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Support to Restructuring the Department of Cooperatives Development, Government of the Bahamas


Reference: PX/BHS/0660
Location: The Bahamas
Duration: Over a 5 month period commencing on or about January 2013, ending June 2013
Closing Date: 31 Dec 2012

Project Background

The Department of Cooperative Development (DCD) is one of three departments in the Ministry of Agriculture and Marine Resources. There are separate departments with technical responsibility for agriculture and marine resources respectively. The DCD is governed by the Cooperatives Societies Act, 2005 and was responsible for regulation and supervision of all cooperatives in the country, including credit unions. Responsibility for oversight and regulation of all credit unions is being transferred from DCD to the Central Bank of the Bahamas. This restructuring has impacted the mandate and organizational structure of the DCD, which is now required to focus on non-financial cooperatives.
Development of agricultural, fishing and industrial cooperatives and the promotion of links between these groups and the tourism industry has long been a stated interest of the DCD. The number of producer cooperatives being registered in the Bahamas has fallen significantly since the 1970’s. There now remain only a handful of producer cooperatives, which are located in seven rural areas, referred to as the Family Islands. Most of these face major challenges with their financial sustainability and governance arrangements. Similar to other membership based organisations, including farmer associations and producer cooperatives in the Caribbean, problems in the cooperative sector cannot be entirely divorced from weaknesses in management of their respective public sector regulatory authorities.
The DCD has prepared a Development Plan (2009 to 2012) founded on five priority ‘pillars’: Internal Systems; Regulations and Compliance; Relations and Advocacy; Human Capital and Institutional Capacity; and Sector Integrity. These priorities will need to be reformulated given the new mandate of the DCD. Also, the organizational structure and staff need to be realigned to provide services to the non-productive cooperative sector. There are 15 staff in the DCD: 6 technical/professional, including Director of Societies, 6 clerical and 3 support personnel.
The role and priorities of DCD, given its limited human and financial resources and lack of  physical presence on any of the Family islands, must be considered in light of the recent emergence of a number of Farmer Associations in the Bahamas, with their own distinct legal identities. The capacity of other stakeholders like the Bahamas Cooperative League, the umbrella NGO in the cooperative sector, which has a number of specific functions for supporting producer and other non-financial cooperatives, as set out in the Cooperatives Societies Act (2005), also faces a number of challenges, including the potential risk for duplication and overlap with DCD’s on-going dual ‘regulatory’ and ‘development’ role. 
The Ministry of Agriculture and Marine Resources, at the request of the Department of Cooperatives (DCD), has sought technical assistance from the Commonwealth to contribute to the Department’s restructuring and way forward.

Project Objective

The objective of the assistance is to:
  • Assist the Department of Cooperative Development (DCD) in cooperation with stakeholders define a new strategic focus which enables it to provide a service that better responds to the development needs and priorities of non-financial cooperatives in The Bahamas; and
  • Develop a three year Strategic Plan for DCD for a three year period (2013 to 2016) based on a revised vision, mission and work programme that reflects the reality of the current environmental constraints within which DCD must now operate.
  • The consultant will be required to:
  • Undertake a review of the legislation, policies and range of services being provided by the Government, including but not limited to the Bahamas Agricultural and Industrial Corporation (BAIC), the Department of Agriculture and the Department of Marine Resources, to support of organised membership-based productive activity in the farming and fisheries sector, including ‘associations’ and ‘cooperatives’. The review will also:
  • Assess the extent to which membership is restricted to one or more collective or grouping;
  • Determine the significance of any services received from the state, including exemptions from duty and other benefits, as the basis for continued membership of groupings will also be considered
  • Compare the benefits of memberships in the ‘associations’ and ‘cooperatives’  based on their legal status and functions
Based on the findings, the consultant will provide recommendations on the extent to which responsibilities for servicing producer cooperatives, and other producer groupings, might be better allocated according to recognised strengths and weaknesses of the different organisations and other considerations, including relevant legal mandates.
  • Conduct a detailed assessment of the performance of DCD over the past three years. This will include reviewing:
  • Progress made to date against each of the relevant indicators as set out in Department’s three-year Development Plan (2009 to 2012),
  • Adequacy and operation of key administrative systems and documentation protocols will also be considered and advice given on improvements to  administrative systems and documentation protocols. 
  • Job descriptions and requisite competencies for a number of key staff positions (professional and clerical) will also be reviewed for their continuing relevance and new job descriptions drafted, if necessary. The assessment will also consider whether particular tasks are being undertaken by staff at the appropriate level will also proposed new staffing and organisational arrangements within an appropriately restructured DCD, including specialist training and professional development needs.
  • The assessment should also indicate whether there are opportunities to subordinate any existing responsibilities of the DCD, including elements of its development to other competent institutions or to assume roles currently being performed by others and review and advise on improvements.
  • In consultation with staff and stakeholders, prepare recommendations for DCD future direction including any new areas of priority focus and actions to be pursued.  The recommendations will propose areas for future specialisation, highlighting particular areas for diminished or enhanced focus and will also consider any amendments or changes, including any additional provisions, to be considered for incorporation into legislation which would improve the effectiveness of the DCD.
  • Organise a study tour to a country where the public sector agency has been restricted to successfully provide services to the productive cooperative sector.

Approach and Methodology

The consultant will work closely with the Director of Societies who will be the counterpart for the implementation. The project will employ a participatory approach.  The consultant is expected to meet with stakeholders, including producer cooperatives and farmer associations, public agencies and NGOs during a number of short visits to selected Family Islands to solicit their input into the project.  Additionally, the consultant is also expected to convene at key stages, consultations with various stakeholders to discuss emerging findings and secure broader endorsement, including working agreements, for plans of action. The consultant should prepare briefing documents for these meetings which should be cleared with the Director of Societies.
A key requirement of the project will be to draw on lessons and best practice gained from elsewhere within the Commonwealth. As far as practicable the consultant should be able to use case studies where public institutions faced similar challenges to those faced by DCD.
The project will be completed in two missions: 
  • an inception mission which will take place within two weeks of contract and will include workshops and meetings with stakeholders groups
  • a final mission to present the final report to the DCD and relevant stakeholders.

Project Outputs

These include:
  • Review of the performance on the DCD over the last three years;
  • Assessment of GAPs in the legal, institutional framework of DCD and how these can be addressed to improve services to the productive cooperative sector; 
  • Strategic Development Plan and draft Work Programme for DCD for the next three years developed.

Professional Qualifications and Experience

The lead consultant is expected to have at least seven years of experience at a senior leadership level in managing a government department, or other similar agency, charged with responsibility for direct oversight and supervision of a range of cooperatives, including agricultural cooperatives. Additional experience gained in small states, as defined by the Commonwealth Secretariat, particularly in the Caribbean region, will be an added advantage.
Bids are invited from individual consultants, consultancy firms and other legally established entities in the Commonwealth.

Reporting

A number of reports will be produced. All reports will be submitted as drafts to the Director of Societies in electronic and hard copy at least two weeks prior to submission of final copies.
  • Status Report. This will be submitted within three weeks of completion of the Inception Mission. It will provide a report on the current external environment and contain clear options for action.
  • Mid-term Report. To be submitted no later than three months following completion of the Inception Mission. The Report will include clear recommendations for changes to government policy for encouraging further growth and development of the sector.
  • Final Report. Setting out a detailed Three Year Strategic Plan for DCD, will be submitted by 30 June 2013.

Inputs and Budget

The project is to be implemented over a five-month period commencing January 2013 and is due to be completed by the end of June 2013. The maximum funding available under the project will be between £45,000 and £50,000 payable through an all-inclusive contract.

Further Information