Jahangirnagar Planning Review Vol. 3, June 2005, pp.

1-7, Jahangirnagar University

ISSN 1728-4198

This article is brought to you by www.bdresearch.org Capacity Building of Pourashava: A Case Study of Savar Pourashava
Shammi Akhter Satu* Abstract
In Bangladesh, the pourashavas correspond to principal administrative units and urban centers at the district and other minor towns declared by law as urban areas. Local institutions are necessary for accelerated urban development that envisages a wide spectrum of organizational, productive, income earning, employment generating, public health, sanitation, water supply, infrastructure facilities and welfare activities. The pourashavas are empowered to perform a wide variety of socio-economic and civic functions (The Pourashava Ordinance, 1977). But at present the pourashavas do not have adequate capacity to perform all their assigned activities. Capacity building revolves around improving the administrative, financial and technical competencies of local functionaries to a level that is consonance with the requirements of the Local Government rules and regulations so that local government can be effective and responsive to the needs of their constituencies (Rahman, 2001). Savar pourashava of Dhaka district has been selected as the case study to identify the constraints and potentials of capacity building of the pourashava. This paper intends to facilitate an efficient, planned and sensible organizational setup of Savar pourashava. The suggested recommendations in the paper may help to ensure the pourashavas in their capacity building for better and efficient performance.

Introduction The rapid population growth that has taken place throughout Bangladesh has resulted in a steady shift of population from the rural to urban areas for better civic amenities, job opportunities and improved quality of life. Pourashava occupy an important place in the overall system of administration and governance in Bangladesh: firstly, as key local government bodies with the status of statutory bodies constituted under law and function as autonomous self-governing units for urban areas of the country; and secondly, as agencies rendering important public services to the people of urban areas. There is an intimate relationship between urban institutions and urban development. Local institutions are necessary to facilitate urban development that ensures organizational, employment generating, public health, water supply, infrastructure facilities and welfare activities. It also idealizes the spirit of cooperation, peoples participation and local level planning. At present there are 260 pourashavas in Bangladesh (BBS, 2001). Many pourashavas in Bangladesh cannot provide the required services for their dwellers. For the purpose of the study Savar Pourashava of Dhaka district, which is representative of the existing conventional pourashavas has been selected to identify the constraints and potentials of capacity building of Pourashava. Capacity building is to improve the efficiency of institutional framework and institutional performance of the Pourashava to get closer to self-sufficiency level through attaining better efficiency in revenue generation and to improve the quality of life of the dwellers by providing better civic amenities by the more effective public participation in development activities and the development of local resources (World Bank, 1997). For capacity building of pourashavas, it is required to (i) decentralize and devolve power; (ii) improve the technical capability of their employees; (iii) computerize all inventories and resources; (iv) improve service efficiency and ensure community
*

Lecturer, Department of Urban and Regional Planning, Jahangirnagar University, Savar, Dhaka

Jahangirnagar Planning Review, Vol. 3, June 2005

participation; and (v) create an accountable and transparent team in all the institutional activities, for example in revenue and tax collection system. Objective(s), Sources of Data and Methodology Capacity building is important for the development of Pourashava. As Pourashava is the local level organization of the Government, it should have the power for planning & implementation of development activities (Siddique, 1984). The present study attempts to investigate different municipal services in order to examine the institutional capacity; and suggest measures to improve the capacity of the Pourashava. A very simple methodology was followed to conduct the study. Map and secondary data were collected from LGED headquarter and Savar pourashava office. A Reconnaissance survey of the pourashava was conducted to get the overall picture of the pourashava. A questionnaire survey was carried out for the pourashava officials, staff and cross-section of dwellers. Collected data and information on characteristics of the Pourashava, existing utility services, income and expenditure; and Budget allocation system of the pourashava were analyzed. Then some recommendations were proposed for better functioning of the pourashava. Study Area The study area, Savar is a class A-2 pourashava of Dhaka district located at a distance of 27 km. from Dhaka city. It takes about half an hour to reach Savar from Dhaka by road. The area of Savar pourashava is 14.08 square km. And its total population is about 1,40, 300 (BBS, 2001). It has 9 wards, 44 mouzas and 51 mahallas. The total holding number of Savar pourashava is 13,198 of which 11,101 holdings are residential (84%), 1,480 holdings are commercial (11%) and 137 holdings are industrial (!%), and others (4%). So, Savar pourashava can be said mainly a residential area. The annual revenue income from its own source is Tk. 1,20,00,000. A total of 131 staffs are working in the pourashava. Major Findings of the Study This study was conducted to explore the present institutional framework and performance, services and facilities, tax revenue collection system, existing services of pourashava, existing income and expenditure and budget of pourashava and community participation and involvement of NGOs in pourashava activities and current planning and development activities of the pourashava and the problems of the dwellers. Demographic Findings Total population of the Savar pourashava is about 1,40,300 according to census report 2001. The literacy rate is 48.16% of which 46.6% persons are male and 50.8% are female. As a urban area the literacy rate is not high but the literacy rate of female is significant. The natural growth rate is about 2.2% but the total population growth rate is about 5%. The reason behind this is many people migrated to pourashava area form out side of the pourashava for service, education, business and for enjoying better life. According to the Census Report 2001, the population density of the pourashava is about 1,000 per square kilometers. In the central area this figure is about 1,800. Utility Services Findings Road network: The road network is sufficient but the road condition is not satisfactory at all. Except Dhaka-Aricha highway there are a very few numbers of narrow pucca roads. Maximum roads are kutcha and brick soling. Most of the roads are unsuitable for heavy vehicles. Except the pucca roads most of the roads are difficult to use during the rainy

Capacity Building of Pourashava: A Case Study of Savar Pourashava

season. On the other hand for the lack of bus terminal, buses are stopped at Savar-bazar along the roadside and creates traffic congestion Drinking water supply and sanitation: The Savar pourashava do not have its own piped water supply system. The inhabitants of this pourashava use ground water, which is extracted by tube-wells. Savar pourashava has 75 Tara deep sets and 270 shallow tubewells. In Bank Town Colony, ward no.9, a community-based organization has been formed to supply water to all the houses of this colony. In Savar, there is no provision of pourashava authorized sewerage facility. Thus, the sewerage condition of the area is very poor. In Savar pourashava jurisdiction, only 40km of kutcha and pucca drainage lines are found for storm water. Any sewerage system is yet to develop in the Savar pourashava. Solid Waste Disposal: The pourashava authority has provided 40 dustbins in various parts of the pourashava area. The pourashava has two trucks and twelve vans to collect garbage from these dustbins. The number of dustbins provided by the pourashava is not adequate. In Savar, crude open dumping is practiced for waste disposal. There is no provision for preventing contamination of the ground water from leachate; eventually leading to the contamination of drinking water sources. They spread odor. Electricity and Gas: Rural Electrification Board supplies electricity in the pourashava area of Savar. There is no power generation plant in Savar. Those who are able to continue the cost of supplied gas can easily get the facility of gas. Supply of gas is the only civic amenity that can be found at convenient level at the Savar, users have no objection about it. Social and Welfare Institutions Educational Institutions: Literacy rate in Savar pourashava area is not very good. The main reasons are inadequate educational institutions, lack of peoples awareness about the importance of education and lack of initiative taken by NGOs and CBOs. According to the Savar Pourashava Office, 47 percent of male population and 51 percent of female population of the pourashava are literate. There are ten primary schools, four secondary schools and three colleges in the pourashava which is insufficient compared to the population residing here. Training Centers: In Savar pourashava, there is lack of adequate training institution. A Youth Development Center is located at the front of Bank Town Colony. It provides training to young people in improving their skill in tailoring, embroidering, poultry, agriculture and various types of sectors. Health Care Facilities: In Savar pourashava health facility is not good at all. In terms of equipment and supplies the health facilities are poor. Hospitals, clinics and other units do not have the elementary equipments for diagnosis and treatment or to meet minor emergencies. There are 10 private clinics and other 12 health complexes in Savar pourashava. The Savar pourashava has some E.P.I activities. NGOs activities: In Savar pourashava some of the well-known NGOs are; BRAC, Proshika, ASA, World Vision, UTPS, NSDP, Adesh, VERC, BAST, Bureau-Tangail, Green Force Society, etc. These NGOs are performing various types of activities like adult and children education and training, arrangement of micro credit, increase social awareness and afforestation, etc. these are proof of their participation in the pourashava activities.

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Findings Regarding Financial Matters Trade License: There is no option for recording the amount, which is earned by the pourashava through trade license. All the amounts earned through license of the contractors, registration of vehicles (only rickshaw, pushcarts and vans) and service taxes are recorded under the heading Trade License. Holding Tax: Holding tax is the main source of income of the Savar Pourashava. The citizens of the Pourashava have to pay 7% of the valuation as holding tax. The collection of holding taxes for the last three financial years in Savar pourashava are shown in the following table: Table 1: Collection of holding tax as percentage of total target
Financial Year Holding Tax Current (in taka) 704000 114300 154600 Percentage of collection of total target 19.33% 31% 52% Arrear (in taka) 177200 368800 553500 Percentage of collection of total target 30% 48% 83%

1999-00 2000-01 2001-02

Source: Savar Pourashava Office

Savar Pourashava collects a significant amount by leasing its various resources like hatbazar, vegetable market, launch ghat, balu ghat, toilet, etc. Pourashava also earns a significant amount from selling of tender schedules and issuing different types of certificates (e.g. nationality certificate, birth certificate, death certificate etc.). Collection of taxes from approval of building plan, construction and re-construction of buildings in Savar Pourashava has been started from this financial year (2002-03) Expenditure Pattern of Pourashava: Savar Pourashava spends a large amount of their annual budget for providing infrastructures, its maintenance and development. Pourashava also has to spend a large amount of money in every financial year for the wages and salaries of its staffs. Pourashava allocates a small amount in its budget every year to help the people who are affected by any natural disaster such as flood, cyclone, drought etc. Pourashava also has to spend money in telephone bill, purchasing furniture & stationary goods, notices & advertisement, immunization program, printing, donation to social and religious organization, plantation, sanitary latrine supply, killing of excess of dogs, homage of unclaimed dead bodies, etc. But Savar pourashava has no budget for skill improvement and training program. Budget allocation: In Savar pourashava the budget for different sectors are allocated on priority basis. The allocation in different sectors in the previous budget also influences the new allocation. Usually the priority is set in the following order: Road construction and improvement Garbage disposal and drainage facilities Construction of market and bus terminal Public Health Office repairing. Findings regarding Transparency and Accountability The current accounting system, which is used in Savar pourashava, is single entry accounting system. The activities of pourashava authority lack transparency and

Capacity Building of Pourashava: A Case Study of Savar Pourashava

accountability. For lack of monitoring, general people have no idea about budget allocation system, implementation of development and maintenance activities, income and expenditure of the pourashava. Findings regarding the Institutional Framework and Performance The administrative performance of the pourashava is extremely limited. Tax personnel lack basic skills in tax administration. The base of the taxes appears to be undervalued and is seldom adjusted in a timely way. Penalties on late payment or on non-payment of tax liabilities are rarely imposed. The billing and payment process is inefficient, cumbersome and outdated and is also subject to corruption for the absence of computerization. Centralized responsibility of the pourashava acts as a barrier of development. The pourashava is yet to prepare any master plan and zoning regulations. Recommendations Capacity building revolves around improving the administrative, financial and technical competencies of local functionaries to a level that is consonance with the requirements of the Local Government rules and regulations so that local government can be effective and responsive to the needs of their constituencies (Rahman, 2001). The problem of urban services in Savar is due to inability of the service organizations to meet current demand for the services and lack of acceptable service standards for urban services. The recommendations for the enhanced capacity of Savar pourashava are presented below: As the budgets are not based on analysis of service levels or needs the pourashava should embark on a strategic planning activity that results in identifiable and measurable target. The pourashavas should increase revenues from holding taxes by increasing the tax base immediately. The pourashava should introduce penalties for tax delinquency. There should be incentives in intergovernmental grants for improved tax collection in the pourashava. Ministry of LGRDC should introduce a matching grant system that rewards good tax collection and punishes poor tax collection. Government of Bangladesh should develop a system of allocation of funds to the pourashavas that is transparent and generates trust among the pourashavas. The Ministry of LGRDC and the pourashava should make budget development process more responsive to citizens; expand budget preparation to allow technical and public comment. The technical capability of the pourashava staff and officials should be increased through training so that they can operate computer efficiently. Initiatives has to be taken by the pourashava authority to improve the capability of pourashava staff by assessing staff levels, providing incentives for well-trained personnel, rewarding good performance etc. Ministry of local government should take immediate initiatives for modernizing the accounting systems and introduce double entry cash accounting system. In every ward there should be offices for the ward commissioner, which will help the dwellers of the wards to communicate with their elected representative for any kind of demand or problem. In the pourashava office there should be a room for the commissioners where they can meet with the dwellers and can meet with other commissioners in weekly basis. Initiatives should be taken to improve limited administrative capacity of tax collection through training of tax assessors and other personnel and through computerizing tax collection system.

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The pourashavas and the LGED should embark on a massive education campaign for public officials to overcome the weak institutional capacity There should be more vocational training center in pourashava to provide training to young peoples in improving their skill in tailoring, embroidering, poultry, agriculture and various types of sectors. The pourashava authority and the Government of Bangladesh should take initiatives for increase of ethical standards, transparency in pourashava transaction, increase punitive measures on corruption activities, provide appropriate incentives to employees for preventing widespread corruption at pourashava level. The pourashava officials should take immediate initiative for ensuring dialogue with the cross section of dwellers in the budget preparation process and in any decision-making process regarding development activity of the pourashava. The pourashava and the community groups should establish closer links between taxes and services of the pourashava through referenda on citizen services and household survey. To ensure citizens participation in municipal affairs for accountability of pourashava activities the pourashava and the citizen group should enforce the sharing of information by municipalities with citizens, improve open public record policy and involve citizens in pourashava management. Zoning regulations should be prepared immediately for controlled growth of the pourashava. For the planned future growth and development the pourashava should take immediate measure for preparing the master plan. Adequate dumping site should be provided as early as possible. For garbage disposal sanitary landfill should be practiced by the pourashava. There should be strict monitoring cell to monitor and inspect the industries whether they are maintaining the regulation and rules of the pourashava and the rules and regulations provided by the Department of Environment or not. Conclusion Bangladesh is a developing country with scarce resources. The optimum utilization of these scarce resources largely depends on the efficient and planned allocation of these resources in the various sectors. Sensible organization is the prerequisite for any development activities that ensures the optimum and planned utilization of resources. To achieve this prerequisite the Savar pourashava needs an efficient and planned organizational setup. For capacity building of Savar pourashava, improvement in the organizational duties and responsibilities is required. The organizational duties and responsibilities should be well defined to regulate the development activities to the desired destination. In this paper, the constraints and barriers to efficient, planned and sensible organization are identified and analyzed. The recommendations made in this paper, may provide some directions to achieve efficient, planned, and sensible organizational setup of Savar pourashava. This may enhance capacity of the pourashava in future to deliver municipal services.

Capacity Building of Pourashava: A Case Study of Savar Pourashava

References
BBS. 2001.Statistical yearbook of Bangladesh. Dhaka: Bangladesh Bureau of Statistics, Ministry of Planning, Government of Bangladesh. Rahman, G. 2001. Local Level Institutional Development and Capacity Building for Poverty Alleviation in Bangladesh. Nagar Shaily, 2(1): 5-9. Siddique, K.1984. (ed.) Local Government in Bangladesh, Dhaka: The University Press Limited. The Pourashava Ordinance.1977. Ordinance no. 16 of 1977, Ministry of Law, Justice and Parliamentary Affairs, Government of Bangladesh. World Bank. 1997. Bangladesh Municipal Finance Management Sector Study,1997. New York: World Bank Publication