Our research paper explores the imperative shift towards a more efficient and human rights-oriented public service delivery ecosystem, focusing on the implementation of the Citizen's Charter. We delve into strategies to enhance effectiveness and accountability within government services, ensuring citizens' rights are upheld. Through empirical analysis and theoretical frameworks, we highlight the transformative potential of adopting a human rights-based approach. Our findings underscore the importance of citizen engagement, transparency, and equity in shaping a responsive and inclusive public service framework. This paper serves as a valuable resource for policymakers and practitioners seeking to optimize service delivery systems.

1. Towards a More Effective and Efficient Public Service Delivery
Ecosystem: A Human Rights-Based Approach of the Citizen’s Charter
Walid Mohammad, Assistant Secretary, Ministry of Foreign Affairs, walid.mofa.bd@gmail.com
Humayra Sultana, Assistant Commissioner, Office of the Deputy Commissioner, Moulovibazar, humayrasultana457@yahoo.com
Md.Rifatul Haque, Assistant Commissioner, Office of the Deputy Commissioner, Sunamganj, rifathaque37@gmail.com
Md. Masudur Rahman, Assistant Commissioner, Office of the Deputy Commissioner, Sirajganj, masud37bcs@gmail.com
Introduction
Effective and efficient public service delivery is
an extremely important issue in the context of
present- day Bangladesh, which is why it is
important to judge citizens’ satisfaction
regarding public service delivery. In this study,
the authors studied the satisfaction level of
service recipients across several field-level
government offices of two districts of
Bangladesh (Kushtia and Chattogram). The
authors also explored the linkage between the
usage of citizen’s charter as per the government
guidelines and client’s satisfaction regarding
public service delivery. Pearson correlation
coefficient was used to explore the correlation
between proper usage of citizen’s charter and
citizen satisfaction. Based on the information
extracted from the field survey and the PANEL
principles of the human rights based approach
the authors proposed necessary tweaking of the
western concept of citizen’s charter to make the
citizen’s charter more suitable in a developing-
world setup like Bangladesh.
Literature Review
In the present day of Bangladesh, efficient and
effective service delivery has become an integral
part of the government offices where most of the
service holders are not aware of the quality of
the services. Oludele Akinloye Akinboade
analyzed the citizen satisfaction with the public
service delivery in the three local municipalities
of South Africa (1). Dr. Shahriar Akter,
Mohammad Upal and Umme Hani from
University of Wollongong conducted a study
over the sub-urban hospitals of Bangladesh.
They have shown a negative relationship
between the perception and the satisfaction of
the service quality in the health sector (2).
Gilbert Chodzaza and Harry Gombachika
assessed the industrial customers of a public
electricity utility in Malawi regarding the same
manner.(3)
Methodology
In this study, both primary and secondary
data have been collected. The study was
empirical and exploratory in nature and
therefore the information presented is based
on both primary & secondary data. Primary
data is collected using the questionnaires
which were both the structured and semi-
structured in nature. The structured
questionnaire was mainly for the stake
holders and the semi structured one was for
the government officials. Moreover,
personal interview, focus group discussion
was also done with the service recipients to
gather more information regarding the
study.
The research was done in the different offices of
the district and the Upazila level of Kushtia &
Chattogram. In every office, at least two service
recipients were interviewed for the
questionnaire survey. Also minimum one semi-
structured interview was taken from a
government official regarding the topic of the
study. The duration of the research study was
three weeks.
Two types of data were collected from several
offices-
 data regarding satisfaction level of
service recipients
 data regarding the proper usage of
citizen’s charter
*The questionnaire for data collection is
attached in the appendix section.
In this research both qualitative and quantitative
methods were used. Primary data was collected
thorough key informant interview (KII).
Secondary data was collected through annual
reports, annual performance agreement (APA)
etc.
Data is collected through questionnaire
interview, personal contact, Participatory Rural
Appraisal (PRA) and Focus Group Discussion

2. (FGD) with the target peoples. For questionnaire
interview a set of questionnaire was prepared
which is composed of both closed and open form
of questions. Individual interviews were carried
out from the target population randomly. A total
of 25% targeted people were interviewed
personally. Three FGD sessions were carried out
in the sampling area consisting of 12-15 target
people. Secondary data was collected from the
respective Upazila and district offices.
For data collection from different target groups
non probability purposive sampling technique
was used as data collection method.
Findings
Satisfaction Level of Service Recipients
The survey was done in several offices across
the district of Kushtia & Chattogram. The office
demography are as follows:
Table 1: Number of offices undertaken for
survey
No. of
offices
studied at
District
No. Of
offices
studied at
Upazila
Kushtia 6 7
Chattogram 17 11
The demography of the service recipients were
52 male (63%) vs. 30 female (37%) combined. It
reflects the patriarchal culture of the country,
where males are responsible for most of the
outside work. From the perspective of
distribution by age, majority of the respondents
were in the age bracket of 40-60 years.
Table 2:Demography of service seekers
Age Group Percentage
0-20 0
21-40 34
41-60 43
60+ 23
The respondents were asked about questions
regarding the- infrastructure, office personnel,
and office culture and service delivery.
Three statements covering the equipment and
instruments that are being used in the office,
the physical infrastructure of the office and the
aesthetics were presented before the
respondents.
Figure 1: Service Recipients' View about the Infrastructure
of the District Offices
Ten statements were asked covering areas
such- the dress-up and aesthetics of the
personnel, the depth of knowledge of the
personnel about the provided services and the
pro-people attitude of the personnel, etc.
Figure 2: Service Recipients' View about the Personnel of
the District Offices
Figure 2 shows that majority of the people
agreed or partially agreed that the personnel
working in the district offices mostly had the
attitude of that of an ideal one.
Six questions were put into the questionnaire to
analyze the perception of the respondents’
covering- the emphasis of the office on
immaculate records, the respondents’
perception of safety regarding financial
transactions in the office, the service providing
schedule of the office, etc.
0
5
10
15
20
25
30
Infrastructure (District)
Expectation Reality
0
10
20
30
40
50
60
70
Personnel (District)
Expectation Reality

3. Figure 3: Service Recipients' Perception about the Culture
of the District offices
Figure 3 shows that almost all of the
respondents agreed that the office culture was
pro-people and matched that of an ideally
expected office.
In next phase, statements covering facets such
as-whether the service is delivered within given
timeframe, whether the office delivers the
service during the first meeting with the
recipient, etc. were raised.
Figure 4: Service Recipients' Perception about the Service
Delivery of the District Offices
Figure 4 shows that majority of the recipients
had positive feedback about the service
delivery of the district level offices of Kushtia &
Chattogram.
In Upazila offices too, the respondents were
asked about questions regarding the-
infrastructure, office personnel, office’s culture
and service delivery.
Three statements about an ideal office’s overall
infrastructure were presented before the
respondents. The respondents were asked
whether they agree or not that the
infrastructure of the office in question is similar
to the ideal scenario or not.
Figure 5: Service Recipients' View about the Infrastructure
of the Upazila Offices
Figure 5 shows a significant portion of the
respondents were not happy with the
infrastructural facilities of the Upazila level
offices, which is in contrast with the district
level offices.
Statements were placed in the questionnaire to
analyze the experience of the service recipients
regarding the behavior and overall impression
of the office personnel.
0
5
10
15
20
25
30
35
40
45
Office Culture (District)
Expectation Reality
0
5
10
15
20
25
Service Delivery (District)
Expectation Reality
0
5
10
15
20
25
30
35
40
45
Infrastructure (Upazila)
Expectation Reality

4. Figure 6: Service Recipients' View about the Personnel of
the Upazila Offices
Figure 6 shows the perception about the
Upazila level personnel is a mixed one and a
significant portion of respondents think that the
behavior and work ethic of the office personnel
are not good enough.
Similar survey was conducted for the culture of
the office matched with that of an ideal one in
Upazila level.
Figure 7: Service Recipients' Perception about the Culture
of the Upazila Offices
Figure 7 shows that majority of the respondents
agreed that the office culture was on the right
track.
Likewise the survey on service delivery on
Upazila level offices resulted in:
Figure 8: Service Recipients' Perception about the Service
Delivery of the Upazila Offices
Figure 8 shows that a significant number of
respondents felt that service delivery in the
Upazila level offices had major room for
improvement.
In later part, the questionnaire of the survey
form given in Appendix-B is presented. The
survey was conducted to analyze - whether the
offices displayed citizen’s charter or not,
whether the offices maintained proper
guidelines (Governance Innovation Unit, 2017)
regarding preparing citizen’s charter or not.
All the offices in the district level displayed the
citizen’s charter in their offices.
The citizen’s charters were inspected from
three perspectives- whether the citizen’s
charter displayed all the necessary information
about service receiving, whether the citizen’s
charter displayed all the necessary information
regarding the official who will be providing the
service, whether the citizen’s charter displayed
all the necessary information regarding the
higher official in case of any grievances from the
service seeker.
Six elements were inspected including- List of
services provided, Information related to
timeline of service disposal, Description of all
the necessary documents which are required
for receiving a service, Information about the
location of necessary documents which are
required for receiving a service, Costs of
receiving services, Information about payment
method.
0
20
40
60
80
100
120
140
Personnel (Upazila)
Expectation Reality
0
10
20
30
40
50
60
70
80
90
Office Culture (Upazila)
Expectation Reality
0
5
10
15
20
25
30
35
Completely
Disagree
Partially
Disagree
Partially
Agree
Completely
Agree
Service Delivery (Upazila)
Expectation Reality

5. It was found that on an average, 53% of the
required information regarding the services
that were being provided by a certain office
were not displayed in the citizen’s charter.
Presence of five information were inspected-
Designation of the responsible official, Room
number of the responsible official, Land phone
number of the responsible official, Mobile
number of the responsible official, E-mail of the
responsible official.
It was found that, only 33% of the necessary
information were showed regarding the official
responsible for service delivery.
Only 33% of the necessary information were
showed regarding the official responsible for
service delivery.
Similar survey was conducted at Upazila offices
and all but 86% office in the Upazila level
displayed the citizen’s charter in their offices.
On an average, 53% of the required information
regarding the services that were being provided
by a certain office were not displayed in the
citizen’s charter.
Only 27% of the necessary information were
showed regarding the official responsible for
service delivery.
The same five issues that were inspected for the
responsible official were also inspected in this
case. Only 17% of the necessary information
were showed regarding the official responsible
for service delivery.
In this section the findings of the survey are
analyzed from different perspectives and strong
and weak suits of district and Upazila level
offices are identified.
From the perspective of infrastructure, the
respondents were much more positive about
the infrastructure of the district level offices,
rather than the upazila level ones.
Table 3: Strong and Weak Suits of Offices Regarding
Infrastructure
Administrative
Unit
Issue(s)
with the
Most
Negative
Perception
Issue(s)
with the
Most
Positive
Perception
District Aesthetics Nothing
singularly
stood out
Upazila Necessary
equipment
Nothing
singularly
stood out
Table 3 shows the strong and weak suits of the
offices regarding infrastructural facilities.
From the perspective of infrastructure, the
respondents were much more positive about
the infrastructure of the district level offices,
rather than the Upazila level ones.
Table 4: Strong and Weak Suits of Offices Regarding
Office Personnel
Administrativ
e Unit
Issue(s) with
the
Most Negative
Perception
Issue(s)
with the
Most
Positive
Perceptio
n
District Lack of
trustworthines
s
Fast
service
providing
Upazila Lack of
helpfulness
Fast
service
providing
Table 4 shows the strong and weak suits of the
offices regarding office personnel.
From the perspective of infrastructure, the
respondents were much more positive about
the infrastructure of the district level offices,
rather than the Upazila level ones.
Table 5: Strong and Weak Suits of Offices Regarding
Office Culture
Administrative
Unit
Issue(s) with
the
Most
Negative
Perception
Issue(s)
with the
Most
Positive
Perception
District Inconsiderate
towards
recipients’
interest
Congenial
office
timing
Upazila Inconsiderate
towards
recipients’
interest
Flawless
record
keeping
Table 5 shows the strong and weak suits of the
offices regarding office culture.

6. From the perspective of infrastructure, the
respondents were much more positive about
the infrastructure of the district level offices,
rather than the Upazila level ones.
Table 6: Strong and Weak Suits of Offices Regarding
Service Delivery
Administrative
Unit
Issue(s)
with the
Most
Negative
Perception
Issue(s)
with the
Most
Positive
Perception
District Nothing
singularly
stood out
Following
promised
timeframe
Upazila Not
providing
service
during the
first visit
Following
promised
timeframe
Table 6 shows the strong and weak suits of the
offices regarding service delivery.
In this section the authors explore whether
there is any correlation between maintaining
citizen’s charter and overall satisfaction of
service receivers.
Table 7: Score Matrix for Calculating Correlation
Office Name Citizen's
Charter
Score
Service
Recipient
Score
Accounts Office 0.125 0.772727
Accounts Office 0.125 0.636364
Co-operative 0.375 0.863636
Family Planning 0.375 0.681818
Family Planning 0.125 0.863636
Health Complex 0.25 0.363636
Ma o Shishu Kalyan
Kendro
0 0.5
Police Station 0.8125 0.931818
Pourasava 0.375 0.568
Primary Education 0.6875 1
Social Welfare 0.625 0.636364
Sub Registrar 0.25 0.712273
Zilla Parishad 0.0625 0.545455
In this case two scores were computed.
 Citizen’s Charter Score, CCS
The score was calculated using the
following the following formula
𝐶𝐶𝑆 =
𝑇𝑜𝑡𝑎𝑙 𝑛𝑢𝑚𝑏𝑒𝑟 𝑜𝑓 𝑖𝑠𝑠𝑢𝑒𝑠
𝑝𝑟𝑜𝑝𝑒𝑟𝑙𝑦
𝑚𝑎𝑖𝑛𝑡𝑎𝑖𝑛𝑒𝑑
𝑖𝑛
𝑡ℎ𝑒 𝑐ℎ𝑎𝑟𝑡𝑒𝑟
16
 Service Recipient Score, SRS
The score was calculated using the
following formula
𝑆𝑅𝑆 =
Total number of issues
that garnered
positive notion
22
It is to be noted that in the questionnaire
regarding the citizen’s charter there were 16
issues and in the service recipient one there were
22 issues.
Figure 9 graphically represents the relationship
between CCS and SRS that were extracted from
the study.
Figure 9: Correlation between CCS and SRS
The Pearson Correlation Co-efficient between
the two scores is 0.54; which suggests a weak
positive correlation between the proper usages
of citizen’s charter and overall service recipient
satisfaction.
The GARTTI Method
The Human Rights Based Approach or HBRA
has five core elements in its PANEL principles-
Participation, Accountability, Non-
discrimination & Equality, Empowerment and
Legality. Studies show (Lee & Kwak, 2012) that
any approach regarding mass involvement has a
better rate of success if the PANEL principals
are fulfilled. That is why the authors are
0
0.2
0.4
0.6
0.8
1
1.2
1 2 3 4 5 6 7 8 9 10 11 12 13
Correlation
CCS SRS

7. proposing a novel approach of designing the
citizen’s charter that would better realize the
PANEL principles of HBRA and also cater to
the localized needs of a specific country or a
culture.
Figure 10: PANEL principles of Human Rights Based
Approach
The approach can be called the GARTTI
approach of designing the citizen’s charter. The
GARTTI approach is a mixture of agile
approach of system development and the
HBRA. Though agile approach (Beck, et al.,
2001) is primarily used for software
development it is increasingly getting popular in
development of generalized systems. The basic
idea of agile development is to develop a system
through collaborative efforts from both the
developers and the users through multiples
cycles of development. This approach can be the
made to fit into the realm of public service
delivery if provisions of ensuring basic human
rights are considered, rather than the market
demand. The proposed GARTTI approach does
exactly that. In the GARTTI approach, a
citizen’s charter can be developed in multiples
cycles, with six steps in each cycle.
1. Ground Reality
The GARTTI cycle starts with identifying the
needs and expectations of the service recipients
from a particular public office. The idea is to
understand what people expect regarding a
specific public service delivery and find the
common ground between the scope of the office
with the people’s expectations. Though finding
the common ground is the ultimate goal, the
most important factor is to integrate
Figure 11: The Steps in GARTTI Approach
the facets of the lifestyle of the local service
recipients. For example, female service
recipients’ discomfort in the family planning
offices could have been eliminated with the
reassurance of all-women service facility, which
is existent but not publicized. That is why it is
important to consider the service recipients
concern in different societies to design more
effective citizen’s charters. Another example
can be the literacy rate. The citizen’s charter is
basically a written document which is
inaccessible to around 30% of people of
Bangladesh due to their inability to read. So,
alternative measures such as multimedia based
citizen’s charters can be displayed in areas of
high illiteracy rate.
Table 8:The GARTTI-PANEL Matrix
GART
TI
Steps
PANEL
Principles
Gro
und
Rea
lity
Ana
lysis
Ran
king
Tar
get
Sett
ing
Trac
king
Interna
tional
Benchm
arking
Particip
ation
✔ ✔ ✔
Accoun
tability
✔ ✔ ✔
Non-
discrimi
nation
&
Equalit
y
✔ ✔ ✔
Empow
erment
✔ ✔ ✔
Legality ✔
• Ensuring the participation of people
regarding designing a service delivery
or a decision making
Participation
• Continious monitoring to ensure the
protections of people's rights and
reparation if anything contrary happens
Accountability
• Ensuring equal treatment for all
irrespective of cast, creed , gender etc;
with necessary reservations for the
disadvantaged people
Non-
discrimination
& Equality
• Ensuring people's consciouseness
about their rights and providing
support the materialize the
consciousness
Empowerment
• Ensuring the compatibility of the
approaches taken with domestic and
international laws
Lagality
1. Ground
Reality
2. Analysis
3. Ranking
4. Target
Setting
5. Tracking
6.
International
Benchmarkin
g

8. 2. Analysis
Once the needs are identified based on ground
situation, the analysis phase can be started based
on the existent national laws and international
frameworks. Understanding the national system
is important. For example, a significant number
of service recipients were looking for
contraception services in the Mother and Child
Centers, which are out of scope of those centers.
Even the World Health Organization guidelines
enlist the provision of getting contraceptive
services of new mothers as a human right (World
Health Organization, 2014). However, it is
important to understand that it is not possible to
change responsibilities of an organization
overnight in developing countries. That is why
analysis should be done based on both ground
realities and legality to identify the gaps in
designing the existing system. Moreover, the
delivery process of the services should be
designed and conveyed based on the need and
limitations of the people. For, example, services
delivered in Women Affairs offices should be
designed in a way that do not require multiple
times of physical presence by the service
recipient and the awareness of the delivered
services should be made in such way so that the
women get access to such information even if
they stay at home.
3. Ranking
Once the services and their delivery process
have been identified the services should be
ranked based on real demand, in case there are a
lot of services that is provided by a single office.
Though the Citizen's Charter Handbook
(Governance Innovation Unit, 2017) developed
by the Governance Innovation Unit of
Bangladesh have provisions to enlist fewer
number of services to avoid overflow in the
citizen’s charter, there is no clear guideline on
how to select those services. Though, it is
tempting to select the most popular services, it is
important to not to leave any critical service.
Apart from that, it is also important to give the
services more importance which are tailor made
for the disadvantaged community or the
minority.
4. Target Setting
Currently the target setting is done through the
offices itself regarding delivery of different
services (Cabinet Division, 2015). Studies show
(Hollenbeck & Klein, 1987)that there are
tendencies of setting easier targets in case of
intentional goal setting. That is why it is
important to engage the service recipients in
terms of target setting. In this way, the service
recipients will be aware of the set targets, their
progress and will also understand about different
logistical limitations.
5. Tracking
In the current set up the tracking is done on
annual basis, which creates a time lag between
problems and solution. To overcome these, the
updated citizen’s charter in every cycle of the
GARTTI approach will also have the previous
targets, along with the current targets. In this
way, an inherent accountability can be ensured
along with the tracking of performance.
Moreover, for grievance redress, along with
mobile phone and physical accessibility
information of the designated officer; social
media accessibility information will be shown.
6. International Benchmarking
To ensure human rights based on the
international standard, it is important to compare
the service delivery performance with
international standards. However, comparing
the performance of developed countries with
that of the developing countries will not reflect
the real scenario. That is why it is important to
compare the performance and practice of
countries that share similar socio-economic
conditions and set international benchmarks
accordingly. Also, knowledge sharing can be
done in terms of designing the citizen’s charter,
with countries of similar socio-economic
conditions. Such comparisons will contribute
towards better performance and enhanced
accountability.
Each of these six steps ensures one or more
human rights according to the PANEL
principles. The GARTTI-PANEL matrix in
Table 8 shows which of the steps realize which
While (national performance < international
benchmark)
{
Check ground reality
Analyse
Rank but leave no one behind
Set targets with public participation
Track and monitor performance
}

9. PANEL principle. Cycles consisting of these six
steps will be re-run until the national
performance equals of supersedes the
international benchmarks.
Conclusion
Means of ensuring client satisfaction has been
topic of research for some time. For enhancing
public service delivery quality and efficiency,
Citizen Charter has been adopted in public
offices down to bottom most level. But the study
undertaken by authors reveal that, service
quality doesn’t wholly dependent on citizens
charter or a simple method only. Hence a human
rights based GARTTI method has been
proposed. The optimum client satisfaction with
regard to public service delivery can only be
achieved through combination of PANEL
entities. Six steps of GARTTI cycle has been
proposed for implementation. Proper practicing
of these steps can ensure client’s rights in public
service delivery.
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10. Appendix-A
Data Regarding Satisfaction Level of Service Recipients included 22 questions of each part of the
survey form was divided into four categories. Table shows the four categories the questions were
divided into.
Table 9: Categorization of the Questions in Service Recipient Survey Form
Category Question No
Infrastructure 1, 2, 4
Office personnel 3, 10, 11, 12, 13, 14, 16, 17, 20, 22
Office culture 6, 9, 15, 18, 19, 21
Service delivery 5, 7, 8
Appendix-B
The authors critically analyzed the citizen’s charter of each office and input the data in a form
(Appendix-B) which is represented by Table .
Table 10: Form to Collect Data about Citizen's Charter
Information about the Office
1.a Name of the Office:
1.b District:
1.c Upazilla (If applicable):
2 Whether citizen’s charter is being displayed? Yes: No:
3 If answer to the above question is “Yes”, then-
3.1 Location of the citizen’s charter- Inside: Outside: Both:
In the citizen’s charter-
3.2 All the provided services are enlisted- Yes: No:
3.3 Information related to timeline of service disposal
is given-
Yes: No:
3.4 Description of all the necessary documents which
are required for receiving a service are given-
Yes: No:
3.5 Information about the location of necessary
documents which are required for receiving a
service are given-
Yes: No:
3.6 Costs of receiving services are given- Yes: No:
3.7 Information about payment method is given- Yes: No:
Regarding the official who will be providing the service-
3.8 Designation is given- Yes: No:
3.9 Room number is given- Yes: No:
3.10 Land phone number is given- Yes: No:
3.11 Mobile number is given- Yes: No:
3.12 E-mail is given- Yes: No:
Regarding the higher official-
3.13 Designation is given- Yes: No:
3.14 Room number is given- Yes: No:
3.15 Land phone number is given- Yes: No:
3.16 Mobile number is given- Yes: No:
3.17 E-mail is given- Yes: No:
If the citizen’s charter is no up to the mark, mention three
main reasons behind it upon interview with the
concerned officials