The history of bureaucracy in Nepal is deeply intertwined with its political evolution, characterized by shifts from traditional monarchical rule to a democratic republic. Understanding its development requires looking at distinct periods and their administrative structures.
Early Forms of Governance (Pre-Unification to Shah Dynasty):
- Bharadari System: Before the unification of Nepal by Prithvi Narayan Shah, the Gorkha hill principality, and later the unified kingdom, operated under a “Bharadari” system. Bharadars were influential individuals, not necessarily from high castes, who formed a consultative body for state functions like counseling, ministering, and diplomacy. This system was often marked by court politics, factional rivalries, and even assassinations, rather than a stable, unified government.
- Monarchical Authority: The King was seen as an incarnation of Lord Vishnu and held supreme authority over legislative, judiciary, and executive functions. However, the practical exercise of power could be influenced by powerful political clans, sometimes making the monarch a “puppet ruler.” Policies were often derived from ancient Hindu texts like Dharmashastra and Manusmriti.
- Mukhtiyars: Over time, the role of “Mukhtiyar” (chief authority) emerged, taking over executive and administrative functions. This was a precursor to the prime ministerial system.
Rana Oligarchy (1846-1951):
- Centralized and Family-Oriented: The Rana regime established a highly centralized and family-oriented administration. Power was concentrated in the hands of the Rana prime ministers, who ruled hereditarily.
- Traditional Administration: Entry into government service was often based on loyalty and connections rather than merit. Formal training for administration was limited, focusing mainly on office procedures.
- Lack of Public Orientation: The administration during this period was largely geared towards serving the interests of the ruling family rather than the public.
Post-Rana Era and Democratic Aspirations (1951 onwards):
- Shift to Public-Oriented Administration: The 1951 revolution, which ended Rana rule, marked a significant transition towards a more public-oriented administration. This period saw efforts to establish democratic institutions and a move away from family-based rule.
- Emergence of Modern Public Administration: The formal study and development of public administration as a discipline began to take root in Nepal. Efforts were made to introduce formal training and education in public administration, though initial curriculum was often imported.
- Constitutional Changes and Bureaucratic Evolution:
- Panchayat System (1960-1990): After the dissolution of parliament in 1960, Nepal adopted a partyless Panchayat system. While nominally a constitutional monarchy, the king held autocratic control. Administrative divisions like development regions, zones, and districts were established.
- Multiparty Democracy (1990 onwards): The 1990 constitution significantly reduced the monarchy’s power, ushering in a multiparty parliamentary system. This period led to increased bureaucratic power due to legal safeguards, the formation of civil servants’ trade unions, and political instability. The Civil Service Act of 1993 was a landmark, aimed at protecting bureaucrats from executive whims and formalizing aspects like entry, promotion, and retirement.
- Federal Republic (2008 onwards): The dissolution of the monarchy and declaration of Nepal as a republic in 2008 further reshaped the bureaucracy. The interim constitution and subsequent federal structure necessitated adjustments in administrative roles and responsibilities, often leading to overlapping jurisdictions between federal, provincial, and local governments.
Challenges and Reforms in Modern Nepali Bureaucracy:
- Politicization and Corruption: A persistent challenge has been the politicization of bureaucracy, with civil servants often influenced by political parties. This, coupled with issues like nepotism, favoritism, and inadequate infrastructure, contributes to corruption and inefficiency.
- Red Tape and Delays: Nepali bureaucracy is frequently criticized for its red tape, delays in decision-making, and a general resistance to innovation.
- Accountability and Transparency: While there have been calls for increased accountability, integrity, and transparency, the implementation of reforms has often been slow and insufficient.
- Representation and Inclusivity: Efforts have been made to promote representative bureaucracy, particularly since 2007, with reservation policies introduced to ensure diversity in civil service recruitment, aiming to include marginalized groups and women. However, disproportional representation still exists.
- Ongoing Reforms: Various commissions and committees have been formed over the years to recommend administrative reforms, addressing issues like service delivery, capacity building, and performance. However, consistent political will and commitment to implementing these recommendations remain crucial. The ongoing discussions around a new Federal Civil Service Act, including changes to the retirement age, highlight the continuous efforts to modernize and improve the bureaucracy.
In essence, the history of bureaucracy in Nepal is a journey from traditional, monarch-centric administration to a more complex, democratic, and increasingly federalized system, grappling with issues of efficiency, accountability, and inclusivity in its pursuit of public service delivery.