Challenges of Decentralization in Nepal

-Ram Chandra Pokharel, Politician

Although Nepal is small in size, it is diverse in many aspects. The geographical diversities consists of mountains, hills, valleys, and the plain areas criss-crossed by numerous rivers that have divided the topography of the nation into many natural units. This has, on the one hand, posed a challenge for the central governance, and on the other, created a conducive climate for decentralized governance. Nevertheless, almost all the governments of different periods in the history of Nepal relied on centralized authority. It was only in 1951 when the first government formed from among the popular leaders that the decentralization process had been started through setting up village level units and districts boards. Accordingly, 6615 village panchayats were created and Panchayat officers were appointed in all the villages. Likewise, the government declared that a decentralization policy had been adopted and from Poush 2016 B.S development boards were set-up in every district giving them the necessary powers.

The decade of 1960s was considered to be a dark decade in terms of democracy and people's rights. However, in terms of creating local units, this decade had a special contribution. About 4,000 village panchayats were created, 75 districts were demarcated and 14 zones were carved out. Election officers with limited powers were also appointed. But soon it became clear that the whole process was not inspired by the will of decentralization but by the designs for more centralization. Th new machinery of local units was used for consolidation of central authority and quelling any democratic movement. This was, in effect, a serious blow to decentralization movement. People started dissatisfaction with the word Panchayat which ruled the country ruthlessly for 30 years; so much so that even after the restoration of democracy in 1990, people were not satisfied until the word Panchayat was removed from all local bodies which were replaced by the terms Village Development Committees, VDCs,, municipality, and District Development Committees, DDCs, etc. The zone level units were all dismantled and so was the post of zonal commissioner. As a result, district and village level administrative units became more powerful.

Concept: Decentralization is a normal process of democratic governance. It ensures direct contact between the people and the local institutions. Eventually, DDC, Municipality and VDC Acts were promulgated and accordingly elections were held, thereby helping democracy reach up to the grassroots level.

After the elections, the elected representatives took over the charge of local bodies. Although they lacked necessary experience, the people cooperated with them. But in today's fast paced world, mere feelings and encouragement were not enough. Resources, means and capabilities were badly needed. Besides, financial, technical and consultancy assistance was also the need of time. Taking this issue very seriously, the National Planning Commission, NPC, in collaboration with Ministry of Local Development and UNDP, started the decentralization program under which a "Decentralization Support Project" was initiated in 6 Western districts to be expanded gradually in all 75 districts, 36 municipalities and 3995 VDCs.

Decentralization program: The UNDP assisted "Decentralization Support Project" which started in 1993 was later converted into a program. It has now become the main partner of all the existing decentralization programs. It may be noted that before the restoration of democracy, all UNDP assistance were confined to the center only. This program has generated much support and enthusiasm at the DDC level. Now, this venture is popularly known as Participatory District Development Program, PDDP. The core objective of this program is "mass participation". For this, the program has laid special emphasis on the "planning process".

Planning process: According to the objectives of decentralization, the foundation of planning is the consumer group. The planning requirements are collected at the VDCs. After necessary discussions, the VDCs sets out the priorities and sends a proposal to the village or the town council. The council, in turn, fulfils the necessary process and sends it to the district specifying the priorities. Before discussions take place in the district on the proposal, a comprehensive discussion is conducted at the "Ilaka Level Workshop" and the results are added to the proposal and forwarded to the relevant DDC subject committee for giving final shape to the proposal. It must be mentioned here that there are four subject committees, namely:; Agriculture committee, Development and Construction Committee, Forest Committee; Industry and Environment Committee, and Health and Social Committee. After the concerned committee approves a proposal, the coordination committee headed by the DDC chairman debates the proposal and gives it a final shape. The coordination committee is an important entity in that it consists of people's representatives, technical experts and concerned department's officials. Once the full meeting of DDC approves the proposal, it is sent to the highest district level body called "District Council" as proposed for endorsing it in the annual program and allocating budget. After this, the District Council sends it to the NPC which finally gives a go ahead signal. Thus it is a proposal considered approved.

However, planning is not considered successful until it is implemented. Besides, the monitoring and evaluation aspects are equally important. Here also, the role of DDC is vital. The monitoring and evaluation of the plan is done at the village, ilaka and the district level in the same fashion as is done while forwarding the priority proposal.

The lessons derived from the first phase of decentralization program were further implemented gradually in 14 more districts. Now the total number of districts covered by the decentralization program is 20, and there are plans to expand it to yet more 20 districts. For this purpose, a District Management Development Fund, DMDF, has been setup. Its objective was also to strengthen the management aspect of the DDC. The DMDF was formed with the grouping of districts and was instrumental in formation of the Association of DDCs of Nepal known as ADDCN.

After the restoration of multiparty democracy, the local bodies have been energized. What could be achieved in thirty years of the Panchayat rule has been achieved now in thirty days. In the VDC, Municipality and DDC Acts of 2048 BS for self-governance, the local bodies experienced a feeling of self-governance within two years and subsequently in the second national conference of DDC presidents and vice-presidents, a demand was put before the government to develop the DDC as a "district government". This was a milestone in the history of local bodies. In this connection, the ADDCN played an active role in the promotion of decentralization. It created a big moral pressure to energize the local units. As a result, a High Level Decentralization Committee was formed which submitted an important proposal on the basis of which the government decided to take the draft bill on decentralization in the parliament.

Challenges: Local bodies that were neglected at one time now are important working fields for political parties. People are no more hesitant to address them as "local government"'. Even His Majesty's Government has no reservations to use the word. This situation principally is the outcome of a positive attitude towards local bodies. Yet, no concrete move has been made to empower them with real authority. Despite numerous debates and discussions at various levels they have not received dynamism. Therefore, it is the need of the day that the laws should clearly be formulated regarding the real empowerment of the local bodies.

Secondly, the issue of decentralization should be extensively discussed in the parliament as is done outside it.

Thirdly, the spirit seen towards formulating new laws are also appreciated by the concerned ministers and departments, but the officials lack the capabilities for taking this task ahead. This is the crucial challenge.

Fourthly, the consolidation of local self-government is possible only through economic self-reliance and strong power backed by the law. This fact can't be disregarded. Instead of providing grants to the local bodies, a competitive but organized fund has to be created. It is equally necessary to develop income oriented self-reliance programs locally. Also, the remote districts should be given due attention.

Thus, if the above mentioned four factors are redressed, local government can be developed to a great extent. We now have a multiparty democracy. Unless, there is minimum consensus among the political parties and commitment, self-governance will remain a far cry. In view of frequent change of governments, the gap between the governments and local bodies might widen and decentralization would be only weakened by more centralization.

Text courtesy: Polsan publication, 1998-chief editor

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