1.5 Evolution of the public administration of Nepal, basic structure, features, efforts for reforms and challenges

Evolution of Public Administration in Nepal

Public Administration: Overview

Public administration is the comprehensive structure and system managing all public affairs conducted by the state. It is distinct from private administration and is guided by political directives. It encompasses all regular, developmental, and emergency activities carried out by a government for the welfare and progress of its people, along with the structures facilitating these activities.

Public administration is influenced by a country’s social, political, economic, and cultural environment. Its emergence is tied to the origin of the state and government. In 1887, Woodrow Wilson defined public administration as the “detailed and systematic application of law.”

Evolution of Public Administration Globally

Origins

• Public administration emerged with human civilization, the state, and governance.

Ancient Times

• References to administration appear in texts like the Mahabharata, Smriti texts, and Kautilya’s Arthashastra.
• Administrative systems existed in ancient Egypt, Greece, China, and the Roman Empire.
• Philosophers like Plato and Aristotle viewed administration as a foundation of state governance.

Woodrow Wilson (1887)

• In his article “The Study of Administration,” Wilson separated politics and administration as distinct disciplines.
• Politics formulates policies, while administration implements them.
• Introduced the Politico-Administrative Dichotomy to define the relationship and boundaries between politics and administration.

1950s–1970s

• Government presence was deemed essential in all sectors, marking a period of expansion for public administration.
• In the 1960s, Development Administration emerged in developing countries to promote economic and social development, combining administration of development and development of administration (Software + Hardware).

1980s

• The New Public Management (NPM) concept reduced government scope, promoting private-sector involvement.
• Private-sector best practices were integrated into public administration.
• Concepts like good governance, accountable government, public-private partnerships (PPP), and collaborative development emerged.

2000s

• New Public Governance (NPG) emphasized citizens as governance partners, not just customers, with services revolving around citizens.
• NPG focused on transparency, openness, and civic engagement.

2005

• Digital Era Governance (DEG) highlighted the use of digital technology and networking for service delivery.

2012

• Responsive and Accountable Government emerged, emphasizing government accountability to achieve sustainable development goals.

Evolution of Public Administration in Nepal

Ancient Period

• Governance based on religious texts, with the king’s oral orders serving as law.

Lichchhavi Period

• Appointment of ministers (Amatya) and officials like Sarvadandanayak, Dandanayak, Mahapratihar, and Pratihar.
• Decentralized governance with local administration practices.

Medieval Period (Post-Unification)

• Governance based on Hindu traditions, with the king as the supreme authority.
• Centralized administration system.
• Six noble families (Tharghar) held key administrative roles.
• Bhardars provided advisory support.
• Employees received salaries in kind or cash through Pajani.

Basic Structure of Nepal’s Public Administration

Nepal’s public administration operates within a federal framework, structured across federal, provincial, and local levels, guided by the Constitution of Nepal (2072 BS). It includes:

• Federal Level: Ministries, departments, and central agencies responsible for policy formulation and national governance.
• Provincial Level: Provincial governments with ministries and agencies managing regional affairs.
• Local Level: Municipalities and rural municipalities handling local governance and service delivery.
• Constitutional Bodies: Entities like the Commission for Investigation of Abuse of Authority, Auditor General, and Public Service Commission ensure accountability and oversight.
• Public Service Commission: Manages civil service recruitment and ensures merit-based appointments.

Features of Nepal’s Public Administration

• Legal Framework: Governed by the Constitution, Civil Service Act (2049 BS), and other laws.
• Centralized Legacy: Historically centralized, transitioning to federalism since 2015.
• Bureaucratic Structure: Hierarchical with defined roles and responsibilities.
• Political Influence: Often subject to political interference, affecting impartiality.
• Service-Oriented: Focuses on delivering public services like education, health, and infrastructure.
• Development Focus: Prioritizes socio-economic development through plans and programs.
• Accountability Mechanisms: Includes audits, anti-corruption bodies, and public hearings.

Efforts for Reforms in Nepal’s Public Administration

Efforts to reform Nepal’s public administration began with the establishment of the Public Service Commission in 2008 BS (1951 AD). Several commissions and committees have been formed to propose and implement reforms:

S.N.	Commission/Committee	Main Recommendations	Implemented Suggestions
1	Buch Commission (2009 BS)	Reduce ministries from 17 to 11 Bring senior officials from India Formulate civil and financial administration laws Abolish Cabinet Secretary post Revise salaries through Public Service Commission Reduce employee grades from 15 to 4 Establish Public Service Commission and district administration Strengthen police organization Abolish attendance and office inspection offices Provide employee training Address corruption Make Bada Hakim equivalent to a magistrate Establish Chief Secretary post	Established Chief Secretary post Abolished attendance and office inspection offices Some anti-corruption laws implemented Other suggestions not fully implemented due to emphasis on Indian involvement
2	Administrative Reorganization Planning Commission (2013 BS)	Formulate Civil Service Act, Anti-Corruption Act, and financial regulations Initiate planned development and establish offices Classify budget Reorganize ministries and district administration Reform financial administration Promote rural development Establish administrative training center Create Planning and Development Ministry Recruit only through Public Service Commission Establish Public Administration Campus Create specialized services in civil service Propose new salary scales	All implemented except ministry and district administration reorganization Examples: Civil Service Act (2013 BS), Rules (2013 BS), administrative laws, Public Administration Institute established
3	Administrative Reform Commission (2025 BS)	Unified civil service Officer-oriented civil service Classify positions for a task-oriented civil service Civil service code of conduct Establish National Planning Council Create administrative court Make CDOs administrative heads, PDOs development heads Reduce ministry numbers Prioritize task completion and simplify procedures End political appointments Limit technical staff in administrative roles Amend Civil Service Act and Rules through Public Service Commission No dismissal without court conviction Introduce surprise inspections Decentralization Establish central personnel agency Implement job descriptions	Separated Panchayat and district administration Introduced hearing provisions for disciplinary actions Code of conduct implemented Restricted technical staff in administrative roles Appointments through Public Service Commission Established CPA and administrative court Formulated position classification plan Auditor General audited public enterprises Promoted committed employees
4	Administrative Reform Commission (2032 BS)	Create employee job descriptions Delegate authority Form high-level reform committee Reduce ministry numbers Strengthen Planning Commission Establish CPA Create staff college Introduce surprise inspections Unify government agencies Make General Administration Ministry a central personnel agency Administrative procedures Hierarchical civil service system Allow ministries to fill vacant posts Imprison employees accepting bribes	Recognized General Administration Ministry as central personnel agency Amended work division and performance rules Formed Manpower and General Administration Ministry Initiated ministry-level manpower recruitment Imposed imprisonment for bribery Improved planning
5	High-Level Administrative Reform Commission (2048 BS)	Transform administration per political changes Clarify government roles and promote privatization Decentralization, devolution, and local self-governance Promote partnership development Continuous reform monitoring Reduce employee numbers Secure service conditions Strengthen anti-corruption bodies Simplify service delivery and procedures Officer-oriented civil service Implement job descriptions Grant trade union rights to civil servants Establish grievance redressal Unified civil service Create high-level HR development council Introduce surprise inspections Reduce ministry numbers Reduce staff strength Revise salaries Mandate asset declarations Fix tenure periods Introduce voluntary retirement	New laws ensuring service conditions Unified civil service Strengthened anti-corruption bodies Adopted liberalization and privatization Established grievance redressal mechanisms Initiated surprise inspections Reduced employee numbers Introduced job descriptions Devolution of authority Mandated asset declarations Implemented voluntary retirement

Challenges in Nepal’s Public Administration

• Political Interference: Frequent political influence hampers impartiality and efficiency.
• Bureaucratic Resistance: Resistance to change and adherence to traditional practices.
• Lack of Coordination: Weak inter-agency and inter-level coordination in the federal structure.
• Capacity Gaps: Limited skills and training among civil servants for modern governance needs.
• Corruption: Persistent issues of corruption and lack of accountability.
• Resource Constraints: Insufficient financial and human resources for effective service delivery.
• Procedural Delays: Lengthy and complex administrative processes.
• Digitalization Lag: Slow adoption of digital technologies for service delivery.
• Federal Transition Challenges: Difficulties in implementing federalism, including authority devolution and clarity in roles.
• Public Trust Deficit: Low public confidence due to inefficiencies and perceived corruption.

Suggestions for Improvement

• Strengthen anti-corruption measures and ensure accountability.
• Enhance capacity-building programs for civil servants.
• Promote inter-agency and inter-level coordination in the federal system.
• Simplify administrative procedures to reduce delays.
• Accelerate digitalization for efficient service delivery.
• Clarify roles and responsibilities across federal, provincial, and local levels.
• Foster public participation and transparency to rebuild trust.
• Encourage merit-based recruitment and promotions to reduce political interference.