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III. INTEGRATION OF ENVIRONMENTAL CONCERNS INTO DECISION- MAKING FOR FLOOD LOSS REDUCTION[ III-A | III-B | III-C | III-D | III-E | III-F | III-G ] E. Guidelines for community participation3. Participation in large-scale project planningPeople's participation in large-scale projects and programmes begins at the very inception stage with reconnaissance of an area for needs assessment, and continues throughout the life of any given project. BWDB is responsible for implementation of large-scale projects. The consultation modality is shown in Figure 19, which is based on guidelines for people's participation prepared by the Ministry of Water Resources (1994). The guidelines, initiated under FAP studies, were supplemented with inputs from two FCDI projects (System Rehabilitation and Ganges-Kobadak projects) where the concept was under trial. According to the guidelines, whenever an FCDI project is conceived by BWDB, the idea is brought to the notice of the prospective local authorities, such as the Deputy Commissioner (DC) (in case of involvement of more than one Thana) who is the chief of district administration, Thana Nirbahi Officer (TNO) who is the chief of the Thana administration, and Chairman of Union Parishad(s). At present, there are no elected councils at District and Thana levels. A bill on elected local government is expected to be placed before the Parliament in the near future. The Union Parishad(s) then holds a special meeting to discuss the project details and forwards a copy of the proceedings of the meeting to BWDB and the concerned TNO(s). On receipt of the proceedings, the TNO(s) discusses all issues related to the project in light of the comments of the Union Parishad(s) with the concerned officers of the Thana(s) and forwards the comments of the Thana Council/Thana Development Coordination Committee to BWDB. If it is revealed that further investigation would be advisable, then a project council is composed of potential representatives of the project beneficiaries, project-affected people, development agencies, the local administration and NGOs. The project council is entrusted with carrying forward other planning activities. Once the project planning is over, the project is then processed for approval.
Figure 19. Flow-chart to illustrate people's participation in planning and management of large-scale projects Broadly, seven stages of people's participation are envisaged of which monitoring and evaluation is a continuous process from the very inception. The tasks to be carried out and the nature of people's involvement at each stage as suggested by the guidelines are detailed below (Ministry of Water Resources, 1994): (a) Project Identification Stage: This involves the primary consultation process for broad-based groups covering the potential project beneficiaries, project-affected persons (PAPs), elites, institutional and social groups and different development agencies in the area. (b) Pre-feasibility Study Stage: Local people, their elected representatives and local officials are to be involved in needs assessment. This includes a technical, environmental and social appraisal of an area's problems, analysis of alternative project options and possible selection of a project or programme. The results may be used to adjust any existing project concept in accordance with the findings. (c) Feasibility Study Stage: As a project takes shape, local people are to be involved in a more detailed technical, environmental, social and economic appraisal. Also at this stage, the representatives of diverse local socio-economic groups and the local council can interact, discuss and concur in the project concept, including mitigation and land compensation measures. This process will help develop methods of people's involvement in project design, construction, management, operation and maintenance, monitoring and evaluation. (d) Detailed Design Stage: Once a project is deemed feasible, there must be ongoing interaction between local people and technical planners in developing criteria and specifications for many vital project facilities or programme considerations, e.g. the location, sizes and distribution of project works, land acquisition, relocation plans and mitigation measures. (e) Implementation/Construction Stage: Project Council (PC) will monitor implementation in order to ensure that design standards and implementation are carried out as agreed. Both formal and informal communications with local people including PAPs should be as open as possible. The plan itself, and any modifications of it, should be explained to them and their views taken into account. It may also seek expert advice if problems are severe or threaten the project proposal. The process for the formation of a Water Users Group (WUG) and other groups is to be initiated simultaneously at this stage. (f) Operation and Maintenance Stage: In case of irrigation projects, the operation and maintenance stage should directly involve the WUG. However, the degree of direct local control and management will vary according to the nature of the infrastructure works to be built and operated. Operational manuals must be drawn up with this in mind, including the legal responsibilities for ownership, labour and financial resource provision, day to day operation, routine and emergency maintenance and repair work. The criteria for deciding operational procedures must be drawn up with the consensus of WUG. The Water Users Group should be formally established at this stage and should have formal representation in PC. (g) Monitoring and Evaluation Stage: In order to learn from the experience
of a project and to influence future development, the PC should constantly
monitor performance and initiate remedial actions as necessary. This will
require intensive liaison with WUG/local people affected directly in the
area and outside. It will need to address both the positive and negative
ways in which people are affected at all stages of project development.
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