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Reflections on the Development-Planning Approach

by Dr Mujibur Rahman
***In lieu of a district level plan which the minister considers as a better alternative to the present central level planning, a thana-based plan (in the context of Bangladesh's socio-political/geographical situation) will perhaps be more appropriate, especially in the light of results achieved while implementing the rural development programmes.***
IT is encouraging to see that the draft Fifth Five-Year Plan for period 1997 2002 has al ready been prepared by the Bangladesh Planning Commis sion Some hired technocrats working in Bangladesh Plan nine Commission perhaps guided, to some extent, by the political leaders, have prepared the plan which has also been reviewed by a panel of economists. Like its predecessors. this plan has also made a top down' approach in the preparation of the plan. From the impressive document prepared. it appears that another ritual has been completed without having a bottom up' approach which is considered necessary.
Few months ago. 1 read with interest an article written by the Minister of Finance entitled Experience of District Development Conference in The Daily Star advocating decentralised planning approach. While I fully agree with the minister's view point of changing the present planning process from centralised system to a grassroots level planning. I. however, differ with his suggested approach of starting district based planning process in Bangladesh for several reasons.
First, the district-based planning which the minister is advocating to adopt, is not going to be a lot different from the present centralised planning process. It is not expected to yield much better results in term of project formulation and implementation than the present central level planning. This is primarily for the fact that the same or similar top down’ approach as opposed to bottom up' approach will still be there in many respects due to the absence of full participatory approach as is usually involved in rural development activities in particular.
Secondly, while the central level planning process (top down) may have some merit of using the accumulated knowledge. experience and expertise of various ministries depts./agencies which are all located in the Capital, the district level officials, however, bright and knowledgeable they may be. cannot claim to have the same expertise as the Capital level experts may have. As such, district level plan is not expected to bring about any significant improvement in the planning process. A district level plan, however well prepared with the participation of
the political leaders, dis trict/division level bureaucrats and NGOs. will still lack in full participation of people in the rural areas Real down-to-earth approach will still be missing Many of the districts (some sub divisions have been upgraded into districts) do not have the required administrative set up or expertise in drawing compre hensive development plan. If the planning process has to be bottom up'' which is highly desired. why not formulate a thana-based plan rather than a district based plan?
Thirdly, any integrated rural development plan, which is the need of the hour in Bangladesh, has to emanate from rural areas and for administrative expediency. has to be based on thana, and also has to have the involvement of the rural people concerned in the development Rrocess. The division/district •vel bureaucrats and headquarters technocrats casual Involvement will not necessarily make the planning more pragmatic and effective as the minister claims. Real micro-projects to be Implemented in rural areas, will not be forthcoming by mere consultation and few days, of hurried efforts of district level officials without a systematic approach at the grassroots level on a permanent basis.
In lieu of a district level plan which the minister considers as a better alternative to the present central level planning, a thana-based plan (in the context of Bangladesh's socio-political/geographical situation) will perhaps be more appropriate, especially in the light of results achieved while implementing the rural development programmes. For integrated rural development pro-grammes/projects in particular, it would be appropriate to draw up thana development plans, covering areas such as small irrigation. (based on tube-well, pumps, canals, beels and other water bodies), roads/feeder roads, culverts, primary and secondary schools, health service facilities, veterinary supplies and services, public works, supplies and services of agricultural Inputs, agricultural extension activities (improved crop husbandry and yield), family planning, rural works programme, poverty alleviation programmes (Including credit) for income-generating activities in the rural areas.
This are all rural development activities, which cannot
be effectively planned at a level much higher than that of the rural areas. Thana, in this context. serves as the focal point to initiate and nurture development plan and monitor their implementation. It is heartening to note the successful work carried out by some of the NGOs and Grameen Bank at thana level. Why thana will be a better base for integrated rural development than a district headquarters, is primarily due to its proximity to the rural areas. the acquired knowledge and experience of the thana government officials about the thana concerned . At present, there are about a dozen and half thana level officials holding responsibilities for supplies and services and technical advice in respective disciplines related to rural areas.
These are: Thana Krishi Officer, Thana Education Officer. Thana Protect Offer (for Relief and Rehabilitation Ministry. Thana Engineer. Thana Fishery Officer. Thana Livestock Officer, Thana Co-operative Officer. Thana Women Affairs Officer. Thana Telephone Sub-Asstt. Engineer. Roads and Highways Sub-Asstt. Engineer for works and Thana Statistical Officer.
To coordinate the activities of these officials, there is already a Thana Nlrbahi Officer (TNO) who virtually works as a team leader in a thana. The TNO with appropriate training and guidelines may provide leadership in drawing up a more realistic plan relating to a thana concerned in consultation with the local leaders and enlightened citizens/farmers. The local MPs and council officials can also assist and guide him In drawing up a thana development plan. Or in other words . there is already a Secretariat in each thana. For formulation of an Integrated rural development plan, the services of these officials can be usefully deployed to build up an inventory of what facilities exist in each thana, what more is required in terms of construction of physical facilities in the rural areas, schools and social services, supplies and services of inputs, technical advice to in-
crease the productive capacity of the rural people. People's felt needs can be better assessed and reflected in the thanabased plan.
Village groups/leader's suggested plans/programmes. can be put into a thana plan which, in turn, can be integrated into a district Alan and eventually dovetaAjd into a central plan. TlMu&*lse fund allocation for eAb -district can be made in annual development programme in consultation with the relevant mlnlstries/depts. Alternatively, a separate allocation can be made for each thana based on a thana plan even without consulting the ministry/dept concerned? The district authorities may verify and coordinate this kind of decentralised planning process and combine both public and iirivate sector activities geared or each thana (done through Sirivate supplies and services — ertiliser and seeds, tube-wells and the NGOs' Intensive work in the villages). With appropriate guidelines, the pro-gramme/projects can be effectively implemented.
My experience In working in rural development activities, both Inside and outside Bangladesh, and exposure to a decentralised planning process (bottom-up approach) outside Bangladesh has convinced me that this type of micro approach in planning, will yield much better results in accelerating rural development than the present system.
Indonesia provides a model of "bottom up" planning approach where rural development plan emanates from the rural areas and a thana-based plan is coordinated at the provincial headquarters. In Indonesia, there is a Central Planning Agency (Bappenas) which has a counterpart planning agency at the provincial level (called Bappedas). Bappedas, which is headed by the Governor, has some seconded planning staff at each thana level (Kabupetan). An elected head called "BupatC heads each Kabupetan (almost like a thana). Bupati has under
his administrative control, an elaborate thana level planning staff of the Bappedas.
While the Bappens prepare? the national objectives, priorities and the projects of national importance in consultation with the ministers/deptts/agencies concerned, all rural development projects are. however, drawn up by these staff at thana level and their implementation is monitored there. Indonesia has this model perhaps due to the far-flung location of various provinces with district characteristics. While Bangladesh does not have such an administrative set-up, the decentralised planning process and results achieved seem quite interesting to study and emulate, if found feasible.
Even in a less developed country like Albenla in Eastern Europe, it is the Rural Devel-
opment Board which funds all rural development projects which are drawn up by the local commune — an elected body — and a bottom up’ approach is made in drawing up all rural projects with the help of rural level staff. The expert staff of the Rural Development Board evaluates each pro-Ject/programme and funds are allocated and disbursed expeditiously. The World Bank, IFAD and IDB are financing some of these micro-projects which are well formulated and better executed. What is striking and perhaps relevant for Bangladesh is the realistic formulation, monitoring of the plans/programmes and their effective implementation.
The experience gained and the results achieved in "Char-shadda" in Pakistan, provides another model as to how an in-
tegrated thana programme can be effectively formulated and a fomented with the help of
ige leaders and people's participation. A micro approach In rural development is designed on the model developed by Dr Akhtar Hamed Khan in Comilla several decades ago. My experience in conducting an impact evaluation of a microcredit programme of RD-9 project for income-generating activities. among the rural poor in Rangpur, has also convinced me that a thana-based plan will be a better alternative to the present Central Planning Process for accelerating rural development. The sooner the process is adopted, the faster will be the rate of progress in implementing rural development programmes/projects in Bangladesh.
I am, however, aware that the Job of drawing up plan for 460 thanas in Bangladesh, will be a Herculean task. Drawing up of a plan for 64 districts, on the other hand, will perhaps be much easier but district level planning even if attempted, will still require thana-based data/information. In my view, even if it is a gigantic task, it is
considered essentia) that a thana plan needs to be Initiated for realistic formulation and implementation of integrated rural development programme in Bangladesn.
While I am advocating a decentralised planning approach. I do not however, discount the role of a perspective plan, which provides the framework, or the national perspective in which a micro plan has to fit in. They are not. however, mutually exclusive. I would support the view point to initiate a decentralised planning approach, especially for integrated rural development making thana as the focal point. How to do it is a matter to be worked out by the Planning Commission. Indonesian model may perhaps be studied and if need be. copied with required changes wherever needed and make the plan more realistic and implementable.
The author, a retired senior Erofessional staff of the Islamic 'evelopment Bank, worked as a Division Chief in Bangladesh Planning Commission. Currently. he is the Executive Director of Development Associates and Consultants (DACI Ltd.