Overcoming Political Resistance to Decentralization: The Case of Bangladesh

1. Overcoming Political Resistance to Decentralization: The Case of Bangladesh Shonali Sardesai World Bank Social Development ssardesai@worldbank.org Nita Rudra World Bank (Soc Dev) University of Pittsburgh rudra@pitt.edu

2. PA of Decentralization (Bangladesh): Objectives • To increase understanding of the political dynamics of local governance reforms by analyzing the perspectives of both supporters and opponents • To find potential sources of compromise by identifying areas of agreement and differences • To contribute to the design and implementation of decentralization programs, cognizant of the politics of reform

3. Introduction: Why Conduct Political Analysis (PA)? • ‘Good’ reforms, such as decentralization and local governance, often derailed by political resistance of key stakeholders. • PA aims to understand divergent views to promote effective design and sustainability of reforms through: • Identification of the political roadblocks to reform • Identification of the political support for reform • Increased information to build effective and responsive reforms: incorporation of local knowledge, local demands and local needs • Setting up a transparent feedback mechanism (before, during, and after reform): allows for continuous identification and incorporation of stakeholder concerns with an aim to ensure that reforms take them into account.

4. Value added of Political Analysis Provides a deeper, more contextual understanding of the politics of reform To find areas of consensus To identify unexpected constraints & opportunities

5. Framework for Analysis Collaboration between WB and local partners Framework for Analysis • Identify key stakeholders: those likely to affect and be affected by reform Guidance from LGSP team on key stakeholders for analysis • Desk research by Bank team To understand history of local governance reform in Bangladesh, learn experiences from other countries • Local partner studies PA questionnaire adapted to local situation Discussions with local experts to determine how best to capture key stakeholders: Desk research Fieldwork (interviews, focus groups)

6. Introduction: Methodology Methodology: Collaboration between WB and local partners Framework for Analysis • Fieldwork by Bank team To investigate hypotheses To validate findings • Study Findings Independent Stakeholder Reports Synthesis Report

7. Research Questions • Questions for Analysis: • Who are the primary stakeholders and what are their views? • In what areas/issues do they disagree? • In what areas/issues do they agree? • Policy Considerations

8. Bangladesh case: Brief Background • General Ershad instituted Upazila system (1983-1991) • Beset with problems: • Lack of accountability • Lack of transparency • Limited financial resource base • Corruption • Resistance by MPs and bureaucrats • BUT : set important precedence

9. Key stakeholders • National-level politicians (mainly from the two major parties Awami League (AL) and Bangladesh National Party (BNP)) • The military • The bureaucracy – local and central • Local level politicians • Civil society

10. Areas of agreement • All stakeholders voiced general support in theory for decentralization reforms • Decentralization is seen as interlinked with democracy • Important obstacles to reform : • Not enough autonomy at local levels • Resistance by MPs • Design of institutions • Support for CTG and their ability to promote reforms for ‘nonpolitical’ reasons

11. Areas of difference • Variations in degree of real commitment to reform • Variation in extent of perceived popular support • Variation in beliefs that political constraints of MPs can be overcome • Variation in reform priorities

12. Policy- Relevant Findings • The study found unexpected advocates of reform amongst Upazila Nirbahi Officers (UNO) and UP chairmen, contrary to conventional wisdom • Measures that contribute to effectiveness of current reforms: • establish clear association between decentralization reforms and strengthening of democracy; • emphasize link between successful reforms and increased international legitimacy; • establish a clear division of labor; • support for independent audit agencies. • Timing of reforms is key • Suggestions on how to overcome Members of Parliament (MP) and (some) bureaucrat resistance to reform

13. Value added of Political Analysis in Bangladesh Provides a deeper, more contextual understanding of the politics of decentralization reform Important areas of consensus do exist Identify unexpected constraints (e.g., CTG’s key role in implementing reforms) Identify unexpected opportunities (e.g., stakeholders see high popular support of reform)