance is a factor for future placement
and promotion.

But, female officers faces impediment in access and successful completion of those
training which contribute to the glass ceiling in their career advancement. Most of the
times, the female officers are being overlooked for training due to supervisors
assuming that they will not be able to go . Sometimes, the training institute
discourages women to take part in training courses such as-

‘BPATC authorities apparently felt that pregnant women might be “unwell,” unable to
attend classes regularly or unable to perform the necessary physical training.’

On the other hand, female officers responsibility to their family discourages them in
taking part in training courses and if they take part, that hinders their performance in
training. A ‘FGD’ organized by UNDP with women cadres in BPATC and NAEM,
September 2011 reflect this phenomena-38

Women in BPATC and NAEM highlighted their concern that pregnant women were
being discouraged from attending the Foundation or Professional Course. Some
women in the Education Cadre said that they had had to delay their training because
their children were too small to leave behind. This is a key issue, as the appointment
is not finalized until this Foundation course is completed.

In addition, because of their reproductive and child care duties female officers do
not take part in training courses which is not mandatory and usually try to avoid
them.

Low participation and low level of performance due to above reasons, make them
incompetent in ‘promotion run’ comparatively their male competitors, which in turn
contribute as a glass ceiling for them.

3.3.2 Lacking of effort in maintaining liaison by female officers

38 Gender Equality and Women’s Empowerment in

Public Administration, UNDP.

Page | 55
In Bangladesh civil service, to get promotion, maintaining liaison with senior officers
and some other influential level is very significant. But, in case of female officers, the
trend of maintaining such liaison is very low. Because, due to their traditional
responsibility as a mother, wife, homemaker, they possibly can’t give enough effort
and time in maintaining liaison which requires attaining various ‘official-non official-
social programmers’, ‘over and over’ visiting superior officers and flattering them.
Their participation is also very low even in ‘officers’ pressure group’. Again, due to
lack of spending time with their ‘official community’ ultimately give them less
‘exposure or visibility’ which is considered as an informal criterion for promoting in
top echelon.

A ‘FGD’ organized by UNDP with women cadres in BPATC and NAEM,

September 2011 reflect this phenomena-

At more senior levels, there is a feeling that women might not be as skilled as men
in ‘maintaining the liaisons’ and networking, which are necessary to secure
promotions. A female officer interviewed mentioned that the feedback she had been
given for delays in being promoted to Additional Secretary was that she did not
have enough exposure or ‘visibility’.

3.3.3 Impediment of being posted in field level and challenging jobs which makes
them incompetent for senior posts

Female officers are found bound with desk jobs rather than challenging and field level
job within their respective department. They face obstruction in being posted in field
level due to various reasons. Because of their responsibility as mother or homemaker
they can’t simply leave their family behind. In addition, it is socially acceptable that
men to be posted in various locations and it are expected that their families will join
them, but this case is not so true for women.39

On the other hand, for the stereotype perception about women, superior officer feel
that field posting or active duty will not suitable for female officers and they may not
handle the challenge for that post. There is a reflection of this phenomenon can also

39 Gender Equality and Women’s Empowerment in

Public Administration, UNDP

Page | 56
be found from an FGD organized by UNDP with female police cadre-‘Where some
women wanting a field posting or active duty are not considered or accepted as it is
assumed that they will not be capable.

But, for most of the cadres, it is felt that the field posts and performance in that, gives
an important foundation for the rest of their careers including eligibility for
promotion. This criteria is strengthen by the draft civil service act (2011), which have
a provision for service in remote areas to count for supplementary length of service
while being considered for promotion. As a result, impediments in field posting are
serving as a cause for glass ceiling in women’s career.40

3.3.4 Faulty ACR system

ACR is the instrument which is used in Bangladesh civil service for evaluating
performance and for promotion in higher echelon. But, here, ACR based performance
evaluation system is severely criticized because it is highly subjective and based on
personal relation rather this system does not provide the rational judgment of
performance of an individual which identifies some disadvantages of ACR such as
likelihood of bossism, flattering tendency among rates and highly susceptible to
rater’s initiating or counter signing officer biases for which it does not reflect the real
performance of professionals.

It is worth noting that, in the ‘present promotion mechanism’ for senior civil service
posts, ACR alone covers 50 points of total 100 points. But, ACRs subjective and
personal relation based evaluation practice usually pushes female officers in
backward position in the run for promotion. Because, female officers have to spend a
large amount of their time to carry the duty as a mother, wife, homemaker. These
duties leave them with a very little time to build up relationship with superior officers
which involves attending various social occasions, flattering them, frequently visiting
them. This phenomenon is reflected by the comment of a female officer who is
threatened for absence in one social program due to her child’s illness, she was said
by his superior officer that – ‘I will write unsocial in her ACR’.

40

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On the other hand, keeping good relationship with superior male officer is
sometimes seen as socially embarrassing and may be susceptible to male
counterpart.

In addition, Struggle to reconcile office works with female officers traditional

gender roles in the family and society affect the grading of the ACR in the early
stage of career and give lack scope of networking in the mature stage of career.

3.3.5 Stereotype perception about female officers

During the era of Pakistan government in our country, the female candidates were
recruited under the condition that they must resign from the service after marriage or
remarriage. The argument of the Pakistan Government was that a married female
would be unable to keep her skills up to the standard level 41. Even after such a long
time of independence, this stereotype is not much changed. Our Society’s norms,
values, religious beliefs do not allow women to be in decision making positions.
There exists a belief, staring from the employer to the common people that women are
unsuitable for administrative and challenging jobs, owing to the cultural alignment42.
There are some reluctance is seen among the authority in appointing or promoting
women to a responsible or challenging jobs. Persistent of this stereotype also
strengthen the basis of glass ceiling in civil service.

3.3.6 Lack of monitoring and sex disaggregated data: In Bangladesh civil service,
there is no mechanism to monitor the progression of women in the career ladder so
that they have representation in policy making level and in the highest echelon. Lack
of monitoring in career advancement undermines the motto – (representation in policy
level) of women quota in BCS. In addition, there is no sex disaggregated data in
ministry or departmental level which can show women’s representation in various
sector and level. This kind of reluctance is also responsible for persistence of glass
ceiling. According to UNDP (2011) - Bangladesh would need effective monitoring
and oversight mechanisms, which, in turn, rely on good quality sex-disaggregated
41 ‘Women in Bangladesh Civil Service Cadres
(1972-1986)’,
42 ‘Women in Bangladesh Civil Service: Stumbling
Blocks towards the Way of Participation.’ Social Sciences. Vol. 3, No. 5, 2014, pp.
177-182. doi: 10.11648/j.ss.20140305.15

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data. The PARC report (2000) also identified a lack of effective monitoring as one
reason why the numbers of women were lagging behind.

3.3.7 Male dominated superior Selection Board

Traditionally our civil service is male dominated; as a result most of the members of
the superior selection board are male. Male dominant superior selection board often
takes decision from a male point of view. This phenomenon also serves as a cause of
glass ceiling for women.

3.3.8 Lack of Women’s Participation in Policy Making

Women are not present in policy formulation, implementation and evaluation

concerning women’s advancement. A victim can make a solution of his or her barrier
the better. Participation of women in policy making can advance them more, but lack
of women’s involvement in this arena hinders the way of progress.

3.3.9 Superiority complex of male officers: Our society is man dominated society.
Men are not mentally oriented to admit women as colleagues and bosses. Man feels
disgraced working under women. Men think women are not capable enough to be in
top echelon, to take challenges, to make decisions. This type of superiority complex
indirectly serves for glass ceiling.

3.3.10 Impediment to sustainable national development:

Almost half of the populations of our country are women. Representation and
participation of them in the highest echelon of civil service is undeniable in the
progress of the country. No country can go further by lagging their women behind.
participation in economic activity, including the management and decision making
levels, is not simply a question of equity, but also one of necessity for viable and
sustainable national development (United Nations 1989, p. 242). But, glass ceiling in
women career create obstruction in the way of national growth of our country.

3.3.11 Lacking of gender sensitiveness in the policy:

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Glass ceiling obstructs women to reach the policy formulation and implementation
level. As a result, policy is formulated by male dominated authority. As we know
that –‘sufferer knows the better’, so women knows and also concern about what
their interest. But, lack of their participation in that level fair interest of women is
remained unaddressed during a policy formulation. Research and evidence shows
that unless women are at senior administrative and policy level position in a critical
mass, they are unable to make meaningful and long-term gender mainstreaming
decisions in service delivery to all citizens43. Consequently, gender sensitiveness is
not persisting in most of the policy which reduces sustainability and viability of that
policy.

3.3.12 Prime issues and problem of the women remain unaddressed:

In Bangladesh civil service, policy and decisions are supply based- made in the top
and go downwards. As a result, the demand of an entity will not be addressed if they
have no representation at the top. Same phenomenon happens to women. Non-
representation of them at the top, keep unaddressed the issues like - fair treatment,
accommodation and responsive instrument to mainstream women in the development
process.

3.3.13 Hinder the true empowerment of women:

For empowering the women, our government takes various initiatives like – Quota in
BCS recruitment, loans for women entrepreneur etc. But, this kind of initiatives
empowered women in quantitative nature. For example- the vast majority of women
in the Civil Service are low-paid, clerical staff having no say in either making or
implementing policy’ (World Bank, 1996, p129). The glass ceiling is obstructing
women to reach the decision making level which is undeniable for the true
empowerment of women.

3.3.14 Waste of human potential

43 Women Representation In Top Management Of

Civil Service In Bangladesh, institute of Governance Studies, BRAC University,
Dhaka.
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 In Bangladesh, the general women, who become a civil service cadre after
eliminating so many social, cultural impediment, is undeniably a potential human
being. They can serve the country with new ideas, perception, and innovations. But,
keeping them away from decision making position is a waste of opportunity to use
their potentiality in national development.

3.3.15 Sense of being deprived among female officers:

Glass ceiling phenomenon obstructs women to have fair treatment in terms of

promotion or posting opportunity. Women faces that their male batch mates are
lagging them behind in career ladder. As a consequence, a sense of being deprived
arises among female officers which in turn results in tendency of dissatisfaction and
disloyalty to the service.

3.3.16 Feelings of embarrassment and humiliation among female officer:

Because of glass ceiling phenomenon, female officer are stopped in a certain

position, on the contrary, their male colleagues are not. As a result, after a certain
period, they have to work under the command of their batch mate or officers from the
junior batch. This kind of event create sense of humiliation among officers and
obviously they feel embarrass to take orders from batch mate or junior. In addition, to
be stuck in a position for years after years, make them incompetent officer in the eye
of society. In this situation, female officers feel de-motivated to carry their duty and
can’t give their whole potential.

3.4 Glass ceiling for minority and indigenous people:

Bangladesh is a country of assorted cast, creed and color. There are three million
indigenous people belonging to at least 54 ethnic group lives here. On the other
hand, from the religious point of view, people belongs to mainly four religious group
– Muslim, Hindu, Christian and Buddha where Muslims are majority and other three
groups are considered as minority group.

In Bangladesh population, these minority and indigenous people altogether constitute

more or less 10%. But, their representation in civil service is less than 10%
(NBNS,2014). The glass ceiling phenomenon for this two groups – minority and
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indigenous is slightly different. For the minority groups especially for the Hindu
people, glass ceiling affect them to be posted in the highest echelon of civil service-
Secretary, joint secretary and additional secretary level. On the other hand, due to
their late involvement in the national mainstream, glass ceiling effects are actually
visualized in the recruitment level.

In case of minority people, especially for ‘Hindus’, they have literacy rate of 60%
which is nearly double of national literacy rate, but still have less than 10%
representation in civil service (NBNS,2014). In addition, there are only two
secretaries in BCS from minority group after the independence of Bangladesh. Even
there is constantly nearly non-representation of additional secretary from the
minority group, if there is any one; he is posted in comparatively non-important
ministries. Though there is negligible representation of them in joint secretary posts,
they are generally posted at the prior to their retirement (NBNS, 2014). It is
mentionable that, there is nearly no representation of minorities in the in the Foreign
Service jobs- the most lucrative civil service positions in Bangladesh.

On the other hand, historically, the representation of indigenous people in civil

service is very low. For increasing their representation in civil service and to involve
them in the development mainstream of the country, government reserved 5% quota
for them in BCS from 1985. Various studies indicate that, a merely 1-2 percent
tribal quota was fulfilled since the policy was adopted. 44

3.5 Glass ceiling Effect

3.5.1 Lack of monitoring and race disaggregated data:

There is no visible monitoring mechanism either from government or from civil

society-pressure groups to look after the career advancement of minority and
indigenous people in civil service. The indifference to them is reflected through lack
of race disaggregated data about their representation in different level of civil service.
Even the NGO’s, which works for their welfare or empowerment like- ‘Sharee’ have

44 Chittagong News Update (2011), Chittagong,

‘Government recruits only around 1% against 5% Quota in government jobs for
indigenous peoples’ 25th December, 2011

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no data about their representation in civil service. Lack of data weakens the basis for
pressurizing the government to eliminate glass ceiling.

3.5.2 Absence of clear-cut guidance for recruitment under tribal quota:

Five percent quota for the tribal candidates is not clear in the policy, for this reason
only for the administration and police cadres are eligible. But seldom are the
candidates being recruited in other cadres due to such hazed policy.

3.5.3 Incompetency of indigenous people:

Historically, tribal and indigenous people of Bangladesh are lagging behind in

literacy, modern language and culture. In addition, most of them are live in remote
areas and live their life in hardship. These causes leave them little chances to become
enough competent for BCS Cadre service. Former Chairman of the Public Service
Commission (PSC) Mr. A T Ahmedul Haque Chowdhury once called upon the
indigenous candidates for preparing themselves as ‘more eligible’.

3.5.4 Stereotype perspective towards minority people:

In our country there is some stereotype perception about minority community

especially about Hindus, such as – they are disloyal to our country and loyal to one
of our neighboring country (India). This is perceived as one of the major causes for
not appointing personnel belonging to minority community in lucrative positions
like – secretary, additional secretary, joint secretary and jobs like foreign affairs.

3.5.5 Increasing gap between majority and minority-indigenous community:

This glass ceiling is obviously increases gap between them in terms of social,
economical status and in terms of power relation. In this glass ceiling phenomenon,
the majority group is continuously progressing while the other group who are
actually lagging behind are resisted. As a result, the gap between them is
continuously increasing in multidimensional scale.

3.5.6 Impediment in mainstreaming of indigenous and minority people with

national development: Glass ceiling affect their participation and representation
in civil service as well as in policy level which slow their mainstreaming process
to national development.

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3.5.7 Sense of being deprived and rise of dissatisfaction and disloyalty among
minority and indigenous people:

Glass ceiling in indigenous and minority creates sense of being deprived among them.
This kind of feelings create dissatisfaction among them which may result in disloyalty
even rebellion among them. It is mentionable that, sense of being deprived had
fuelled rebellion in hill track districts for two decade.

3.5.8 Lack of racial sensitiveness in policy formulation:

Indigenous and minority people constitutes more or less 10% of our population. So,
for a sustainable and viable policy formulation, addressing their interest is undeniable.
But, nearly non-representation of them in decision making level undermines the racial
sensitiveness in policy formulation.

3.5.9 Glass ceiling of political nature:

Politics and bureaucracy are two primary institution of the state. Forging alliance of
this two primary institution is responsible for the emergence of ‘Glass ceiling of
political nature’. In Bangladesh, this alliance which is popularly known as
‘politicization of bureaucracy’ is forged during the re-initiation of democracy in 1991
and still in action. ‘Glass ceiling of political nature’ refers to the career advancement
of a qualified person within the hierarchy of the civil service is halted by considering
his/her perceived political loyalty. In Bangladesh bureaucracy, it takes mainly form of
‘OSD’ and ‘forced retirement’.

During the undemocratic martial law government, the bureaucracy enjoys a lot of
autonomy, which was challenged after reinitiating of democracy. To sustain their
autocracy, bureaucracy allowed itself to be politicized. The political parties did not
prevent this process as the bureaucracy’s support was necessary to run and manage
the country. This alliance made a win –win situation. The political party invent new

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criteria for promotion and posting and that is ‘Political Loyalty’ and start awarding
and punishing the bureaucrats through promotion of loyal officials and ‘OSD and
forced retirement’ to ‘disloyal or officer with questionable loyalty’.

This glass ceiling affects bureaucracy adversely. As, the political loyalty become the
ladder for reaching higher echelon, the bureaucrats become indifference to the
organizational values like honesty, sincerity, competency. As a result, the competency
of bureaucracy is declining. On the other hand, there is a possibility for the deprived
groups to try to communicate with the opposite ideology of political parties. So, this
glass ceiling creates an antagonistic group and one kind of mistrust prevails in the
administration which ultimately affects the regular function. In addition, this glass
ceiling adversely affects bureaucrats mentally and socially. It represents them as
incompetent officer in front of the society which highly de-motivates them.

3.5.10 Cadre biased glass ceiling:

Cadre biased glass ceiling refers to Certain proportions of the most senior posts to
which officials will be promoted are reserved for certain cadres or certain cadre get
preferences and cannot be filled up by other cadres even if there are excellent
performers and very suitable candidates in the other group.

Presently, there are twenty eight independent cadre exist in Bangladesh Civil
service. There are obviously differences among them in terms of their activity and
there is no officially superior or inferior cadre. But, in case of promoting in the top
four echelon of the civil service, there is a great difference is seen in the proportion
of promoted officers among the cadres. Usually, most of the officials of top four
posts of civil service are promoted from ‘Admin Cadre’. According to MoPA, eighty
percent of Deputy Secretary Posts are reserved for the administration cadre.
Personnel from admin cadre also get preferences in promoting other three top posts.

Following table can show the picture of this glass ceiling-

Table- 3.3: Glass Ceiling

Position Total Admin Cadres Other Cadres

Deputy Secretary 906 83.22 16.78

Joint Secretary 282 82.98 17.02

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 Additional Secretary 124 75.81 24.19

Secretary 37 70.27 29.73

Total 1349 82.13 17.87

Cause: Colonial bureaucratic legacy of ‘the superiority of generalists’ is one of the

prime reasons for this phenomenon. In addition, the ghost of superior cadre of
Pakistan civil service also responsible for this glass ceiling. Traditionally, the admin
cadre of the civil service of Indian subcontinent got priorities in decision making
level, which also strengthen their claim for forwarding positions.

Effect: Cadre biasness in promoting top positions creates despair among the official
of deprived cadre which sometimes turned in inter cadre conflict like – specialist-
generalist conflict. Sometimes, this despair turns into strike which hampers the
activity of the civil service. Moreover, for this glass ceiling effect, bureaucracy is
being deprived from specialized knowledge in policy formulation.

Finally, I can say, Civil service is one of the most important executive organs of a
state. In a country like Bangladesh which is the habitat of different caste, creed and
color, to be most effective and responsive to the citizens need, Bangladesh civil
service has to ensure a balanced representation of personnel from all race, religion,
gender and cadre in the policy formulation level of bureaucracy. Moreover, for
sustainable national development, government has to ensure well functioning
bureaucracy through preventing negative politicization of bureaucracy which deprives
the competent officers to be in the right position.

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 CHAPTER-FOUR

FUNCTIONING EXPOSITION AND RELATED HYPOTHESIS

This chapter focuses to present with a clear understanding to the readers, the
functioning exposition and related hypothesizes of the area that are talked about in the
following segments:

4.1. Civil Servants:

The civil service is independent of government and composed mainly of career

bureaucrats hired on professional merit rather than appointed, whose institutional
possession typically survives transitions of political leadership. A civil servant or
public servant is a person employed in the public sector employed for a government
department or agency. The extent of civil servants of a state as part of the "civil
service" varies from country to country. In the United Kingdom, for instance, only
national government employees are referred to as civil servants whereas county or
city employees are not.

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Many consider the study of service to be a part of the field of public administration.
Workers in "non-departmental public bodies" may also be classed as civil servants for
the purpose of statistics and possibly for their terms and conditions. Collectively a
state's civil servants form its civil service or public service.

An international civil servant or international staff member is a civilian employee who

is employed by an intergovernmental organization. These international civil servants
do not resort under any national legislation but are governed by internal staff
regulations.

The people who work in Civil Service are known as civil servants. Civil service
‘includes all functionaries of the government excepting those in the military service.
The civil service of Bangladesh has several features in the organization, composition
and classification. Based on level of authority, responsibility, educational qualification
and pay scale, the civil service vertically falls into four categories: class I, class II,
class III and class IV. The class I officers have the highest power and prestige in civil
service. This study has considered only the class I Cadre officers directly recruited
through BCS Examination conducted by Bangladesh Public Service Commission
(PSC) and the officers who belong to BCS Administration Cadre of Civil Service and
are promoted in different ranks of Administration after this kind of recruitment.

4.2. Cadre:

Cadre service means the organization of civil servants in well defined groups, services
or cadres. Cadre services are constituted under specific laws having a clear structure
with a number of hierarchical positions. Cadre services have specific recruitment and
promotion rules and the employees recruited by PSC through BCS examination. In
contrast, non-cadre services are mostly based on posts and positions having no
definite structure of mobility either horizontally or vertically. In Bangladesh, Cadre
Service was first officially recognized in 1981 by formulating the Bangladesh Civil
Service Recruitment Rules.45

45 Wahhab, M.A (2009). Civil Service Recruitment

Policy in Bangladesh; A Critical Analysis. Paper submitted for NAPSIPAG
International Conference. Held on 11-13 December, 2009, Malaysia

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At present there are 28 cadres in Bangladesh Civil Service and these are divided into
two broad categories, like general cadres and professional or technical cadres.

4.3. BCS Administration Cadre:

BCS Administration stands to the general cadre and this cadre basically runs the
administration of the country. The entry level post of this cadre is Assistant Secretary
(AS). This cadre has a career path to go up of the hierarchy through promotion and
the other positions after entry in the service. Along with ascending order of the ranks,
the positions vertically go with Assistant Secretary (AS), Senior Assistant Secretary
(SAS), Deputy Secretary (DS), Join Secretary (JS), Additional Secretary (Add S) and
Secretary (S).

In field level, the officers can be appointed as Assistant Commissioner (AC), Senior
Assistant Commissioner (SAC) and Deputy Commissioner (DC) based on the
seniority, and executive magistracy power is vested upon them. DC works as a
representative of central government and holds three designations in one chair. He
works as the District Magistrate to oversee and control the law and order of the
district, as the District Collector to collect the land development tax (LD tax) and
manage the land related issues including record keeping of land, and finally works as
the Deputy Commissioner to execute all government policy decisions in field level
and to coordinate among different departments (subordinate offices of different
Ministries in field level). The AC and SAC are subordinate officers of the DC. At
Ministry level, the officers of the Cadre work for policy formulation and
implementation. The cadre follows the Weberian Characteristics of bureaucracy
including hierarchical structure and a very strong chain of command. The hierarchical
structures both in Secretariat and in field are shown in the following section.

4.4. Ranking at Secretariat and Field level

Field level comprises Divisional level, District level and Upazila level. From field
administration perspective, Bangladesh is divided into seven distinct geographical
areas called Divisions to monitor, coordinate and supervise the implementations of
policy decisions initiated by the government. The administrative unit that figures
prominent in this country is called District. The basic unit of administration of the
country is locally named as Upazila, field level functionaries of the development

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departments operate here at the grass-root level. There are 64 districts and 492
Upazilas in the country.

4.5. Superior Selection Board (SSB)

It is an administrative body embodied by the government in the Ministry of Public

administration to scrutinize the government servants' service records, and then
recommend them for promotion to higher positions in the civil service, including
autonomous bodies. It was first constituted in 1972 with the cabinet secretary as its
chairman, and the secretaries of Home, Law, Establishment and Finance
Ministries/Divisions as members. The concerned secretary of a ministry/division (if
not a member of the Board), making proposals for promotion of the officers under his
control, was to be invited to participate in decision processes of the Superior Selection
Board.Since its first constitution, the composition of the SSB underwent
modifications from time to time ending in August 1991. The reconstituted SSB of
1991 saw the inclusion of four new members namely the Principal Finance Secretary,
the Comptroller Auditor general and two other additional secretaries with professional
background classified as professional/technocrat members. In November 1991, the
Principal Secretary to Prime Minister was also made a member of the SSB. The
secretary of the Ministry of Public Administration acts as its member-secretary.

The major responsibility of the SSB is to consider and make endorsement on the
promotion and appointment of different levels of officers:

To the posts of deputy secretary and above in the Secretariat:

(i) To pay grades III, II and I of the officers belonging to various service cadres
and those outside the cadres;
(ii) To pay grades III, II and I of those government officers who are on deputation
to various autonomous bodies;
(iii) To the posts of executive heads of various government departments and
directorates;
(iv)To the posts of management heads of a selective number of autonomous
bodies, including the directors of management boards of these bodies who are
employed on a full-time basis; and
(ii) To accord of time scale of the officers mentioned above.

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Until the early 1990s, the recommendations of the SSB were to be considered further
by the Council Committee on Promotion and Appointment, composed entirely of a
selective number of senior ministers. However, following a verdict of the High court
in the late 1990s, the Council Committee was dissolved. At present the practice is to
send the recommendations of the SSB directly to the Prime Minister, whose decision
is final.

4.6 Emphasizing on the Female Officers of Administration Cadre

This study has accented on the female officers of the BCS Administration Cadre
rather than other Cadres such as BCS Education, BCS Health Cadre of Bangladesh
Civil Service, because the number of females in general cadres or administrative posts
are relatively smaller than the number in professional cadres. Moreover, BCS
Administration cadre has a different kind of job nature from the other general and
professional cadres. This occupation has a high work volume with a combination of
desk and field jobs, managerial and coordinating jobs. Officers belonging to this
service have to do many challenging jobs like eviction, disinter, fixed court, mobile
court, challenging enquiries, coordination among different departments, celebration of
national days, collection of land taxes, maintaining law and order, carrying out fair
public examination, holding national and local elections, and public policy
formulation and execution. With this high work volume BCS Administration cadre
plays a very vital role to run the machinery of state. The postings and transfer system
of this profession is also different from other cadre or service. Officers after joining
the service are transferred to different districts and Ministries. Therefore, officers
including the women have to work in remote districts and Upazilas which is more
challenging for women than men, given the socio cultural scenario of Bangladesh. In
this service, there are some vital postings such as –

(i) Upazila Nirbahi Officer (UNO),

(ii) Deputy Commissioner (DC),
(iii) Secretary at Ministries etc.

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Which are very important to run the state and in forward position the number of
women is comparatively larger than other cadre. There is a very strong chain of
command in this profession. Moreover, this Cadre is directly related to policy
formulation and execution. Therefore, considering the unique characteristics of the
Cadre and the importance of women participation in policy making process, the study
has been done on Administration Cadre rather than the other cadres.

4.7. Analyses Procedure for Promotion:

After Senior Asst. secretary the following Criteria regulates the promotional
proceeding:

CHAPTER - FIVE: THEORETICAL FRAMEWORK

This Chapter discusses the theoretical base of the research topic.

5.1. Cultural Theory – Geert Hofstede

The research topic can be embellished in the light of Geert Hofstede‘s ―cultural
theory. According to cultural theory there are four extents of culture, as –

 power distance,
 collectivism versus individualism,
 masculinity versus femininity and
 Uncertainty avoidance.
5.1.1. Power distance

Power distance can be elucidated as ―the extent to which the less powerful members
of institutions and organizations within a country expect and accept that power is
distributed unequally. (Hofstede, 2005: 46). In small power distance countries there is
limited dependence of subordinate on superiors and there is a preference for
consultation. On the contrary, in large power distance countries, there is dependent

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relationship among superior-subordinates. Superiors can thrust their opinion on
subordinates. Common belief here is that, powerful should get extra privilege.

5.1.2. Collectivism versus individualism

To explain collectivism versus individualism, Hofstede indicated that the vast

majority of people in our world live in societies in which the interest of the group
prevails over the interests of the individual. These societies are termed as collectivist.
Individualist society is, in which the interest of individual prevail over the interests of
the groups. ―Individualism pertains to societies in which the ties between individuals
are loose; everyone is expected to look after himself or herself and his or her
immediate family. Collectivism as its opposite pertains to societies in which people
from birth onward are integrated into strong, cohesive in-groups, which throughout
people‘s life time continue to protect them in exchange for unquestioning loyalty
(Hofstede, 2005:76).

According to Hofstede, power distance and individualism is negatively correlated.

The large power distance societies are more collectivist and small power distance
societies are individualist.

5.1.3. Masculinity versus femininity

A society is called masculine when gender roles are clearly distinct: men are supposed
to be decisive, tough, and focused on material success, where as women are supposed
to be modest, tender and concerned with the quality of life (Hofstede, 2005:120).‖ The
predominant pattern is for men to be more assertive and for women to be nurturing.
Careers are compulsory for men and optional for women. Thus, there is a lower share
of working women in professional jobs. In a feminine society both men and women
are supposed to be modest, tender, and concerned with the quality of life.

5.1.4. Uncertainty avoidance

Uncertainty avoidance is defined as the extent to which the members of a culture feel
threatened by ambiguous or unknown situations (Hofstede, 2005: 167).‖ A weak
uncertainty avoidance culture belief that uncertainty is a normal course of life and
each day is accepted as it comes. On the contrary, uncertainty avoiding cultures shun

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ambiguous situation. This feeling is, among other things, expressed through nervous
stress and a need for predictability. This dimension admits that, what is different is
dangerous. Uncertainty can be minimized through technology, rules and religion. All
the dimension of culture is deeply rooted in all members of the society.

5.2. Management Culture of Bangladesh: Homestead’s Framework

A study undertaken by (Aminuzzaman, 1993) observed that in Bangladesh public

bureaucracy is perceived as a highly specialized and powerful institution. It is the
backbone of government services and plays key role in the policy making and
delivery of programmed. Very aware about its power and influence, the bureaucracy,
in fact, venture far beyond its legitimate authority. Culturally, Bangladeshi society
shows features of a conservative society.

Behavior and culture of individuals and institutes here are governed by traditional
values. Living is such a society, ―The management behavior and attitude of the
senior managers of Bangladesh public administration system is merely reactive rather
than pro-active. It is also observed that managers are risk averse and to a large extent
subjective in their attitude (Aminuzzaman, 1993:103-104). This was reflected in a
study conducted in Bangladesh.

Table 5.1: Four Dimensions of Management Culture of Sampled

Managers

Dimension Score Mean Remarks

Ministries Public
Corporations

Power Distance 75 65 70 High Power

Distance

Individualism 24 26 25 Low
Individualism

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Uncertainty 72 68 68 High

Avoidance Uncertainty

Avoidance

Masculinity 42 54 48 Moderate
Masculinity

It was evident in the survey that on an average, Bangladeshi Managers scored high on
power distance and uncertainty avoidance index. On the other hand they scored
moderately in masculinity index and a relatively low on individualism index. On the
other hand, they have registered a moderate score on masculinity index and a
relatively a low score individualism index.

It appears from the table that managers from the ministries show a relatively higher
index score of power distance and uncertainty avoidance as against the managers of
the public corporations. There are also slight variations in scores between these two
groups of managers in terms of individualism and masculinity index. It can be
generally concluded from that study that managers in ministries tend to maintain a
relatively high power distance and have a tendency to avoid uncertainty as compared
to the managers of the public corporations.

5.3. Cultural Theory A Framework

The cultural theory is highly relevant and comparable to explain the phenomena in
extensive manner. It is mentioned in the literature review part that the previous
researches recommended that the causes of the problems that faced by women civil
servants are deeply rooted in the mindset of the people. The main effect of hackneyed
idea keeps women under-represented in operational roles and in the typical routes to
senior management.

The cultural theory is related to the proposed study in the following ways:

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Women civil servants of the field are entrusted with power and authority; still it does
not always help to feel them empowered. Deep-rooted mindset sometimes compels
women officials to assume that they belong to powerless group. ―…. because of
social taboos about the role of women in society, women generally perceive that they
have only a limited role to play in government and administration (Zafarullah, 2000).‖
Prejudial attitude of employers and co-workers makes women shun challenging
careers (Khan, 1988:67).‖ Additionally, Bangladesh does not have glorious history of
decentralization. The following paragraph depicts this claim evidently.

Bangladesh is a country with a tradition of over 100 years of decentralized local

government structure. Surprisingly, it could not achieve the expected level of
decentralization and people‘s participation despite her 100-year‘s effort.

Consequently, while working at the periphery, power distance has become rule of the
game in Bangladesh civil service.

As a member of collectivist society women have to compromise with career for the
sake of family; for example, they sometimes forgo promotion or in extreme case,
leave job to avoid field level posting. Glen and Walter suggested that the attitudes of
the employed women‘s husband, children, and friends also influenced their plan for
participation in employment. As women civil servants are the members of large power
distance and masculine society, they accept subordination of their male family
members to maintain harmony.

Masculine culture is very much prevalent in Bangladesh. Women are portrayed as

softhearted, and humble. The people in general expect they should consider domestic
work as their primary duty, and career as secondary. Thus women officials working at
the field, failed to discharge all the household activities expected by their families.
―Women receive the message that home and family are of paramount importance
and jobs are secondary to home and family obligations regardless of occupational
qualifications. They are socialized to abandon careers if conflict with family needs
arise .‖ Therefore, women civil servants face problems in two different ways, firstly,
they need to make good time management to satisfy their family members, and
secondly, they have to take prompt decision in office to prove their competence.

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Tendency of uncertainty avoidance implies, a person feel threatened by unknown
situation. It is, more or less accepted that the bureaucratic culture is rule bound.
Bangladesh is not an exception to this. Potency to go against the wind is rare here.
Most of the members look for certainty and security. A study conducted by Ferdaus
Jahan (2006) pointed out that job security is the most important factor to encourage
people to join the civil service. Women working at the grass root belong to the same
bureaucratic culture. Field level office environment, people, as well as the region all
are unknown to the women civil servants who make them insecure and scary.
Therefore, they feel endangered to face unpredictable problems and are likely to
maintain status quo, which stand on the way to be innovative and creative.

Figure 5.1: Impact on Different Components of Culture on the Problems of

Women Civil Servants -

Power Distance

Indicators:

• Status
• Facility at the job

Masculinity Dependent Collectivism

versus variable versus
femininity Problems individualism
being
Indicators: Indicators:

• Dual faced by the • Loyalty and

responsibility group
(family and job) women civil belongingness
• Abiding values • Preference
about- servants. between
femininity work and

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 relationship

Uncertainty avoidance

Indicators: Use of discretion Attitude

CHAPTER - SIX

ADVANCEMENT AND TRENDS OF REPRESENTATION OF WOMEN IN

FOWARDING

This chapter presents the major advancement of women over the years and the trends
of representation at the forwarding state.

6.1. Major Steps in Women’s Advancement: Bangladesh Perspectives

Table 6.1 : Women’s Advancement

Time/period Women’s Advancement

1972 Approval of the Constitution with the equal rights and equity
provisions.

Establishment of Bangladesh Women Rehabilitation Board.

1973 Establishment of women‘s quota in the national parliament.

1974 Approval of a law on Muslim marriage and divorce registration.

Creation of Women Rehabilitation and Welfare Foundation

Participation of women representatives of Bangladesh at the First

1975 International Women‘s Conference in Mexico City.

1976 Establishment of Jatiya Mohila Sangstha (JMS).

Creation of Women Affairs Cell in the Social Welfare Department.

Appointment of Assistant to the President for Women.

Affairs and Establishment of Women Affairs Division in President‘s

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 Secretariat.

Establishment of a quota for women in the public sector.

Participation of women representatives of Bangladesh at the Second

1980 International Women‘s Conference in Copenhagen.

Establishment of law against dowry.

Renaming of Ministry of Social Welfare as Ministry of Social Welfare

1982 and Women Affairs.

Approval of the charter of CEDAW (except the clauses no.2, 13(A)

1984 and 16.1(C&F) by the Government of Bangladesh.

Creation of directorate of Women Affairs in Ministry of Social

Welfare and Women Affairs.

Participation of women representatives of Bangladesh in the closing

1985 Third International Women‘s Conference in Nairobi.

Separation of Ministry from Ministry of Social Welfare to become

1989 separate Ministry of Women Affairs.

Upgrading of Directorate of Women Affairs to Department of

1990 Women Affairs (DWA).

Formation of a celebration committee for International Women‘s

Day by the coordinators of different organizations working for
1991 women‘s rights.

Creation of Women in Development Focal Points.

Addition of Children Affairs to the Ministry of Women Affairs to

1994 become MWCA.

Participation of women representatives of Bangladesh in fourth

1995 International conference for women at Beijing.

1997 Declaration of national women‘s development policy.

1998 Development of the law to stop violence against women.

1999 Inclusion of women in non-traditional profession.

2000 Recognition of mother‘s guardianship of children.

2002 Establishment of 10 percent quota/allocation for women in the high

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 government positions.

2008 Women development Policy 2008.

2011-2015 Sixth Five Year Plan (2011-2015) of the present government, devised
to promote Bangladesh to the rank of a middle-income country by
2021.

6.2. Trends of Women Representation in Entry Level:

Table 6.2: Trends of Women Representation in Entry Level

Year Total Total Total Percentage of

Number of Number of Number of Female
Officers Male Female Officers
Officer
Officers

1982 155 142 13 8.38

1983 650 608 42 6.46

1984 439 390 49 11.16

1985 543 473 70 12.89

1986 222 191 31 13.96

1990 92 84 8 8.70

1991 163 139 24 14.72

1993 209 180 29 13.88

1994 224 191 33 14.73

1995 116 93 23 19.83

1998 67 52 15 22.39

1998 95 76 19 20.00

2001 285 217 68 23.86

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 2003 175 137 38 21.71

2003 280 218 62 22.14

2005 335 249 86 25.67

2006 199 147 52 26.13

2008 272 139 79 29.04

2010 179 131 48 26.81

2012 1675 752 923 55.1
2013 8507 5,252 3,255 38.26
2014 2176 1,401 775 35.62
2015 2181 1,572 609 27.92
2016 2323 1,714 609 26.22

Figure 6.1: Trends of Women Representation in Entry Level

Source: Ministry of Public Administration

To know about the rate and state of women representation in public administration,
primary data have been collected from the Ministry of Public Administration and
these have been presented in the following sections. Among the different hierarchical
ranks of BCS Administration cadre, only Secretary, Additional Secretary and Joint

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Secretary can participate in Public Policy formulation. The representation of women
at Secretary Level is shown below:

6.3. Trends of Women in High Position:

Table 6.3: Female Secretaries at the time of the Study

Designation (in Total Number Women Percentage

the descending
order of the
rank)
Secretary 67 3 4.47
Addl. Secretary 248 16 6.45
Joint Secretary 620 78 12.58

Figure 6.2: Female Secretaries at the time of the Study

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In Bangladesh, Secretary is the highest post in public Administration. Above table
reveals that there are only 3 Secretaries out of 67 posts (4.47%), and they are posted
in comparatively soft Ministries which are not that much influential, challenging and
powerful, and not related to core policy making and national decision making.

The participation of women at Additional Secretary level is also very low and it is
only 6.45% Out of 248, there are only 16 female Additional Secretaries and most of
them are either attached or posted in soft-core ministries (which are not much related
to core policy making).

Women are also marginal in Joint Secretary, Deputy Secretary, Senior Assistant
Secretary and Assistant Secretary levels. Out of 620 there are only 78 female Joint
Secretaries (12.58%), and almost half of them (25) are OSD.

Among all the ranks of administration, the rate of female officers is highest in
Assistant Secretary level which is the lowest rank in the hierarchical public
administration in Bangladesh.

The above table reveals that women are lower in upper positions and concentrated in
lower positions. This means that the vast majority of women in the Civil Service have
no say in either making or implementing policy. It may be for three reasons: women‘s
late entrance in Civil Service, their perceived lower access in higher posts and the
disadvantageous position of women to qualify the BCS examination.

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 Table 6.4: Current Positioning of 82 Regular Batch in Top
Management

Rank Total Male Percentage Female Percentage

Number Officer’s Officer’s
Secretary 26 24 92.4% 2 7.6%

Addl. 33 30 91.6% 3 8.4%

Secretary

Joint 16 14 90.7% 2
9.3%

Source: Public Administration Computer Council

As the ladder goes up female representation become negligible and grievously

underrepresented in the senior echelons of the civil service, in most of the cases not
reaching the very modest goal of 10% of new senior service positions. For example,
we take 82 regular batch and 84 batch for validitation. In 82 regular batches there
were 155 officers altogether. Among them 142 were male and 13 were female officers
which were 8.38% of total intake.

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After retirement, optional retirement and death there are 75 officers (68 male officers
and 7 female officers) who are in the position of joint secretary and above. As the
position moves upward the percentage changes:

Figure 6.3: Current Positioning of 82 Regular Batch in Top Management

Table 6.5: Current Positioning of 84 Batch in Top Management

z Total Male Percentage Female Percentage

Number Officer Officer

Addl. 77 72 93.6% 5 6.4%

Secretary

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Joint 179 154 88.29% 25 11.71%
Secretary

Deputy 163 155 90.93% 8 9.06%

Secretary

Source: Public Administration Computer Council

Figure 6.4: Current Positioning of 84 Batch in Top Management

The above table shows that how the percentage declines as it moves to the upper base
of the civil service and from the latter it can be predicted that the percentage of
women officer will be similarly decrease when they will be promoted to the secretary
level.

If we look at the trends of overall intake from 1982 to 2010 women constitute 16.75%
of the total number and 4.6% in secretary level, 6.7% in addl. Secretary level and
12.58% in joint secretary level. In 1982 the journey that began with 8.38% now it
touches almost 27% of total intake which is appreciating. But, in the same time the
percentage of top position still very marginal which is less than 10% in first two cases
and the latter is above 12%. Under the present context, ideally the representation
should be above 10% in all the three top positions.

6.4. Gender Representation

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Bangladesh has significant constitutional provision and sufficient institutional
arrangements guaranteeing women‘s equal rights. Since independence the
government has given importance on women participation and taken many necessary
measures to encourage women to participate in public sector. To achieve this goal,
equal opportunity for women regarding employment of the Republic has been
recognized legally and various steps have been taken both in national and
international levels to achieve equal participation of women in the mainstream of
national development.

Article 10, 11, 19, 27, 28 and 29 in the Constitution of Bangladesh (Government of
Bangladesh 2008:5-15) declare the equal rights for both men and women, and there is
a provision to take special measures for backward sections of citizens. Article 19 of
the Constitution states about the equality of opportunity. According to the article 19,
the State shall endeavor to ensure equality of opportunity to all citizens [19(1)] and
the State shall adopt effective measures to remove social and economic inequality
between man and woman and to ensure the equitable distribution of wealth among
citizens, and of opportunities in order to attain a uniform level of economic
development throughout the Republic [19(2)]. Article 27 declares that all citizens are
equal before law and are entitled to equal protection of law. Again article 28 prohibits
the discrimination on grounds of religion, sex, race, cast or place of birth [28(1)]. It
gives direction that women shall have equal rights with men in all spheres of the State
and of public life [28(2)]. No citizen shall, on grounds only of religion, race, caste,
sex or place of birth be subjected to any disability, liability, restriction or condition
with regard to access to any place of public entertainment or resort, or admission to
any educational institution [28(3)]. Nothing in this article shall prevent the State from
making special provision in favor of women or children or for the advancement of any
backward section of citizens [28(4)].

Article 29 provides instruction for maintaining equality of opportunity in public

employment. According to the article 29(1), there shall be equality of opportunity for
all citizens in respect of employment in the service of the Republic. No citizen shall,
on grounds only of religion, race, caste, sex or place of birth, be ineligible for, or
discriminated against in respect of, any employment or office in the service of the
Republic [29(2)]. Nothing in this article shall prevent the State from-

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(a) making special provision in favor of any backward section of citizens for the
purpose of securing their adequate representation in the service of the Republic;

(b) giving effect to any law which makes provision for reserving appointments
relating to any religious or denominational institution to persons of that religion or
denomination; reserving for members of one sex any class of employment or office on
the ground that it is considered by its nature to be unsuited to members of the opposite
sex46

Therefore, the constitution of Bangladesh assures equal employment opportunities for

all citizens regardless of gender. It also instructs for taking special measures for
backward sections of citizens.

Bangladesh government has recently adopted the Women Development Policy. In first
part of the policy document, women are recognized as the potential human resource in
section 9, and for this reason, Government is giving emphasis on education for
women to make them skilled human resource. Section 10 of the same part has
discussed about the administrative empowerment of women and participation of
women in decision making levels. In part two, section 16.3, 16.5, 16.6 and 16.12 have
included the goals of ensuring economic, political, social, administrative and legal
empowerment of women and equal participation in the mainstream of the socio-
economic development, making all women educated and skilled human resource and
establishing their equal rights in politics, all kind of jobs including administration, and
all spheres of life. Again, section 26 has given emphasis on the employment of
women, and to ensure it the Government has a policy direction to increase quota in all
phase in the service including the entry level (26.2). The Government also has policy
decisions to create necessary environment for entrance, continuation and uplift in
service (26.5) and to modify all relevant laws, rules and policies for achieving greater
employment of women (26.6). Moreover, section 28 has a policy to improve, extend
and introduce additional facilities like child care facility and day care center in
workplace and so on to encourage women participation in economic activities and
development works. 47

46 (Government of Bangladesh 2008:5-15)

47 Government of Bangladesh 2011:11-19

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The Government has included the women development agendum in national poverty
reduction plan which is known as Poverty Reduction Strategy Paper‘(PRSP), and also
in the Millennium Development Goals (MDG). Promoting gender equality and
empowering women’s the third goal of Millennium Development Goals of
Bangladesh.

However, in spite of constitutional arrangement and statutory laws women do not

enjoy their rights exactly as they would desire. They are not even fairly represented in
the civil service let alone in top management. The fact is that women constitute
roughly half of the country‘s population, but their representation is not adequate in
institutions that affect economic and social development. The number of women in
the top position of the civil service is not a worthy reflection of ideal gender
balancing. In line with the constitutional provision, 10% of Civil Services are reserved
for women at the early stage of recruitment. As a result the rate of female officers is
highest in Assistant Secretary Level which is the lowest rank in the top positional
public administration.

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 CHAPTER-SEVEN: OPINIONS AND ANALYSIS

7.0. OPINIONS AND ANALYSIS

This chapter converses about the opinions of the respondents as the effect on the basis
on the questionnaire.

7.1 Ranking of merit-based selection in BCS

There are a number of factors that have been identified through the review of
literature for this study. Among them, reservation of seats (Quota), political
interference, and corruption & irregularities have drawn special attention. Literature
shows that these factors are affecting the merit-based selection process of BCS. To
examine the dimension of these factors, this study covers the opinions of respondents
in this regard.

8.1.1 Opinions of the respondents on the merit-based selection in BCS

90% respondents of BCS candidate category think that the existing officer selection
process in Bangladesh Civil Service is not merit-based while the rest 10% of them
consider it as merit-based process. Among the respondents from the existing BCS
officer category, 96% respondents think that the BCS officer selection process is not
merit-based and only 4% of them take it as a merit-based process (see figure-18).
This indicates that most of the respondents from both the categories think that the
existing officer selection process in Bangladesh Civil Service is not merit-based.

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8.1.2 Ranking of barriers to merit by respondents

8.1.2.1 Ranking of barriers to merit by BCS candidates

80% BCS candidates have ranked the 'Quota (reservation of seats)' as Barrier-1,
which is followed by the act of ranking it as Barrier-2 by 2% respondents and as
Barrier-3 by 8% of them. 'Corruption' has been ranked as Barrier-1 by 7%
respondents, which is followed by the act of ranking it as Barrier-2 by 41%
respondents of this category, and as Barrier-3 by 42% of them. 3% respondents from
the BCS candidates have ranked 'Political interference' as Barrier-1, which is
followed by the act of ranking it as Barrier-2 by 48% BCS candidates, and as Barrier-
3 by 39% respondents. 10% respondents from this category have shown no comments
about it (see figure-19). This indicates that most of the respondents have identified
'Quota (reservation of seats)' as the main barrier to the merit-based officer selection
process in Bangladesh Civil Service (BCS).

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7.1.2.2 Ranking of barriers to merit by the existing BCS officers

70% BCS officers have ranked the 'Quota (reservation of seats)' as Barrier-1, which is
followed by the act of ranking it as Barrier-2 by 6% respondents, and as Barrier-3 by
20% of them. 'Corruption' has been ranked as Barrier-1 by 12% respondents, which is
followed by the act of ranking it as Barrier-2 by 46% respondents of this category,
and as Barrier-3 by 38% of them. 14% respondents BCS officers have ranked
'Political interference' as Barrier-1, which is followed by the act of ranking it as
Barrier-2 by 44% BCS candidates, and as Barrier-3 by 38% respondents. 4%
respondents from this category have pressed no comment about it (see figure-20).
This indicates that most of the respondents have considered 'Quota (reservation of
seats)' as the main barrier to the merit-based officer selection process in Bangladesh
Civil Service (BCS).

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By summarizing the data collected from both the categories of respondents
mentioned in section 4.6.2.1 & 4.6.2.2, we can now say that the existing quota
system in the BCS officers’ selection process is the main barrier to recruit quality
officers in Bangladesh Civil Service.

7.2. Recommendations made by the respondents on the distribution of quota

7.2.1 Recommendations on the freedom fighters quota

90% respondents from the BCS candidates’ category proposed 1-10% reserve posts
(quota); 5% proposed 11-20% quota; and another 5% respondents proposed no reserve
posts for the wards of freedom fighters. Among the respondents from the existing BCS
officer category, 70% respondents proposed 1-10% quota; 8% officers proposed 11-
20% quota; 2% officers proposed 21-30% quota; and 20% respondents proposed no
reserve posts (quota) for the wards of the freedom fighters (see figure-21). This shows
results that most of the respondents suggested around 10% reserve posts for the wards
of the freedom fighters.

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7.2.2 Recommendations made on the female quota

56% respondents of BCS candidate category proposed 1-5% reserve posts (quota);
33% proposed 6-10% quota; 3% proposed 11-20% quota; and the rest 8%
respondents proposed no reserve posts for females. Among the respondents from the
existing BCS officer category, 44% respondents proposed 1-5% quota; 34% officers
proposed 6-10% quota; 4% officers proposed 11-20% quota; and, 18% respondents of
this category proposed no reserve posts (quota) for females (see fiigure-22). The
above-mentioned data indicates that most of the respondents suggested around 5%
reserve posts for female candidates.

7.2.3 Recommendations made on the Tribal Quota

80% respondents from the BCS candidate category demanded 1-3% quota; 15%
respondents demanded 4-5% quota; and 5% BCS candidates demanded no reserve
post for the tribal candidates. In the category of existing BCS officers, 42%
respondents demanded 1-3% reserve posts; 36% officers suggested 4-5% quota; and,
22% respondent officers demanded no reserve posts for the tribal (see figure-23). This
indicates that most of the respondents recommended maximum 3% reserve posts for
the tribal candidates.

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7.2.4 Recommendations made on the Quota for the physically handicapped
applicants

66% respondents from the BCS candidate category proposed 1% reserve posts
(quota); 15% candidates proposed 2-3% quota; 16% of respondents proposed 4-5%
quota; and, 3% of them proposed no reserve posts for the physically-handicapped
applicants. Among the respondents from the existing BCS officers category, 50%
respondents proposed 1% quota; 10% officers proposed 2-3% quota; 2% officers
proposed 4-5% quota; and, 38% respondents of this category proposed no reserve
posts (quota) for the physically-challenged people (see figure-24). The above-

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mentioned data collected from both the categories of respondents’ show that most of
the respondents’ recommended around 1% reserve posts (quota) for the physically
handicapped applicants.

7.2.5 Recommendations made on the District Quota

39% respondents from the BCS candidates’ category proposed 1-5% reserve posts
(quota); another 39% of them proposed 6-10% reserve posts; 2% respondents
proposed 11-20% reserve posts; and, the rest 20% respondents proposed no reserve
posts for district-wise distribution. Among the respondents from the existing BCS
officers category, 36% respondents proposed 1-5% quota; 22% officers proposed 6-
10% quota; 12% officers proposed 11-20% quota; and, 30% respondents of this
category proposed no reserve posts (quota) for district-wise distribution (see figure-
25). By combining the data collected from both the categories of respondents, we see
that a bigger portion of the respondents demanded reduction of the percentage of
reserve posts in the district quota to around 5% along with the demand for no district
quota that was proposed by a significant number of respondents.

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7.2.6 Recommendations made on the entire Quota system

Among the respondents from the BCS candidate category who are eligible to sit in the
BCS examination, 5% BCS candidates proposed 1-10% posts from quota; 46%
candidates proposed 11-20% posts from quota; 20% candidates proposed 21-30%
posts from quota; 26% of them proposed 31-40% posts from quota; only 3%
candidates proposed 41-50% posts from quota; and, none of the respondents of this
category proposed above 50% quota in BCS. On the other hand, among the
respondents from the existing BCS officers category 12% respondent officers
proposed no reserve posts from any groups; 14% BCS officers proposed 1-10% posts
from quota; 28% officers proposed 11-20% posts from quota; 20% of them proposed
21-30% posts from quota; 14% officers proposed 31-40% from quota; only 2% of
them proposed 41-50% posts from quota; and, 10% respondents from this category
proposed above 50% posts from quota in BCS (see figure-26). Both the categories of
respondents have shown the same observation on the existing quota system for the
recruitment of officers in Bangladesh Civil Service. Most of the respondents suggested
below 30% reserve posts (quota) from different groups of people along with the
demand for 11-20% quota that was proposed by the largest group of respondents.

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7.3 Opinions made by the respondents on the existing eligibility
criteria

7.3.1 Satisfaction level of the respondents

In this study, satisfaction level of the respondents on the existing eligibility criteria for
applicants has been characterized as 'Not satisfied', 'Less satisfied', 'Fairly satisfied',
'Satisfied', and 'Highly satisfied'. The existing eligibility criteria for applicants has
been defined as 'Not satisfied' by 10% BCS candidates; as 'Less satisfied' by 2%
candidates; as 'Fairly satisfied' by 11% of them; as 'Satisfied' by 74% respondent
candidates; and, as 'Highly satisfied' by 3% respondents from this category. Among
the respondents from the existing BCS officers category, 4% BCS officers termed it
as 'Not satisfied'; 10% officers as 'Less satisfied'; 12% officers as 'Fairly satisfied';
62% as 'Satisfied'; and, the rest 12% respondents from this category termed it as
'Highly satisfied' (see figure-27). This indicates that most of the respondents from
both the categories are satisfied about the existing eligibility criteria for applicants.

7.3.2 Opinions on the special consideration for age limit

In the existing eligibility criteria, a group of applicants (wards of the freedom

fighters, doctors, engineers etc.) gets special consideration regarding the age limit for
applying in BCS. This study covers the opinions of the respondents on this special
age limit for applicants. Among the BCS candidates, 98% have put their opinion
against the practice of special consideration on age limit, and the rest 2% have shown
their opinions in favor of it. Among the respondents from the BCS officers’ category,

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90% put their opinions against the practice of special age limit for applicants, and the
rest 10% of them put their opinions in favor of it (see figure-28). This indicates that
most of the respondents do not support the practice of special consideration on the
age limit.

7.3.3 Opinion on the similar age limit for all

98% respondents from the BCS candidates’ category put their opinions in favor of
similar age limit for all applicants; but the rest 2% respondents expressed their
opinions against it. Among the respondents from the existing BCS officers’ category,
90% officers put their opinion in favor of similar age limit, and the rest 10%
respondents put their opinions against similar age limit for all applicants (see figure-
28). This indicates that most of the respondents support similar age limit in BCS for all
applicants.

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7.3.4 Opinions on the existing age limit for BCS applicants

18% BCS candidates proposed 30 years; 76% proposed 31-33 years; and 6%
respondents proposed 34-35 years as the age limit for all applicants. Among the
respondents from the BCS officers’ category, 6% officers proposed 27-29 years; 40%
proposed 30 years; 42% proposed 31-33 years; and, the rest 12% officers proposed
34-35 years as the common age limit for applying in BCS (see figure-30). The above-
mentioned data from each category of respondents indicates that most of the
respondents demanded 31-33 years of age limit for all BCS applicants.

7.4. Opinions on the satisfied level on woman in Bangladesh Civil Service

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 Opinions BCS Officers

Level-4; 5.00% Level-5; 2.00%

Level-3; 21.00%
Level-1; 44.00%

Level-2; 28.00%

Among the respondents from the BCS officers’ category,44% BCS officers level-1;
28% proposed level-2; and 21% respondents proposed level-3, 5% respondents
proposed level-4, 2% respondents proposed level-5. (See figure-31)

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 Opinions BCS Senior O FFICERS

Level-5; 5.00%
Level-4; 8.00%
Level-3; 14.00% Level-1; 48.00%

Level-2; 25.00%

FIGURE-32

Among the respondents from the BCS Senior officers’ category, 48% officers
proposed level-1; 25% proposed level-2; 14% proposed level-3; 8% proposed level-4;
and, the rest 5% officers proposed level-5.(see figure-32). The above-mentioned data
from each category of respondents indicates that most of the respondents demanded
level-1 and level-2.[not satisfied and less satiafied]

0pinions BCS officer

Barrier-5; 8.00% Barrier-1; 3.00%
Barrier-4; 18.00% Barrier-2; 24.00%

Barrier-3; 47.00%

7.4.1.
Ranking of barriers to satisfied level on woman in Bangladesh Civil Service

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 FIGURE-33

Among the respondents from the BCS officers’ category, 3% BCS officers have
ranked ‘Marry’ as Barrier-1,24% respondents have ranked ‘Family /husband/child
caring’ as barrier-2, ,’Glass ceiling has been ranked by 47 % respondents as Barrier-3,
Reservation of seats (Quota)which is followed by the act of ranking it as Barrier-4 by
18% respondents and rest 8% of the respondents has been ranked ’Irregularities’ as
Barrier-5. (see figure-33)

0pinions BCS Senior officer

Barrier-1; 5.00%
Barrier-5; 10.00%
Barrier-4; 20.00% Barrier-2; 26.00%

Barrier-3; 39.00%

FIGURE-34

Among the respondents from the BCS Senior officers’ category, Among the
respondents from the BCS senior officers’ category, 5% BCS senior officers have
ranked ‘Marry’ as Barrier-1,26% respondents have ranked ‘Family /husband/child
caring’ as barrier-2, ,’Glass ceiling & Corruption’ has been ranked by 39 %

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respondents as Barrier-3, Reservation of seats (Quota)which is followed by the act of
ranking it as Barrier-4 by 20% respondents and rest 10% of the respondents has been
ranked ’Irregularities’ as Barrier-5. (see figure-34)

CHAPTER-EIGHT: FINDINGS, RECOMMENDATION AND

CONCLUSION
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8.0. Findings and Observation of the Study

This chapter converses about the basic surveying of the interviews as well as the
48
effect on the basis of the study. ‘It also checks out how the cultural theory of’
Hofstede, 2005, is apposite in the factors of women civil servants to go forwarding in
the civil service. It is the theoretical framework that guided the investigation and find
out its pertinent in this subject.

8.1. Scrutinize On Entry to Senior Level Officers:

Total 20 respondents have been dispensed from Asst. secretary to deputy secretary of
administration cadre and 25 respondents have been dispensed from BCS officers.
Both of the categories, approximately 6 persons said that family influence is a major
motivating factor for them to join in the civil service. Besides these, scope to serve the
humanity, power, prestige and social recognition of the job motivated them to join this
profession.

It has been found that females are highly stimulated to the job for family influences
and male for honor and power. However, there are few de-motivating factors like
transfer in field level especially in remote areas which made them apart from family
members, negative approach of community, colleagues and the authority, lack of
career planning, no self-possessed promotion, lack of market based salary and dual
duties in office and home are their authoritative de-motivating factors.

All the respondents agreed that women need to put extra endeavor to perform better
because their good deed considered as occasionally happened and misdeed pointed
finger to the whole womenfolk. To smooth the stone, female takes much time when
her counterpart move ahead leaving them behind. Eight respondents experienced that
they were not given specific task only because they were female officers. They are
often discriminated against their male colleagues by the authority. In case of

48 Hofstede, 2005-Cultures and Organizations:

Software of the Mind – Intellectual Cooperation and its Importance for Survival,
McGraw-Hill, London.

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challenging eviction, task force operation, lucrative sections male officers are the first
choice by their superiors. They are discouraged to undertake risky tasks either on
security grounds or on a pre-conceived idea that they are not capable of performing
such tasks. Generally they are given less important desk- work and poorly estimated.
There prevails a stereotype mentality that female cannot do anything properly and
sometimes reluctant attitude shown by the junior female officers also help to establish
this notion. Therefore, women themselves are responsible for degrading their dignity
in the service. However, female bureaucrats also carried about their challenges in the
job. According to them, balancing dual duties in both family and office is a great
challenge for them. It was also found that the support from the family is very pivotal
for the career of a woman in Bangladesh. They can overcome many of the difficulties
and shine in their career progression with the help of the family. Without the support
of the family, they cannot even continue their profession, let alone be outstanding.

Almost two-thirds of the respondents are not sure about their future growth. Though
they consider themselves cent percent competent but according to them up to deputy
secretary the procedure is visible and regular. After that as it goes up and up things
became unpredictable, irregular and hazy.

12 senior joint sec. to sec.

Quota increased 10 to 40 ; 16.33% Family problem; 10.20%

Discourage for challenging; 18.37%

Not sure future growth; 30.61%

Not given specific task; 24.49%

Impediments to
woman’s go forward in civil service

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 FIGURE-35

Twelve senior civil servants ranked from joint secretary to secretary were interviewed
regarding existing policy which could optimize gender representation. They opined
that there is no special arrangement for pushing women in the top position except the
10% quota in the entry level. Most interestingly no female officer was in favor of
imposing quota in forwarding position because women do not want to see them as a
―product of quota. All agreed that competent officers are badly needed in the top
position who could lead the bureaucracy to the right way. Male interviewee opined
that the entry of female officers to the civil service is very recent. Therefore,
historically the starting point of both male and female to the civil service is not same
and it is obvious that there will be indented size, misrepresentation or under
representation of one group. Whereas, female interviewee felt that negative perception
about women‘s capability plays a vital role for low representation in apex
management. For this reason for last thirty years the civil service is waiting to see
secretary from finance, public administration, home and law. One respondent opined
that-

Ms. x joined the administrative service in 1982 as a first batch of

this cadre. In the early 80’s women who worked in the sub- urban
areas faced safeguarding or regressive attitude that impede the
growth of confidence among the women. In spite of this adverse
situation, she voluntarily perform challenging tasks and did quite
successfully. She was one of the first who was appointed as ADC.
Having field experience, decision making abilities and leadership
qualities she was performing well as ADC. In spite of well
performance she was feeling a sense of insecurity in her workplace
by her superiors. She felt awkward and physically threatened all

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 the time. When she challenged her boss, to her utter dismay, she
did not get support from her male colleagues. At that time
harassment of women and undermining their capabilities were
common features of public service. She was insisting to work
beyond office hours and in addition to office work. After informing
higher authority she was withdrawn from ADC taking the blame in
shoulder that “women are not fit for the challenging job”. After
that female were not seen as ADC for couple of years. This is how
women generalized by single occurrence The success of women’s
attempt depends largely by male superiors with conventional look.

Male authoritative superior selection board often takes decision from a male point of
view. Despite balancing dual responsibility women manages job with utmost
dedication, sincerity and honesty. Nobody seemed to recognize the dual role of a
woman that needed to play as a working mother. But women‘s strong promise and
non-surrendering viewpoint to the unfavorable situation over the years able them to
reach in a position where they are now.

Mr. y, an Addl. Secretary in a reputed ministry opined that

he had two junior female senior secretaries who worked
under him. One is very much enthusiastic, punctual and
proactive. She actively attends in all meetings, tries to give
comments and consider decision making one of the
important function in her job.

The latter always look for excuse to quit responsibilities.

She frequently remain absent in the meeting and ultimately
excluded her from the process of decision making. She
hesitates to take charge of challenging jobs which imply
either she is lack of confidence or not interested to perform
difficult jobs. According to Mr. B all officers need to give
his best at his or her work. One needs to compete with his
or her own self. By doing that he or she can make
difference at work. It is the capacity that determine who
will advance fast in the career. The reluctant attitude of

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 second officer has negatively impact on his superiors’
mind that might affect the grading of their ACR.

One male respondent stated that 70% quota for administration cadre officers in joint
secretary and additional secretary level is also responsible for low representation of
women. For promotion to the top, performance, track record, ACR etc. determine
one‘s promotion. Perhaps, the rational for promoting a female officer cannot be
justified simply because she is a female. There is no apparent glass ceiling ‘for
positions of the top civil service for women though there may be an argument that
certain positions are male dominated and not meant for women. But whatever
progress has been made in the name of representation of female officers to the top is
suggestive that contribution of patriarchal mentality ‘for promotion of female officers
to the top is either minimal or has changed significantly over the years.

Ms.Z, a secretary stated that, for a long time, women were encouraged to work in
stereotyped occupations like teaching and nursing. They were not allowed to join
services which required mobility, decision making ability, much meritocracy,
diplomacy etc. potentials of women were underestimated and this sort of negative
attitude acted as a barrier to enhancing self confidence of women.

With the altering policies of the government, women began to join almost all the
services of the government. They have manifested themselves in traditional and
non- traditional fields. Although intake of women has increased substantially over
the years but representation in the senior management is still negligible. Because
women have been discriminated against for a long time, they should be promoted
to higher tier more and more through affirmative actions and this will, to some
extent make the representation fair.

All the respondents argued that the pen paper system of promotion is not
maintaining. As a result, to introduce performance measurement mechanism is
badly needed which will ultimately put and end to all controversies.

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8.2. Synopsis of the observations

 Women require putting extra effort to perform better in most of the cases.
 In case of challenging deeds they are often discriminated by their superiors.
 Family support is the most climacteric determinant for smooth functioning
of women‘s career.
 The young civil servants are very much bewildered about their future
growth.
 Female officers do not want to see them as commodity of quota‘.
 Male domination in the top resulting under representation of women in the
upper level of administration.
 Distancing obstacle is much important rather than empowering women
8.3. Recommendations:

The following steps should be taken to ensure equitable representation of women in

the civil service:

1. Reservation of female quota in BCS was introduced to bring women into the
mainstream of civil service. But it was found the existing female quota is not
fully utilized in much recruitment. Hence emphasis should be given for the
full utilization of the quota.
2. The distribution of posts under female quota should be separately reserved
without affecting the quota of the district so that qualified women from the
same district have enough opportunity to get jobs under the quota system. This
will help to fill the female quota.

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3. Seniority requirements may be relaxed in promoting capable women to the
high positions in the various cadres of civil service. Enforcement of female
quota at the lateral entry level through promotion or recruitment of suitable
women into the high administrative positions may improve the situation.
4. To fulfill the female quota, more emphasis should be given to the quality of
female education. Low mobility and poor access to the information network
are responsible for the lack of general knowledge among women which results
in high female drop-out rate at BCS preliminary examination. The females
should be exposed to more formal and informal education.
5. The participation of women in BCS Examination from the rural areas is
minimal due to limited educational opportunity and the inability and social
prejudices of the parents in allowing them to continue on to higher education.
On the other hand, the female students are not interested in science and
technical education. All these issues need to be investigated in detail to
undertake steps to improve the situation. The education sector needs proper
planning to conduct their academic activities in conformity with the needs of
the job.
6. A proper policy should be taken regarding transfer, promotion, and reputation
and the policy should be friendly to the family life of the female civil servants.
7. The atmosphere of working should be convenient to the women civil servants.
They should be given enough hostel facilities, separate rest room, separate
toilet, housing facilities, the daycare center for maintaining children’s and
transport facilities should be provided.
8. The typical mindset of men towards women should be changed. Women
should encourage joining the civil service.
9. Continuing the job without any disturbance, Family members should co-
operate women to join the civil service.
10. To inspire and support the women to ensure equal job opportunities, a strong
national campaign must be promoted against the traditional socio-cultural and
religious norms.
11. Media should help in transforming information regarding women-friendly
policies of the government and increase social awareness to change the
mindset.

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 12. The female quota should be increased from 10 percent to 15 percent at the
entry level in the civil service to minimize the gap between male and female.
13. The prevailing female quota policy cannot utilize the quota in many
recruitments of Bangladesh Civil Service properly. Therefore, prominence
should be assumed to the full employment in the quota.
14. Women should be given enough chances to enter and perform at the policy-
making level. Through this, they can solve their problems well.
15. In the place of work, female colleagues faced difficulty by the male
colleagues. Gender sensitivity training may be promoted, With the intention of
shape up conscious of gender issues at the workplace.
16. Educational facilities should be given to the grassroots level women, who are
deprived of this facility. Through proper education, they can represent them in
a proper job position.
17. In Bangladesh, The education sector is suffering from poor planning. Their
needs proper planning in academic activities that ensures job opportunity and
increase women empowerment.
To improve the working environment for women in government services the
following suggestions are recommended:

1. To maintain necessary privacy in offices, the physical layout of different

offices should be improved with provisions for separate office-rooms, rest-
rooms and toilets.
2. Daycare centers should be made available in or around the workplace.
3. Availability of transport should be expanded for female officers.
4. Superior officers should ensure that women are not discriminated in giving
responsibilities. They should take appropriate steps to create a democratic
environment in offices and to ensure effective participation of all, particularly
women in decision making. There should be restructuring and redistribution of
domestic responsibilities to tackle the problem of the dual role of women as a
housewife and a professional.
5. Males should be encouraged to share household activities.
6. Non cooperation of family members is one of the reasons why the majority of
female graduates do not choose government services as their career. On the
other hand family encouragement influences the decision of women for

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 entering government services. So, family members should have a more
cooperative attitude to create opportunities and a cordial atmosphere to enable
women to pursue a career in civil service.
7. The state should recognize motherhood as a social obligation. Therefore
maternity leave should be extended to at least 6 months with full salary and
without a break in service.
8. In order to create a positive social attitude towards women civil servants a big
publicity campaign should be launched through mass media as well as by
holding seminars, symposia etc on a regular basis.
9. The issue of gender and development should be integrated into different
training courses in such a manner so that, it helps to develop necessary
awareness and a positive attitude among all concerned regarding gender
inequality and the desired role of women in society .
10. An effective education and training policy and corresponding strategies should
be developed to motivate women to join the civil service.
Civil service should have a transparent policy statement on gender equality and
practices encompassing recruitment, promotion, transfer and career development,
leave entitlement and other conditions of service, gender behavior and mechanism of
grievance redress including appeals mechanism.

It is evident from the study that though women have managed to increase their
number in the service of the Republic, their position in terms of power and
influencing decision making has not yet improved.

Following recommendations are made reducing problems and creating a congenial

atmosphere for the women at the field level:

1. Competent female officers should be posted in mainstreaming ministries.

Government can by affirmative policy appoint qualified women to the posts
generally held by men to help dispel the myth of gender stereotyped jobs.
2. In superior selection board there should be a female representation. A post
can be created on the basis of most senior female civil servant because in
the administration and policy levels where power is defined and decisions
are made, there is a dearth of women‘s participation.

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 3. Optimal use of Presidential quota for selecting only bright and competent
officers from different services and sectors.
4. There should be a comprehensive policy in the civil service to remove all
the hindrance that hinder the career progression of women and address their
special needs for smooth functioning.
5. It was found in the study that young officers are very much unsure about
their career progression. In general, they are frustrated about the political
entitlement that is badly needed for career growth nowadays. De-
politicization is necessary. If eradication is not possible than mitigation can
be done.
6. To introduce a globally competent mechanism to measure performance.
This however should be entirely merit based and through open competition
for all.
8.4. Conclusion

In the last four decades, Bangladesh has made many perceptible gainings in women’s
development. It has become transparent that in the context of Bangladesh, female civil
servants are perceived as incompetent, having lack of dedication to the job and over-
burdened by the female affairs. The trend of women‘s representation forwarding is
slowly changing. So, our societal, cultural, structural and personal factors contribute
altogether for the slow progress of the women‘s representation in the highest position.
The country approved “Women Development Policy” in 1996 and revised it in 2010;
Reforms have been made in Local Government Policies to include 33% women in
Local Government Institutions and as a result huge numbers of women are working as
elected representative in all kinds of local government institutions; number of women
in the Civil Service has increased etc. This research found several stumbling blocks
for women getting civil service forwarding position. When we are talking about a
globally accomplished civil service we need to ensure both quality and quantity.
Therefore, balancing women‘s representation a comprehensive approach is needed by
all in the organization that enhance the effectiveness of each other and development of
the capacities of less confident ones. There is a need for policy changes on different
issues. We would not put too emphasis on gender sensitization, but it seems there is a
need for gender desensitization for political and bureaucratic high ups which may lead
to policy changes. Appropriate strategies, actions and a social measure leading

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towards forming a gender sensitive environment may lead to increase women’s
representation in the leadership position of civil service of Bangladesh. Most
importantly, a significant increase of women in senior managerial positions requires a
basic restructuring of the distribution of patriarchal power in the society. And that can
come through consciousness rising and empowerment of women spelled out not only
in documents and policy statements but also through sustained commitment and
implementation of those by the state. Otherwise none can be able to look for new
directions. Last but not the list we already mentioned that this research was based on
secondary data and sources. Therefore, this research will encourage further verifiable
research for policy recommendation on this matter.

References

Page | 115
 Appendix‐I
Questionnaire
(For Existing SENIOR BCS Officers)
[The following information will be used only for academic analysis purpose]
Part‐A:
Respondent’s Name (optional):
Gender: Male/Female
Address/Location:
Designation:
Educational Qualification:
Date:
Part‐B:
1. What compasses you are satisfied level on woman in Bangladesh Civil
Service? Please rate in the following scale.

1 2 3 4 5

[Not satisfied=1, Less satisfied=2, fairly satisfied=3, Satisfied=4, highly satisfied=5]

2. If you are not satisfied, please rank (1, 2, 3.......) the following problems behind
it?
Problems Rank
Marry Barrier -1
Family /husband/child caring Barrier -2
Glass ceiling Barrier - 3
Reservation of seats(Quota) Barrier -4
Irregularities Barrier -5

3. Do you get any kind of extra compression performing your job after having
change in your familial life such as marriage, birth of your baby or absence of
domestic help?

Page | 116
4. Do you ever found any contradiction between your dual responsibility means
performing your domestic role and official role?

5. If have challenges in woman in working remote place, what will be the

mitigation?

6. Have you ever experienced any situation where you were not given any
challenging responsibilities only because you are a woman?

7. Do you think female civil servant need to put extra efforts to perform better
rather than his counterpart?

8. There is a prevailing idea of the society that women take decisions

emotionally rather than professionally? Does it also applicable for female civil
servant also?

9. Do woman are facing problems to forwarding her career in BCS.

10. If yes, is this problem acceptable?

YES NO

11.If is not acceptable, what would be the process to overcome it?

12. Does the existing selection process ensure the merit‐based recruitment in BCS?

YES NO

13. If NO, please rank (1, 2 ...) the following barriers to merit‐based
recruitment?

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 Barriers Rank
Quota system 1
Political interference 2
Glass ceiling 3
Irregularities 4
Corruption 5

If any other barrier, please mention:

14. What do you think, Female quota should increased or decreased

15. What is your suggestion for ensuring Quota based recruitment?

16. Do you think that age limit would be similar for all?

YES NO

17. Do you support woman would be given special consideration on age limit?

YES NO

18. If not, what should be the age limit?

30 32

19. Please, put your recommendation on the existing Quota system in BCS?
Female quota should be increased or decreased?

Recommendation
Types of Quota Existing (%) (%)
Freedom fighter Quota 30
Female Quota 10
Tribal Quota 5

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 Quota for physically
challenged 1
District Quota 10

20. What is your satisfaction level on the existing eligibility criteria for woman in
BCS? .

1 2 3 4 5

[Not satisfied=1, Less satisfied=2, fairly satisfied=3, Satisfied=4, highly satisfied=5]

21. If you are not satisfied, what should be the minimum educational
requirement for BCS to woman?

22. Being a female how much comfortable you are with your job in comparison
with your male colleague? Please rank the rate.

Highly Less
Comfortab Moderately Comforta
le-3 Comfortable-2 ble-1

23. Do you have any other observation about women prospects in BCS?

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