Rural Development
LGED
Bangladesh

The Problem

Bangladesh is formed of alluvial deposits of the river Ganges and is criss-crossed by hundreds and thousands of its tributaries and distributaries. The country is overwhelmingly rural, very densely populated and extremely poor. During mid nineteen eighties about 88 percent of the country’s people used to live in rural areas, majority of whom were below the poverty line, meaning that they used to take less than 2150 k cal a day. Per capita GDP was only 130 Us dollars. About one third of the rural labour forces remained either unemployed or were underemployed during certain part of the year. Low production and productivity, high dependence on agriculture, low purchasing power, population growth as high as 2.6% and low literacy rate of about 26%, lack of skilled manpower were the major challenge for the rural economy.

At that time major means of transportation was navigation and limited underdeveloped rail roads. Road transportation network was extremely primitive with single lane national road transportation network and narrow earthen feeder roads with hundreds and thousands of river and canal gaps. It used to take a day and a night for a person to reach the capital from the northern thanas and villages. This poor transportation network hindered marketing of local agriculture produce, dissemination of knowledge and technology and ensuring better price of the produced goods. Making agriculture inputs available to local farmers was also difficult. Poor road transportation system also negatively affected the provision of education and health services. Even towards the end 1980s, most villages of Bangladesh were not connected by all weather infrastructure

Solution and Key Benefits

 What is the initiative about? (the solution)
The solution to the above problem is rural development in Bangladesh in general and rural infrastructure development in particular. The rural development model known as the “Comilla Model” was evolved in the early 1960s having 4 elements and the same was proposed for a number of years. During 1980s, the strategy for rural development (RD) projects was formulated and it had 3 components. The approach for rural development and rural infrastructure development as included in the strategy has been followed and the same is being followed now.
The rural infrastructure development program by LGED has created multiple benefits to the rural community in Bangladesh. Some of the benefits are direct and some are indirect. The direct benefits are: reduction of transport cost as well as agricultural production cost, increased profits through elimination of intermediaries on farm and non-farm production and eventually enhanced household income. The marketing facilities of agricultural farm and non-farm products became efficient which has direct benefit to the rural community. Other important direct benefits are provision accessibility to education, health services and different socio-economic service outlets. Indirect benefits are ever increasing self employment opportunity and social awareness about citizen’s responsibility and human rights that finally contribute towards social development, good governance, justice and equality.

The beneficiaries of this initiatives are mainly rural people particularly who are involved in marginal business and farming activities. The poor families as a whole are beneficiaries with the empowerment of child education, nutrition, health facilities and incorporating with other social awareness program like women’s emancipation. Thus a huge segment of neglected rural community is now within the mainstream of social development program.
More specifically, the socio-economic monitoring and evaluation (SEME) finding of the upazila road and the growth center indicate the following:
• Improvement of upazial road increased motorized transport, non, motorized transport, reduced passenger transport charge, freight transport charge and increased use of educational facilities, health facilities, bank customers, road sides shops etc.
• Improvement of growth centers increased average daily attendance, daily transaction value, permanent shops, temporary sellers, real turn over, real lease value, market attendance, toll revenue and decrease of spoilage of market produce.

Actors and Stakeholders

 Who proposed the solution, who implemented it and who were the stakeholders?
The planners and economists correctly visualized that the development of the society will depend on agriculture and on development of the rural areas. The original idea was conceptualized by Mr. Akter Hamid Khan, the founder of Bangladesh Academy for Rural Development (www.bard.gov.bd) and is popularly known as “Comilla Model”. The concept emphasizes on formation of cooperatives and integration of support services provided by government departments and agencies. The rural development model had four major elements.
• Two-tier Cooperative- Krishak Samabaya Samity (KSS) and Thana (currently Upazila) Central Cooperative Association (TCCA)
• Rural works Programme (RWP)
• Thana Irrigation Programme (TIP)
• Thana Training and Development Centres (TTDC)

The model was tested at Comilla Sadar Thana of Comilla district during the early sixties and subsequently replicated through out the country. Unfortunately the model, though sound did not give a massive boost to the rural economy due to absence of an efficient transportation and marketing network and the TDCCs remained as islands of excellence scattered through out the country.

During the mid 1980s, the Planning Commission of Bangladesh realized the rural economy is not flourishing due to absence of an efficient rural transportation and marketing network. It addressed the issue under the guidance of Professor Dr. S H K Eusufzai Member; Planning Commission developed a strategy for rural development project. The strategy emphasized, among others, that along with development of rural infrastructure and irrigated agriculture, production and employment programs both for farm and non-farm sectors should form an integral part of the rural development programs. Rural Development project would thus have a combination of the following three major components.

• Development of physical infrastructure including roads, storage and markets
• Irrigation agriculture, minor drainage and flood control works and
• Production and Employment Programs for the poor

A review of this rural development strategy was jointly carried out by the World Banks and the Government of Bangladesh (GOB) in 1996 and found it valid.


In addition to LGED officials at various levels, the other stakeholders of the initiatives include the local government institutions (LGIs) user/community groups and other research/ training institutions, such as, Bangladesh Academy for Rural Development (BARD), Comilla, Rural Development Academy (RDA), Bogra and Bangladesh Institute of Development Studies (BIDS), Dhaka.

(a) Strategies

 Describe how and when the initiative was implemented by answering these questions
 a.      What were the strategies used to implement the initiative? In no more than 500 words, provide a summary of the main objectives and strategies of the initiative, how they were established and by whom.
The development objective of the initiative was poverty reduction and improved quality of life of the rural people.

The broad strategies of the initiatives are as follow:
• Develop rural road network to provide better accessibility to the rural community to important economic, social and administrative outlets.
• Develop growth centers to provide facilities for better trading opportunity in all weather condition which is the economic nucleus at rural area.
• Generate employment opportunity, increase household income and reduce poverty level.
• Produce congenial atmosphere for women’s emancipation by engaging rural poor women in Road Maintenance and through women’s effectual participation in Rural Trade facilitated by women’s market section.
• Supply adequate infrastructure to meet the gradually expanding need at rural area of economic and social development.

By now, most villages are now linked to a network of all-weather rural roads called Upazila Roads. This has had a major impact on poverty allowing greater mobility to the poor, easier access of rural goods to urban markets and stronger capacity of the government to deal with emergencies and natural disasters. This highly successful decentralized rural infrastructure strategy has been spearheaded by the Local Government Engineering Department (LGED), a public sector agency marked by the critical institutional attributes of decentralization, professionalism. Monitoring system, informal decision-making, leadership, team work and sense of mission. As a central agency, LGED has been distinguished by its emphasis on human resource development and use of ITC

Infrastructure development activities of LGED are planned and implemented through community participation process involving beneficiaries and project-affected persons, local government institutions and NGOs. The community participation includes all the stages of scheme cycle, such as, identification, selection, planning, design, implementation/ construction, operation & maintenance, cost sharing and monitoring/ evaluation. As a part of participatory development, management and operation, beneficiary groups and user committees, such as, Labour Contracting Society (LCS) formed by groups of landless men and women labourers, Road Maintenance Association (RMA), Market Management Committee (MMC), Ghat Management Committee (GMC), Road User’s Committee (RUC), Water Management Cooperative Association (WMCA) have been formed under various projects of LGED.

But the main driving force of the initiative was Mr. Siddique and the committed engineers of the Local Government Engineering Department (LGED), without their relentless effort, not much would have been achieved.

(b) Implementation

 b.      What were the key development and implementation steps and the chronology? No more than 500 words
The key development and implementation steps were as follows:
Selection of growth Centers: There are around 20,000 rural markets spread out all over the country. Out of those, 2100 markets have been identified through extensive surveys as growth centers. These markets have potential for economic development of the particular catchments area. The selection criteria included eighty parameters which included, among others, accessibility to the market, revenue earned during the last three years, average amount of commodity sold in the market, distance to the nearby market etc. The important characters of the growth centers are that they act as the nuclei for exchange of knowledge and information, selling and storing of commodity, banking facility, provision of electricity for small entrepreneurs etc. and act as the most important commercial place for a particular catchments area. Thus socioeconomic clusters in the rural area have been formed surrounding these growth centers.

Selection of Growth Center Connecting Road (Upazila Road): The road transportation system of Bangladesh has been classified as national highway, regional highway, district road, upazila road, union road and village road. The first three categories belong to the Roads and Highway Department (RHD) and the next three categories are under the LGED and the Local Government Institutions (LGIs). The aim of developing Upazila road was to provide shortest single road connection from the Growth Center to the national/regional road system and provide access to regional and national level transport system to flourish.

Development of Planning Maps: LGED took systematic approach for development of the embankments of the feeder and rural roads through FFW interventions with support from the UN World Food Program (WFP). In this regard, it has developed planning maps for all the 482 Upazilas (Thanas) of the country with assistance from the UNDP/ILO back in 1991. The maps were first developed based on 1926 base maps and were upgraded using aerial photos and satellite images. Developed maps were then sent to Upazila level LGED officials who under supervision of the LGED district level officials carried out the ground truthing works. The corrected maps were then printed and extensively used for selection and improvement of Growth Centre and Union connecting roads. A part of the food aide was monetized to construct small bridges and culverts on the rural roads.

Development of Digital Maps and Rural Infrastructure Database: LGED has further carried on the planning map presentation initiative and digitized all 482 Upazila planning maps and these are now available for use with the GIS software. LGED has subsequently added layers of settlement, road ways, water ways, power distribution system, school facilities, and health facilities etc. to the database. It has also arranged for geo-referencing of its planning maps. The maps would be available at www.bangladesh-gis.net in short period of time.

Development of Rural Infrastructure: After formulation of the strategy for rural development in 1984 by GOB, most of the donors showed interest to support the government’s rural development initiative. Besides the government, the Asian Development Bank, the World Bank, kfw and the DANIDA provided extensive support to upgrade the earthen embankments development under FFW to all weather roads. They also supported the development of Growth Centres, river jetties, landing stations for comprehensive transportation and marketing network development. The donors also supported the idea of implementing most of the works through labour intensive methods.

(c) Overcoming Obstacles

 c.      What were the main obstacles encountered? How were they overcome? No more than 500 words
Financial resource constraints were the main obstacles to implement the program. First policy makers and donors were to be convinced through the implementation of small projects which in turn proved very fruitful to rural population, thereby creating a preparedness to take up comparatively larger projects. The programs are now still being implemented by both governments own fund and also by fund of different development partners. LGED is implementing development program on priority basis with the availability of funds.
Development of appropriate technology, technical know-how, development of procedures, specifications etc. were the other problems at the beginning of the initiatives. The Bangladesh University of Engineering and Technology, the engineers of Mott McDonald and partners of UK and the Hifab International AB of Sweden and other local consultants helped LGED to develop manuals, guidelines, specifications which improved the organizational capacity immensely.
Some appropriate technology e.g. development of low cost roads by Aggregate Sand Soil, improving soil stabilization using chemicals, use of cut back asphalt, dense carpeting etc were tried at the beginning of the initiative . Out of those the Mobile Maintenance Team and the Labour Contracting Society (LCS ) were found extremely effective. The Rubber Dam technology was unknown in Bangladesh prior to the developed one by LGED at Cox’s Bazar. All these initiatives needed LGED’s courage to accept new technology.
Prioritization of large number of infrastructure development schemes in the rural areas was a critical issue. The issue was addressed by adopting the procedure for calculating Economic Internal Rate of Return (EIRR) in case of larger road/ market development schemes and following a simple scoring system for smaller schemes.
Involvement of LGI representatives and community groups/ people in rural infrastructure, construction and maintenance activities has also been a Challenging task. The issue was addressed through orientation and training programmes for them and also by providing support inputs from NGO facilitators.

(d) Use of Resources

 d.      What resources were used for the initiative and what were its key benefits? In no more than 500 words, specify what were the financial, technical and human resources’ costs associated with this initiative. Describe how resources were mobilized
Both cash & food resources were used for the initiative. Till today, LGED has developed 61,795 km of all weather feeder and village roads and 887,270 m of bridges and culverts, 204 jetties and landing station and 2446 growth centers and rural markets. This has involved a cost of about 2.8 billion dollars. Out of these resources, all food resources came as grants and part of cash as grants and part as soft loan. GOB resources are allocated as grants to the projects. In some cases, beneficiary contribution in cash and kind was included.

Technical resource mainly comprise 1200 LGED graduate engineers, 2000 diploma engineers, 500 qualified surveyors and 2000 other technical staffs. The organization is heavily decentralized with 90% of its staff are at the field level. LGED has strong training unit with ten regional centers which provide on the job training to the LGED engineers and staffs, the contractors and the local government representatives as needed. LGED laboratories and a large pool of equipments procured through the projects assist to maintain quality of works. A few national and international consultants, who worked for the projects helped the organization to catch up latest technology. LGED is the Bangladeshi organization which has the highest numbers of engineers who have post graduates degree from overseas. With a viewing to providing extended staffing profile and diversified skill mix, many scheme proposals were developed for development of rural infrastructure in consultation with the local communities. The proposals must include community views in the design and planning of the projects intervention. These proposals were then passed through the Local Government Division (LGD) and Planning Commission and were approved in the Executive Committee of the National Economic Council (ECNEC). Donors were approached for financing of the project. Generally grants finance is welcome. But incase grant finance is not available, government accepts soft loans.

Professional posts other than engineering background have been created and those are being filled up. This expanded the staffing profile and skill mix within LGED.

Sustainability and Transferability

  Is the initiative sustainable and transferable?
The sustainability aspect of LGED activities is highly positive. The government is allocating maintenance fund to keep the infrastructure in good conditions. The utilization of maintenance fund has been proved to be very effective to protect against further deterioration of the infrastructure that would cause huge financial implications to rehabilitate if it would have been completely damaged. The local destitute women are also engaged as length person system for lower level routine maintenance of roads. Employment support to hard core poor woman is also an objective of this length person routine maintenance. As per the rural road master plan prepared by LGED in 2005, greater emphasis has been given to maintenance followed by rehabilitation and new construction of rural infrastructure.
In terms of institutional aspects, LGED is a unique organization to deliver the services effectively since its establishment. The economic, social, gender equity, environmental and other issues are usually taken into account seriously during project formulation.
LGED has established working partnership with other actors both in the public and the private sectors. From this point of view, LGED is different than other agencies of the central government. Within the organizational structure, LGED has adopted decentralization through deconcentration and it is a highly decentralized at the field level. By working closely with the LGIs, LGED is an ardent believer and practitioner of decentralization through devolution and in the process of changing institutional environment, LGED would continue to provide facilitating institutional and technical support to the LGIs.
Having observed and realized the institutional success of LGED under the dynamic leadership of Mr. Siddique, the government of Nepal established the Department of Local Development a few years ago.

Lessons Learned

 What are the impact of your initiative and the lessons learned?
The research report on developmental impact of Rural Infrastructure in Bangladesh prepared by the International Food Policy Research Institute (IFPRI) in collaboration with the Bangladesh Institute of Development Studies (BIDS) in October, 1990 is the most important document on the issue. The study has empirically addressed issues in the neglected area of research on how infrastructure affects growth of income and alleviation of poverty in a developing economy. Contrary to the conventional view that development of rural infrastructure is likely to aggravate poverty, it has found that the development of rural infrastructure has far-reaching implications for the alleviation of poverty by indirectly generating income.

The study has focused on household economies in Bangladesh and concentrates on the benefits of infrastructure, particularly for the poorest segments of the population. It has identified, described, and measured the effects of development of rural infrastructure on agricultural production, employment, income, consumption, savings and investment, and market and social development.

Infrastructure affects agricultural production indirectly through prices, diffusion of technology, and the use of inputs. The study finds that the fertilizer prices are 14 percent lower and labor costs 12 percent higher in the developed Villages than in the underdeveloped. Moreover, 105 percent more farmland is irrigated, 71 percent more is sown with high-yielding varieties (HYVs), and use of fertilizer is 92 percent higher in developed villages. The combined effects of wider and more efficient use of new technology as a result of infrastructure development is estimated to have increased agricultural production in developed areas as much as 32 percent.
Infrastructure development indirectly affects the composition of employment by making nonagricultural jobs more accessible to those with better skills and some assets. This leads to a reduction in the use of family labor and an increase in the use of wage labor in agriculture, providing employment for those with marginal or no land.
The most important finding of the study is the profound effect that infrastructure has on incomes of the poor. Overall, estimations based on the most and least developed villages indicate that infrastructural endowment causes household income to rise by 33 percent: income from agriculture increases about 24 percent, that from livestock and fisheries about 78 percent, that from wages almost doubles, but income from business and industries only rises by 17 percent. Most striking, however, is the distribution of these increases: the functionally landless and small farmers gain a larger share of the increases from crops, wages, and livestock and fisheries, while the large landowners capture most of the smaller increase in business and industries. Households in developed areas spend a larger share of this incremental income on non cereal foods, nonfoods, and services, which generates additional rounds of economic growth. According to this study, infrastructure development increases the speed of diffusion of agricultural technology, reduce the cost of marketing, and improves the operation of both input and product markets, through improved linkages with other sectors.

Contact Information

Institution Name:   LGED
Institution Type:   Government Agency  
Contact Person:   Md. Wahidur Rahman
Title:   CE  
Telephone/ Fax:   +880-2-8114804
Institution's / Project's Website:   +880-2-8116390
E-mail:   ce-lged@bangla.net  
Address:   LGED Bhaban
Postal Code:   1207
City:   Dhaka
State/Province:   Dhaka
Country:   Bangladesh

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