State Restructuring and Federalism. Balananda Paudel

State Restructuring and Federalism Balananda Paudel

Why federalism in Nepal? To hold together? To come together? NO Big geography? Is it ends? Big population?

Why federalism in Nepal? To federalize state power? To resolve conflict? YES To manage diversity? To make system inclusive? Is it means? To make governance effective and efficient?

Drivers of Federalism in Nepal Diversity Inclusion Conflict management Effectiveness & efficiency

Arguments against Federalism Expensive Complexity of the system Lack of capacity Dilemma in public regarding service delivery Blame game Conflict

Federalism - Origin Federalism is derived from 'Federation Originating from a Latin word foedus = a treaty or agreement. Meaning, The instrument by which a federation is brought about in a treaty or agreement between independent governments, national/central which they agree to create and hence created a new state to which each sovereign state surrender their sovereignty and agree to become its sovereign parts.

Asymmetric and Symmetric Federalism Asymmetric: A type of federalism where constituent units have different sets of rights and obligations which are not necessarily equal. Symmetric: A type of federalism where all constituent units hold equal powers and facilities under the federal constitution.

Dual Federalism Limited but countable powers to the central government; foreign policy, national security and national economy, etc. All remaining powers given to federal states; resource mobilization, policy formulation, etc. Power: Central government > State but effort to balance the power. This is currently how the United States system works.

Cooperative Federalism power sharing among federal, state & local government. All works are combined to find effective solutions for the national problems. Nepal s federal structure is perceived to be cooperative federalism.

सहक र त स घ य स वर प स घ सहअस ततत व ७. प रद श ७५३ ग उ प ल क / नगरप ल क समन वय

७५३

स घ यत एउट भ ग ल र एउट जनत ल ई फरक फरक ब षयम भभन न भभन न तहक सरक रल श सन गन व यवस थ न स घ य व यवस थ ह

स घ यत ककन? नजजकक श सन सम व भशत क ययदक षत क यय प रभ वक र त जव फद हहत ववव धत क व यवस थ पन

श सन व यवस थ स घ स ववध न र क न नक अधधनम रह न प लक श सन व यवस थ क स म न य ननद शन, ननयन रण र सन च लन गन अभभभ र मन र पररषदम ह न छ (७५-२) प रद श स ववध न र अन य क न नक अधधनम रह प रद शक श सन व यवस थ क स म न य ननद शन, ननयन रण र सन च लन गन अभभभ र प रद श मन र पररषदम रहन छ (१६२-२) तथ ननय तह स ववध न र अन य क न नक अधधनम रह ग उ प भलक र नगरप भलक क श सन व यवस थ क स म न य ननद शन, ननयन रण र सन च लन गन अभभभ र ग उ क ययप भलक र नगर क ययप भलक क ह न छ (२१४-३)

र ज यक म ल स रचन त न तहक ह न छ (५६-१) स घ प रद श र स थ न य तह

स थ न य तह (३०६ (१) ढ) ग उ प ल क नगरप ल क र स ल सभ

र ज य शक त क प रय ग (५६-२) स घ प रद श र स थ न य तह

र ज य शक त (३०६-१-ज) र ज यक क ययप भलक, व यवस थ वपक र न य यप भलक सम न ध अध क र, स शब दल अवश स ट अधधक र सम तल ई जन उछ

र ज य शजक तक डफ ड स घ- अन स च - ५,७ र ९ प रद श- अन स च - ६,७ र ९ स थ ननय- अन स च - ८ र ९

र ज य शक त क ब डफ ड ववध यन क ययक र ण न य नयक स घ स घ य व यवस थ वपक (प रनतननधध सभ र र जर य सभ ) न प ल सरक र सव च च अद लत प रद श प रद श सभ प रद श सरक र उच च अद लत तथ ननय - ग उ सभ - नगर सभ - ग उ क ययप भलक - नगर क ययप भलक - जजल ल अद लत - स थ न य अद लत - न य नयक सभमत

र ज य शक त क डफ ड अन स च -८ स थ ननय अन स च ९ अन स च ७ अन स च -६ प रद श

Principles of State Restructuring and Right to autonomy Self-rule Federalism in Nepal Ending all forms of discrimination and oppression created by the feudalistic, autocratic, centralized, unitary system of governance Protecting and promoting social and cultural solidarity, tolerance and harmony

Principles of State Restructuring and Federalism in Nepal Eliminate caste based untouchability Committed to socialism Based on democratic norms and values Competitive multi-party system of governance Civil liberties Fundamental rights Human rights Adult franchise Periodic elections Full freedom of the press Independent impartial and competent Judiciary Rule of law

Principles of State Restructuring and Federalism in Nepal Unity in diversity by recognizing the multi-ethnic multi-lingual, multi religious, multi cultural and diverse regional characteristics Build an egalitarian society founded on the proportional, participatory and inclusive principles Ensure economic equality, prosperity and social justice Eliminating discrimination based on class, caste, region, language, religion and gender

Ultimate Destination: Prosperous Nepal

State restructuring(local level) Function Geography Population Socio-Cultural Structure Access Resources Geographical Continuity conurbation

Principles of Restructuring(local level) 1. Economies of scale 2. Principle of subsidiarity 3. Principle of exception 4. Inclusion 5. Consolidation of structure on the basis of consolidation of function 6. Principle of representation

Restructuring Process LLRC set the standards for the process Technical committees were formed in every districts who facilitated the process The process was participatory

Local level restructuring Limitations of the process: 1. The criteria given by the government changed at the middle of the work of the Commission 2. Restructuring was to be done within the boundary of the district and the province 3. Wards of VDCs and Municipalities were not allowed to be splited 4. Availability of data 5. Limited time frame

Issue 1: Size and No. of local government 1. Balancing functional responsibility and minimum efficient scale 2. Balancing scale and proximity to the people 3. Feeling of loss of political power

Issue 2: Interrelation between Federation, State and Local Level Hierarchical versus co-operative Are local governments a hierarchical units of the provincial level or federation? According to the constitution, each level has its own functions and responsibilities. The relations between the federation, states and local level shall be based on the principles of cooperation, co-existence and co-ordination

Issue 3: Determination of No. and Boundaries of Special, Protected and Autonomous Regions Criteria set by the government were changed amidst the work No. and boundaries of rural municipalities and municipalities were not public even during the last phases of the tenure of the commission Availability of data posed a major constraint Minorities and marginalized communities were not rigidly defined The restructuring was to be done within the boundary of local level, district and province

Issue 3: Determination of No. and Boundaries of Special, Protected and Autonomous Regions Boundary based structure and nonterritorial structure Exclusive structure and proportional inclusive principle Cultural, social and economic rights of the structure was ambiguous

Issue 4: Separation of powers and checks and balances Executive, legislative and judicial wing of the local government shall be led by the same representative The functioning and regulation of the local bodies comes under the purview of the following constitutional bodies: i. Commission for the Investigation of Abuse of Authority (CIAA) ii. Auditor General ( Regularity, economy, efficiency, effectiveness and the propriety) iii. Public Service Commission

Issue 5: Clarity on Functional Assignment -(i) Concurrent functions and exclusive functions Exclusive functions at different level eg: Tourism fee

Allocation of power Schedule-8 Local Schedule 9 Schedule 7 Schedule-6 Province

Federation Province Local EDUCATION Basic and Secondary Education Basic Health HEALTH AGRICULTURE Management of Agriculture Extension

Issue 5: Clarity on Functional Assignment -(ii) Fundamental rights International conventions Directive principles, policies and obligations of the state

Issue 6: Fiscal Federalism Expenditure assignment Revenue assignment Inter-governmental fiscal transfer (Basis and Modality) Equalization grant Matching grant Conditional grant Special grant Borrowing Fiscal commission

Issue 7: Transitional Management ( Adjustment of Civil Servants) Nepal government can adjust civil servants at federal, state and local level (302-2) Employee s interest and institution s interest Issue of mobility of civil servants Issue of benefits Issue of previous local level staff and civil servants Issue of knowledge, skill and attitude of employees Capacity development programs No If and But

Physical facilities Issue 7: Transition Management (Handover and take over) Programs and projects Process/ Procedure Out standings Audit irregularities Handover to the elected government

Issue 7: Transition Management (Continuity of service and delivery) Implemented by the government From headquarters From ward center

Issue 7: Transition Management (Clarity about Ward Service Centre) This is service delivery unit not the governing unit The role of ward committee regarding ward service Centre Functions of Ward Service Centre Service delivery unit below the Ward Service Centre

Political risk Issue 7: Transition Management (Risk Management) Contested political environment Adversarial politics Administrative risk Poor capacity Resistance Inertia/ Legacy Operational risk Proper sequencing of transition Lack of skill

Issue 8: Service Delivery Improvement Joint Service Arrangement Local level headquarters Ward service center Ward service center Service centre below the ward if necessary Service centre below the ward if necessary Local level headquarters Ward service center Service centre below the ward if necessary

Issue 8: Service Delivery Improvement Public administration cannot be transformed overnight Multi-skilled and multi-tasked staffing Smart civil servant Efficient staffing Continuous training Training for all

Issue 9 Gerrymandering Political Gerrymandering When someone in authority changes the borders of an area in order to increase the number of people within that area who will vote for a particular party or person (http://www.freesearch.co.uk/dictionary/gerrymandering)

Two Types Packing: Putting as many members of one party into one constituency to limit the amount of seats they win Cracking: Splitting voters of the opposing party into two different constituency

What Are The Effects? Less accurate representation Less incentive to vote Can erase the political impact of certain groups

Issue 9 Gerrymandering Political Gerrymandering Resource based Gerrymandering Forest Water Land-fill site Grazing land Center based Gerrymandering Cultural Gerrymandering

Yarsagumba (Caterpillar fungus) based Yarsamandering

Mr. Gerry of Gerrymandering

Issue 10 Provincial Headquarters

Issue 10 Provincial Headquarters Geographically Centroid Province 1: Dhankuta and Bhojpur Province 2: Mahottari and Sarlahi Province 3: Kathmandu Province 4: Kaski Province 5: Pyuthan and Dang Province 6: Jumla Province 7: Doti

Issue 11 भमरभमर ब ह न /ग ध ल स झ (Twilight) य र पक(Metaphor) ककन? प र न ग सक क छ न नय आउन क छ Twilight ग ध ल स झ Evening twilight(dusk) भमरभमर ब ह न Morning twilight(dawn) य समयम क गन? नख न? प ज प ठ गन? क स स क रल ई छ ड न?

Capacity Individual Functional Technical Organizational Institutional Issue 12 Capacity Supply side Societal Demand side

Issue 13: Inertia- SinghaDurbar Unitary system of governance

स नघय व यवस थ अन क ल क यय सम प दन गन प रय स Inertia (जडत ) स थ ननय तह

Issue 14: Ineffective Bureaucracy

ख न ध र क म थ र

पररवतयन कसर ल य उन? थ र ख न ध र क म गन

Issue 15: Blame Game

सरक र स च न गनय सक न क षमत ख? स घ स धन, श र त, हतत न तरण ख? प रद श

ह म क म स र गनय प एक ख? प रद श स व स ववध क क न न बन इददएक ख? तथ न य

सरक र स च न गनय सक न क षमत ख? स घ स धन, श र त, हतत न तरण ख? तथ न य

स घ यत एउट तहल अक तहल ई द ष द ख एर प छ न व यवस थ ह न स ववध नल हदएक भ भमक प र गनयक ल धग नतन तहक ब चम सहक यय र समन वय गन व यवस थ

Issue 16: A mismatch among ability and job assignment

Federation Issue 17: Silo Mentality Province

अन तर सरक र ववत त व यवतथ पन सम बन धम व यवतथ गनय बन क ऐन २०७४ १) प रद शल सव र स धन कर उठ उ द स थ न य तहल सव र स धनम लग एक कर सम त उठ उन २) स थ न य तहल घर जग ग रजजर शन श ल क उठ उ द प रद शल लग एक घर जग ग रजजर शन श ल क सम त उठ उन तथ ननय सरक र स च न ऐन २०७४ १) सव र स धन करक दर ननध यरण र स कलन प रद शल गन तर ग उ प भलक र नगरप भलक ल ट ग, ररक स, अट ररक स र ई-ररक स क सव र करक दर ननध यरण र स कलन आफ न क षम जम म गनय सक न छ २) घर जग ग रजजर शन श ल कक दर प रद शल ननध यरण गन र स क स कलन ग उ प भलक व नगरप भलक ल गन

अन तर सरक र ववत त व यवतथ पन सम बन धम व यवतथ गनय बन क ऐन २०७४ ३) स थ न य तहल ववज ञ पन कर उठ उ द प रद शल लग एक ववज ञ पन कर सम त उठ उन ४) स थ न य तहल मन रन जन कर उठ उ द प रद शल लग एक मन रन जन कर सम त उठ उन प रश सननक खचय: उठ क करक द ई प रनतशत ब क रकम: सम जन धत तहक स धचत तथ ननय सरक र स च न ऐन २०७४ ३) ववज ञ पन करक ननध यरण र स कलन ग उ प भलक व नगरप भलक ल गन ४) मन रन जन करक दर र स कलन गन तररक प रद शल ननध यरण गन र स क स कलन ग उ प भलक व नगरप भलक ल गन

Issue 18: Harmonization and Coordination तथ न य प रद श

स घ म कक सल द द क ड ङ ग तथ न य

स घ म कक सल द द क ड ङ ग प रद श

ग उ प ल क र नगरप ल क क सल द द क ड ङ ग उपम यर म यर

ग उ प ल क र नगरप ल क क सल द द क ड ङ ग व डय सदतय व डय अध यक ष

म कक सल द द क ड ङ ग य न : तथ न य प रद श स घ आवधधक क ष य द रद ष ट

तथ न य तहक सल द द क ड ङ ग य न : व डय अध यक ष व डय सदतय उपम यर म यर आवधधक क ष य द रद ष ट

Issue 19: Unfinished Tasks

र जस व डफ ड स घ य ववभ ज य क ष म ल य अभभव द द कर/अन त श ल क (१००%) स घ य स धचत क ष (७०%) प र द भशक ववभ ज य क ष (१५%) स थ ननय ववभ ज य क ष (१५%) ७ वट प रद श ७५३ स थ ननय तह

र जस व डफ ड स घ य ववभ ज य क ष प र क नतक स र तम प र प त र यल ट (१००%) स घ य स धचत क ष (५०%) प र द भशक ववभ ज य क ष (२५%) स थ ननय ववभ ज य क ष (२५%) ७ वट प रद श ७५३ स थ ननय तह

Issue 20 Restructuring of provinces Ability/capability? Identity? Efficiency?

General Composition of seven Provinces Province No. of districts Area(sq. km) Area (%) Population Population( %) One 14 25,905 17.60 4,534,943 17.12 Two 8 9,661 6.56 5,404,145 20.40 Three 13 20,300 13.80 5,529,452 20.87 Gandaki 11 21,504 14.61 2,413,907 9.11 Five 12 22,288 15.14 4,891,025 18.46 Karnali 10 27,984 19.01 1,168,515 4.41 Seven 9 19,539 13.28 2,552,517 9.63 Nepal 77 147,181 100 26,494,504 100

Size of provincial assemblies and governments Province Number of local governme nt Number of provincial assembly members FPTP PR Total Numbr of ministers as 20% PPA!oR constitue ncies One 137 56 37 93 18 28 Two 136 64 43 107 21 32 Three 119 66 44 110 22 33 Gandaki 85 36 24 60 12 18 Five 109 52 35 87 17 26 Karnali 79 24 16 40 8 12 Seven 88 32 21 53 10 16 Total 753 330 220 550 108 165

Perspective द स ष टक ण

The Case of Nigeria Federalism was demanded in Nigeria on the basis of ethnicity & 3 states were formed in 1963. Gradually, other tribes demanded their own state. 3 states has now become 36 states & the debate continues

System: A perspective System is just the means and not the ends No system is good or bad in itself, but rather the way it is utilized that determines the end result A system never fails, it s only the people who fail to exercise it efficiently.

धन यव द