Union Council (Parishad) is the lowest tier of local government in rural areas of Bangladesh the other two being Sub-district (Upazila) council and District (Zila) Council.
The union council established through Bengal Village Chowkidari Act 1870 during British Period, better serves the interests of people compared with others tiers. Each union council consists of one chairperson, nine members and three female members while the post of chairperson and nine members are open for everyone, the three membership is reserved for women. It is said that the activities of union council span from life to death of a man; from issuing birth certificate to death certificate. Disaster management and adopting measures to reduce the harmful impact of climate change on the community, is one of the major responsibilities of the union council, if not the most important.
Bangladesh is one of the most vulnerable countries to climate change. In an estimate by the World Bank (2022), it has been revealed, among others, that the average tropical cyclones cost Bangladesh about 1 billion USD annually, one-third of agricultural GDP may be lost due to climate variability and extreme events. Hence, addressing the issues of climate change has become a major concern in the governance of the country. The union council, because of its location and proximity to the community, is the first hand responder to any emergency be it natural or climate change induced disaster. Apart from emergencies, union councils are responsible to take initiatives to address impact of climate change on local communities. The issue is so pressing to be left with the national government only. Large scale projects and portfolios from the national government are inevitable but small scale projects taken by local government based on local needs and knowledge are sometimes more beneficial.
According to Pew Centre on Global Climate Change, local government bodies can contribute positively to climate change issues in the following ways: 1. Green power purchase 2. Bringing energy efficiency 3. Planting trees and vegetation 4. Transportation 5. Community outreach and education. Local realities, long term observation of particular climate change related issue by elderly persons of communities, local wisdom make local government institutions attractive places to meet local challenges especially those posed by climate change. In essence, local government institutions where people can seat together, convey grievances, share ideas and plan local development in the manner like ancient Greek City States can be dubbed as “Laboratory of democracies”.
In addition to structural and geographical advantage of union council regarding its relation with the rural people, there are favorable legislative framework in Bangladesh which can be harnessed to address the problems attributed to climate change. The Union Parishad (Council) Act, 2009 and instructions from ministry of local government have incorporated provisions for active participation of local people in planning and development of locality, which includes environment and climate action. Section 5 of the Act of 2009 has provisions for ward meetings which are participated by all the voters of the ward, the smallest unit of a union. Every union council is composed of nine wards. The ward meeting has to be convened twice a year in every ward meaning that at least eighteen ward meetings have to be arranged in each union council, which provides an unique opportunity for ensuring people’s participation in local planning- be it infrastructural, environmental or otherwise. Chaired by the concerned elected member of the ward, the ward meeting, as per law, is to review all the development works, beneficiary selection for government programs and prioritize development needs of the ward. To substantiate this provision, section 57 of the Act enumerates that the annual budget of the union council has to be based on the priorities set by the ward meetings, a supposedly huge boost for local participation.
To make local planning more effective and organized, section 45 of the Act has incorporated provisions for thirteen standing committees such as committee for environmental development, conservation and tree plantation, law and order committee, finance and audit committee. Each committee comprises five to seven members including one chair. One specialist can be co-opted in the committee while other members are selected form the local people who are able to contribute to the respective field. An elected member heads each committee except the law and order committee which is headed by the elected chairperson of the union council. These committees comprising specialist and community members are to assist the union council in doing its functions. Reality suggests that mostly these committees are found on paper as maximum decisions are taken in the meetings of union council or more precisely the chairperson dominates the decision making process in the council.
There are numerous instructions, circulars and guidelines issues by the government regarding union councils. One of them is the “Instruction about the use of Union Council Development Fund, 2021”. This instruction, among others, provides for sectoral distribution of development fund to include projects in the areas of environment, agriculture, irrigation, education, health, and infrastructure to avoid overwhelming bias for infrastructural and communication project which attract voters. The instruction contains an evaluation form for measuring the performance of union council yearly in which three indicators have been set that are directly related to disaster and climate action, namely: tree plantation, cleanliness campaign and disaster risk reduction programs. Moreover, there is an indicator to reward for taking multi-sectoral projects which includes environment and disaster. The indicator set for the sanitation sector is also related to environment and cleanliness. In total, out of 100 marks in the evaluation form at least 10 marks are directly related to climate, environment and disaster; the proper implementation and evaluation of which can really make a difference in environmental activities at the grassroots level.
Using these mandatory provisions, members of local communities in the remotest corners of a disaster prone country like Bangladesh can sway the impact of climate change without relying much on national government for every initiative. In fact, the national government is not in a position to know every details of a locality, e.g. causes of rising salinity, shortage of drinking water, less production of crops, fishes, livestock etc. in a particular area that may happen due to climate change. The gradual change in a locality causing those problems can be felt by local communities. So, is the case with solutions to those problems except some technical ones like construction of a huge dam, which places local people and institutions in a befitting position.
One could wonder about the practical application of those provisions in rural areas and union councils. As a deputy director (local government) for the last three years, I have observed that the reality is far from the law and the instructions. The ward meetings are held once in a year instead of two. Some proposals from the ward meeting may be considered in taking projects with most of them related to construction of roads. These proposals or demands are sporadic and not guided by environmental concern. In fact, one should not assume that the villagers will know about the budgetary allocation for environment, sanitation or water purpose. Nor it should be presumed that they will be adept in budgetary process. The non-availability of the budget and allocation in the online makes the situation worse. The committee for Environmental development, conservation and Tree plantation is not active like other committees except Law and order committee. There is no union council which can affirm that all those standing committees convene regular meeting.
Harnessing these structural, locational and legal framework can significantly contribute in addressing environmental and climate issues in rural areas. However, to reap the fruits of those opportunities, the following measures are suggested:
The number of committees should be reduced from thirteen to five or six as there are overlaps in their activities. For example, there are three separate committees for finance, taxation and audit, two separate committees for disaster management and environmental action; which can be integrated. Too many committees also put financial pressure on councils having lower level of income base. It also puts pressure on the administrative staff to arrange and prepare resolution of those meetings. Lack of technical persons to be co-opted in all the committees worsen the situation. To get rid of the problems, Brazilian city Porto Alegre, reputed for participatory budgeting can be a reference. In Porto Alegre municipality of Brazil, there were nineteen ‘Neighbourhood Association’ composed of local communities. To assist those associations, six thematic committees comprising experts were formed who would suggest about projects and initiatives which is beneficial for the community. It is the neighbourhood association who would take ultimate decisions on the basis of their own needs and suggestions of thematic committees. Drawing on the instance, In case of Bangladesh, one committee for agriculture, fisheries and livestock, one for rural infrastructure and communication, one for education, health and socio-economic development, one for women, elderly and children, one for disaster and environmental management and another one for finance and planning can be formed. These committees should include specialists from local educational institutions, retired persons having experience in the relevant sector etc. They would put input to the ward Sava (meeting) about what is beneficial for the locality. The Ward Sava will consider those and decide what projects should be taken. It would accommodate both the technical knowhow and people’ participation in the decision making in complex area like environment and climate action. Budgetary allocation must be made for the proper functioning of those committees, which is absent now.
It should be ensured that minimum budgetary allocation is made for every sector including environmental sector. Now, almost sixty to seventy percent of development budget is spent for infrastructural purpose which is essential but not the only thing needed for development.
In the budget, there should be specific mention about which project(s) has been taken on the basis of what ward sava to ensure people’s participation. This can be done by adding annexure to the budget from. As per the instruction for the use of Development Fund 2021, the projects must not be detrimental to local environment. The committee and local community has to ensure environmental lensing of projects. Awareness building campaign by the government and non-government organizations can be helpful in this regard. There should be caution that such initiatives do not act as fetter on local planning. Rather it should enable them to make proposals which would enhance the quality of environment.
Long term planning like five year development plan backed by technical assistance and local knowledge, wisdom and approved by ward sava should be made mandatory. Sporadic decision making at the eleventh hour is not conducive to both development and environment. On the basis of five year planning, yearly planning can be made easily as the people will have the bigger picture about budget and forthcoming initiatives.
The yearly evaluation of 100 marks including ten percent marks on environmental development, disaster management has become a routine work which is done at the end of year. There should be a format in the online where real time data would be uploaded which would enable the authority to monitor whether multi-sectoral projects inclusive of environment, agriculture, sanitation, etc. have been taken and make recommendations, if necessary.
Apart for those measures, union council can prompt environmental development in rural areas through steps which includes tree plantation, excavation of canals and developing water bodies. The well off union councils in terms of revenue collection can use taxation to ward off adversaries of climate change by way of exemption of tax for climate friendly measures like the Maryland state of the USA, which provided tax credit for buying for electric vehicles.
From the discussion, it follows that union councils in Bangladesh have immense potential to translate people’s expectations into reality. Abovementioned are some of the ways the institution can play a pivotal role in championing environmental development in rural areas of Bangladesh. Let us make that happen.
Writer: Mohammad Yusuf Ali, Deputy Secretary, Government of Bangladesh
SMS
