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State Restructuring and Federalism. Balananda Paudel. Why federalism in Nepal?. To come together ? To hold together? Big population? Big geography? Is it ends?. NO. Why federalism in Nepal?. To federalize state power? To resolve conflict? To manage diversity?
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State Restructuring and Federalism Balananda Paudel
Why federalism in Nepal? • To come together? • To hold together? • Big population? • Big geography? • Is it ends? NO
Why federalism in Nepal? • To federalize state power? • To resolve conflict? • To manage diversity? • To make system inclusive? • Is it means? • To make governance effective and efficient? YES
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.
संघीय स्वरुप सहकारीता सहअस्तित्व समन्वय
संघीयता • एउटै भुगोल र एउटै जनतालाई फरक फरक बिषयमाभिन्न भिन्न तहका सरकारलेशासन गर्ने व्यवस्था नै संघीय व्यवस्था हो
संघीयता किन? • नजिकको शासन • समावेशिता • कार्यदक्षता • कार्य प्रभावकारीता • जवाफदेहिता • विवीधताको व्यवस्थापन
शासन व्यवस्था संघ • संविधान र कानुनको अधिनमा रही नेपालको शासन व्यवस्थाको सामान्य निर्देशन, नियन्त्रण र सन्चालन गर्ने अभिभारा मन्त्रीपरिषदमा हुनेछ। (७५-२) प्रदेश • संविधान र अन्य कानुनको अधिनमा रही प्रदेशको शासन व्यवस्थाको सामान्य निर्देशन, नियन्त्रण र सन्चालन गर्ने अभिभारा प्रदेश मन्त्रीपरिषदमा रहनेछ। (१६२-२) स्थानिय तह • संविधान र अन्य कानुनको अधिनमा रही गाउँपालिका र नगरपालिकाको शासन व्यवस्थाको सामान्य निर्देशन, नियन्त्रण र सन्चालन गर्ने अभिभारा गाउँ कार्यपालिका र नगर कार्यपालिकाको हुनेछ। (२१४-३)
राज्यको मुल संरचना तीन तहको हुने छ (५६-१) • संघ • प्रदेश र • स्थानीय तह
स्थानीय तह (३०६ (१) ढ) गाउँपालिका नगरपालिका र जिल्ला सभा
राज्य शक्तीको प्रयोग (५६-२) • संघ • प्रदेश र • स्थानीय तह
राज्य शक्ती (३०६-१-ज) • राज्यको कार्यपालिका, व्यवस्थापिका र न्यायपालिका सम्बन्धी अधीकार, • सो शब्दले अवशीस्ट अधिकार समेतलाई जनाउछ।
राज्य शक्तिको बाँडफाँड • संघ- अनुसुची- ५,७ र ९ • प्रदेश- अनुसुची- ६,७ र ९ • स्थानिय- अनुसुची- ८ र ९
राज्य शक्तीको बाँडफाँड अनुसुची७ अनुसुची ९
Principles of State Restructuring and Federalism in Nepal • Right to autonomy • Self-rule • 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) • Economies of scale • Principle of subsidiarity • Principle of exception • Inclusion • Consolidation of structure on the basis of consolidation of function • 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: • The criteria given by the government changed at the middle of the work of the Commission • Restructuring was to be done within the boundary of the district and the province • Wards of VDCs and Municipalities were not allowed to be splited • Availability of data • Limited time frame
Issue 1:Size and No. of local government • Balancing functional responsibility and minimum efficient scale • Balancing scale and proximity to the people • 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 non-territorial 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: • Commission for the Investigation of Abuse of Authority (CIAA) • Auditor General ( Regularity, economy, efficiency, effectiveness and the propriety) • 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 7 Schedule 9
Federation • Province • Local EDUCATION HEALTH AGRICULTURE Basic and Secondary Education Basic Health 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”
Issue 7:Transition Management(Handover and take over) • Physical facilities • 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
Issue 7:Transition Management(Risk Management) • Political risk • 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 • Public administration cannot be transformed overnight • Multi-skilled and multi-tasked staffing • Smart civil servant • Efficient staffing • Continuous training • Training for all