Background

The Union Parishad Governance Project (UPGP) and Upazila Governance Project (UZGP) are a part of the overall programmatic framework for UNDP and UNCDF support to the Government of Bangladesh in the area of Local Governance reforms, supported by the European Union, and the Governments of Switzerland (SDC) and Denmark (DANIDA). The timeframe for UZGP is from August 2011 to July 2016, while UPGP is being implemented covering the period December 2011 to November 2016.

Both the projects have 3 outputs that focuses on (a)strengthened Upazila Parishads & Union Parishad as more functional, democratic, transparent and accountable institutions; (b) Strengthened Planning and Budgeting system at UZP & UP with MDGs orientation for pro-poor service delivery mechanism; and (c) Strengthened technical capacity of Local Government Division for effective policy review, monitoring, lesson learning and capacity development of LGIs for improved Local Governance. Both projects are conjoined through the third output which is jointly pursued.

Currently, Local Government System in Bangladesh has separate systems for rural and urban areas. The rural system has 3 tiers whereas urban system is double tiered. The inter and intra institutional interface among these tiers is non-existent, despite complementary mandate especially within the perspective of funds, functions and functionaries. Similarly each tier has its own law and operational framework which are not mutually inclusive. All the tiers of LGS, be urban or rural, have generally been documented to be operational with each level having its share of institutional hiatus and subjected to legal iterations.

Therefore, neither there is a community of practice for institutional cooperation, citizen engagement and LGIs tier specific participatory local planning & development for service delivery; nor a unified legal framework that strengthen the Local Government System. Collectively, it effects on functioning and accountability of the respective LG tier.

This establishes the need for undertaking a comprehensive national review and analysis of existing local government system to draw a comparative perspective and practices based analysis of the operational LGS having similar contextualization. The perspective and practice based analysis will focus at institutional (tier) and legal level.

Duties and Responsibilities

Objectives:

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

The recommendation will be in the realm of administrative, legislative and institutional perspective to restructure, reorganize and connect existing tier based LGS. It will identify responsible partner/agency and a proposed time frame for realization of the proposed options. Gender will be used as a cross-cutting and integral theme of the entire study. The comprehensive report will be submitted to the Local Government Division to initiate appropriate policy reform.

Scope of work and expected outputs / deliverables:

The objective of the study, in line with UZGP programme output, is to‘Strengthen the Local Government Institutions (LGI) and local governance in Bangladesh through effective policy review and comparative analysis ’. The Specific objectives of the study will be to:

• Assess and review existing Local Government System, both urban & rural, in Bangladesh within its tier based institutional structure and corresponding legislative framework for each tier
• Undertake comparative perspective and practices together with analysis of functionality and operationalization of LGS with at least two countries having similar context in the region; preferably India and the Philippines.
• Recommend policy options for institutional streamlining and strengthening legal framework of LGS in Bangladesh
  

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

• Rural and urban LGS – a divide or interface; 
• Multi-tier or Single tier LG system;
• Interface of local administration and local government in LGS with reference to funds, function and functionaries 
• Exclusive tier specific legal provisions for LGIs or unified legal framework for LGS.

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

• Analyze historic evolution of administrative, institutional and legal frameworks focusing LGS in Bangladesh;
• Evaluate existing LGS tiers: its level of decentralization & fiscal flow patterns, complementarity and gaps. (funds, functions & functionaries);
• Evaluate existing legal framework/provisions for each of the LGI tiers: its level of mutual inclusiveness and gaps 
• Co-relate and validate secondary data analysis and findings through desk and literature review, filed visit, expert views and stakeholder consultation;
• Compare edifice of decentralization, its process and operationalization of system with at least 2 countries (preferably India and the Philippines) to recommend good practices.

The policy research will integrate all LGI perspectives and stakeholders through range of research tools. The secondary research tools will be employed to focus on reports of earlier governmental review commission & committees and any similar work of the civil society. The tier specific legal framework inclusive of all its iterations will also be reviewed. The critical research(s) of at least last 5 years, which are complementary to the objectives of the current research, will also be consulted along with the selective work of development partners to Bangladesh.

The primary research tools will be used to bring in operational ground realities and existing legislations in perspective both in terms of challenges and opportunities for the LGS tiers. The stakeholder perspective will also be integrated from Central to all LGIs level focusing existing institutional mandates and delivery mechanism in terms of funds, functions and functionaries to identify gaps and way forward towards the policy reform and re-organization

Research team & Responsibilities:

There will be 2 separate procurement processes for engaging (a) a team of national consultants and (b) international consultant. Since hiring of the international consultant and team of national consultants will be done separately, UNDP will follow due process in informing and introducing both the international consultant and the national consultants team right after the completion of the procurement process for instant linkage and coordination.

The International Consultant (IC) will lead the policy research and will be supported by a team of 3 national consultants. The IC and team of national consultants will be separately hired under linked TOR by UNDP.

The expected operational details and coordination requirements, as elaborated in this section, are to inform prospective IC about the proposed national team composition and working arrangements. IC that will take part in bidding process under the existing TOR will have no role and/or responsibility in connection to hiring of the national team. The details in this section & TOR are to ensure that the IC is well informed about the expected team dynamics.

International Consultant (to be hired under exiting TOR )

The International Consultant (IC) will lead the policy research. S/he will be engaged for a period of 42 working days spread over 3.5 months. The International Consultant, in close coordination with the national team, will have the lead responsibility of designing policy research, developing methodology, tools, work plan and reporting.

The IC will prepare research design, methodology, tools and propose timeframe. With national team’s input it will be translated into an inception report. In parallel to the inception report, IC in close coordination with national team will prepare a coordination matrix to implement the assignment highlighting respective roles, responsibilities and oversight mechanism. This matrix will have time bound milestones for both national team and international expert. The matrix will highlight both virtual and in country based input and level of engagement of international consultant along with mode of interaction. The agreed milestones will be linked to the financial delivery of both IC and national team members. The Project designated focal person will oversee coordination (see institutional arrangement section).

The selected international consultant will be required to pay at least 2 visits to Dhaka i.e. at the beginning to ensure smooth initiation of assignment (ref operationalization of approved inception report and at the end for finalization of analysis, first draft and presentation to key stakeholders. Among the engaged national team IC will designate one member to be the interlocutor with the international consultant and team coordinator.

Team of National Consultants (separate procurement process & linked TOR)

Under separate TOR services of 3 national experts are being hired, through competitive bidding, to support the IC in this assignment. The team will work in close coordination and under the lead of IC as explained above.

Supervision and Performance Evaluation.

The International Consultant will have following institutional arrangements: 

• Project Manager for project based institutional, operational and field support. The Project Managers of UPGP and UZGP will ensure availability of support and cooperation from the National Project Directors, Focal Persons and other relevant officials from the Local Government Division of Ministry of Local Government, Rural Development & Cooperatives, as required, along with the UNDP and the UNCDF. UZGP Project Manager will receive the progress update as will be stipulated in Coordination Matrix and will supervise the consultant;
• International & National Technical Advisors will maintain technical coordination and feedback, as required, with the designated Project Manager in the loop;
• National team coordinator as elaborated in research team section above will be the primary interlocutor among national team and will ensure coordination as elaborated in the coordination matrix. Besides, IC will keep close contact with all national team members to ensure timely completion of the assignment.

The estimated duration of the assignment is 42 working days spread over 4 months from the date of signing of the Contract. The principal working location to execute policy research (duty station) will be in Dhaka. However, identified projects locations outside Dhaka will be visited as per work methodology area as required by the assignment.

The selected International Consultant will be required to pay at least 2 visits to Dhaka i.e. at the beginning of the assignment to ensure research design & methodology, meet stakeholders and agree on coordination matrix with national team; and at the end of assignment for finalization of analysis, preparation of draft report and presentation to key stakeholders.

Time Frame & Deadlines:

Expected Outputs:

• Desk review literature and prepare initial research design in collaboration with national team (5 Days)
• Meeting with key government officials, UNDP, UZGP-UPGP project staff and members of national team to finalize research design, para-meter, processes, working relationships and its approval (6 Days);
• Inception Report & Coordination Matrix and Reporting deadline will be at the end of 2nd week of assignment. (4 Days);
• Virtual & in-situ support for roll out of research, field research, data collection, analysis, etc. and Interim Progress Report will be submitted at the end of 7th week of assignment. (20 Days);
• Draft report & presentation of key findings will be submitted at the end of 13th week and final report will be at the end of 15th week. (7 Days). 

The estimated duration of the study is expected to be 42 working days spread over 3.5 months tentatively covering the period 23 March 2014 to 06 July 2014.

The principal working location (duty station) will be in Dhaka. However, identified projects locations outside Dhaka will be visited as per work methodology area as required by the assignment.

Reports:

In line with institutional arrangement specified in Section (d) and (e) above. The IC will be expected to submit the following in close coordination with national team: 

• Detailed research methodology & design for the assignment – Inception Reports at the end of 2nd week 
• Coordination Matrix detailing roles & responsibilities, timelines, work plan with national team at the end of 2nd week ;
• Interim Progress report – end of 6th week;
• Draft report – end of 12th week; 
• Presentations to stakeholders – 13th week; 
• Final Report – end of 15th week.

All reports will be shared in 3 hard copies along with Word Format soft copies in CD and through email. In case of any discrepancy the hard copy will be considered as final. The language of communication and reporting will be English. All research tools will be prepared in English and translated into Bangla for field application, as required. The final report will have a certified Bangla translation. The cost of reports production and translation will be part of IC financial bid. IC will ensure quality of reporting, linguistic consistency and standards for English.

Inputs:

UNDP through its projects (UZGP & UPGP) will provide back-support as elaborated in section d above. It will provide key project documentation and in-house research. It will introduce the team to LGD counterparts and facilitate critical meetings.

Competencies

Corporate Competencies: 

• Displays cultural, gender, religion, race, nationality and age sensitivity and adaptability; 
• Treats all people fairly without favouritism.

Functional Competencies: 

• Knowledge Management and Learning; 
• In-depth knowledge of local governance/ local development issues in general and administrative and fiscal decentralization issues in particular;
  
• Ability to advocate and provide policy advice on decentralization, performance based grants and local governance; 
• Excellent communication skills (written and oral): Sensitivity to and responsiveness to all partners, respectful and constructive relations with host government counterparts, UNDP, UNCDF and project (UPGP and UZGP) staff.

Required Skills and Experience

Academic Qualifications:

• Master degree in social sciences preferably in Political Science, Development Studies and/ or Law.

Experience:

• Have 10 years of comprehensive working experience on research, reviews & evaluations focusing local governance, local government and institutional & legal development. Working experience in South Asia will be an asset; 
• Have demonstrated research, review, evaluation experience in social sector especially Service delivery reform, Health and Education for at least last 5 years. A list of work should be enclosed with the bid with title of report and client’s name; 
• Specific experience carrying out research/studies on local governance systems in developing countries is desired; 
• Having experience of working with government and local government representatives preferably in South Asia. Similar understanding of the local governance system & institutes in Bangladesh will be value addition. Details must be listed; 
• Computer literacy is must especially for MS Word applications. The CV must state the level of expertise in the usage of computer and office software packages (MS Words, MS Excel, Power Point etc.). 

Language Requirement:

• Fluency in English (Written and Oral).

Evaluation of the Candidate:

Individual consultants will be evaluated based on the following methodology:

Cumulative analysis

The candidates will be evaluated through Cumulative Analysis method. When using the weighted scoring method, the award of the contract will be made to the individual consultant whose offer has been evaluated and determined as: 

• Responsive/compliant/acceptable; and 
• Having received the highest score out of a pre-determined set of weighted technical and financial criteria specific to the solicitation.

Only candidates obtaining a minimum 70% mark (49 out of 70) in technical evaluation will be considered eligible for financial evaluation.

Technical Evaluation Criteria (Total 70 Marks):

• Overall international experience in conducting policy research/study in local governance/governance (30 Marks) ;
• Experience of working with National Governments & local governments in Bangladesh (10 Marks);
• Knowledge & skills of coordination with GO, LGIs, NGOs and experience in leading high profile consultation process (20 Marks) ;
• Experience in leading technical team (5 Marks) ;
• Computer literacy (5 Marks).

Financial Evaluation (Total 30 Marks):

All technically qualified proposals will be scored out of 30 based on the formula as provided below. The maximum points (30) will be assigned to the lowest financial proposal. All other proposals received points according to
the following formula:

p = y (μ/z)
Where:

p = points for the financial proposal being evaluated;
y = maximum number of points for the financial proposal;
μ = price of the lowest priced proposal;
z = price of the proposal being evaluated.

Documents To Be Included When Submitting The Proposal:

Technical Proposal:

A detailed CV entailing comprehensive work / assignment details will suffice for technical proposal.

Financial Proposal:

Financial Proposal will be prepared on lump sum basis and would include:

• The Financial Proposal shall consist of a comprehensive budget. The budget will be prepared in USD and would include all fees and associated costs, i.e. professional fee, travel cost, living allowances, printing costs, Secretarial support cost for printing & logistic coordination of national team, etc.; 
• In order to assist UNDP in the comparison of financial proposals, the financial proposals will include a breakdown of this amount disclosing the key assumption employed in costing the tasks.

The Budget of the successful bidder will be fixed, therefore, comprehensive and all inclusive budget should be prepared. The assignment will be time bound and no extension and/or financial addition is expected to be provided. The price should take into account all HR costs and professional fees, travel costs, living allowances, subsistence and ancillary expenses.

UNDP shall effect payments, by bank transfer to the successful bidder’s bank account, upon acceptance by UNDP (in consultation with LGD) of the deliverables as specified in the ToR. Payments will be made in tranches based on the following percentages and milestones.

• 1st Payment: 30% of total contract value will be paid after submission of inception report;
• 2nd Payment: 30% of total contract value will be paid after submission of interim progress report;
• 3rd Payment: 40% of total contract value will be paid after submission of final report.

Terms: 

• The selected IC shall prepare and submit the work plans for approval and submit reports as stipulated in the section “d & e” of this ToR;
• Payment for services of the contractor will be made upon satisfactory certification by the Local Governance (LG) Cluster of UNDP and will be remunerated by the UPGP and UZGP Project;
• All envisaged travel costs must be included in the financial proposal. This includes all travel to join duty station/repatriation travel. In general, UNDP should not accept travel costs exceeding those of an economy class ticket. Should the IC wish to travel on a higher class he/she should do so using their own resources;
• In the case of unforeseeable travel, payment of travel costs including tickets, lodging and terminal expenses should be agreed upon, between the respective business unit and Individual Consultant, prior to travel and will be reimbursed.