Dr. Dwarika Nath Dhungel, who initially started as a Professor of Political Science but soon joined the Nepal Administrative Service and retired as Secretary with solid experiences of what can be called pith and marrow of our administrative milieu, has recently come out with a new book that is going to be launched soon. He served in both central level and district level positions in the government and was Secretary in various ministries and agencies of the government of Nepal that he served with distinction and epoch.
On the introductory side, the prolific author taking into account an impressive series of works he has to his credit, has, in addition, coveted attributes as a civil society activist, champion of public interest litigation, seasoned analyst on domestic and even external issues, and host of several debating agencies and discussion platforms that make him a highly preoccupied personality that is in itself a great distinction.
After his magnum opus on Nepal's water resources came out only a couple of years ago, Dr Dhungel has now diligently and successfully attempted a thorough and comprehensive dissection of Nepal's administrative scenario with a thought-provoking and even catchy title, Nijamati Prashasanma Kotparva (Peshagat Anubhav-4). Its rough but cogent translation into English would perhaps be Massive Upheaval in Civil Administration (A Practitioner's Experience- Part 4)
In the most literal sense as evidenced by our history, the word, Kotparva, used in the context of the book is primarily intended to refer to the ghastly murder of the sitting Prime Minister Chautaria Fatteh Jang Shah and innumerable courtiers and civil servants at the royal court of Hanuman Dhoka in a bloody coup staged by Jang Bahadur in September 1846 resulting in capture of full powers by him. Jang Bahadur not only monopolized powers in his own hands and Rana family that continued for over a century but also pushed the status of kingship to a mere figurehead with no say in any state affair.
The focus of the title in the book is, however, on Prime Minister Girija Prasad Koirala's swift action in staging a virtual coup against the country's civil service in 1992 resulting in the outright dismissals (both compulsory and forced) of several thousands of civil servants possibly because of the wrongful advice given by his supporters and advisers who were high-sounding position holders but with no accountability.
In his brief Preface to the book, the writer has given details of himself as it was a matter of sheer providence that forced him to gyrate into administrative service despite having specialized in "international relations, international law, international organizations and diplomacy" and he had subsequent academic pursuits in India and the United States including PhD from Nagpur University, India, following his entry into the realm of bureaucracy.
He has justified the use of the word, Kotparva, as the title of the book. The author squarely blames Girija Prasad Koirala for staging what he calls, Kotparva, in Nepal's administration even accusing him of practising what can be called double standards in the context of constitution of high-level reforms body.
This related to enactment of the 29th amendment to the then Civil Service Act resulting in the mass dismissals of civil servants without taking the high-level Administrative Reforms Commission constituted under his own chairmanship and Administrative Reforms Follow-up Committee under the office of the prime minister into confidence.
The author has also given details about the impact of some agencies like Jaanch-boojh Kendra (investigation center) of Royal Palace and the CEDA (Center for Economic Development and Administration) on the country's over-all administration.
That the writer tends to emphasize on the role of the Prime Minister in the scheme of things in Nepal especially in the post-1990 era that saw the restoration of multiparty system in the country, is well illustrated by his front and back cover pages with the images of Singha Durbar, and Office of the Prime Minister and Council of Ministers, respectively.
One interesting and somewhat sweeping observation of Dr Dhungel is that all governments formed in Nepal during the 1951-1990 period except those under the leadership of Tanka Prasad Acharya and Bishweshwar Prasad Koirala, indulged in pursuing the course of Kotparva or staging arbitrary upheavals in civil service, irrespective of their scale or intensity. At the same time, he blames BP Koirala government for keeping a group of possibly disliked senior civil servants inactive and idle by transferring them to home ministry.
The author paints a rosy picture of Prime Minister Tanka Prasad Acharya understandably giving him full credit as the pioneer of Nepal's civil service act and regulations, along with many other innovative accomplishments during his relatively short tenure of office. He even suggests the naming of the Civil Service Hospital after him as a tribute to possibly one of the best performers among Nepal's post-1951 prime ministers.
Dhungel's book is quite voluminous consisting of as many as 724 pages with the substantial content alone being 410 pages plus 20 page-long bibliography. Besides, the section on appendices consisting of a valuable mine of information in the form of relevant reports, gazette notifications and news clips is itself 258 pages long.
The photo gallery encompasses additional 28 pages. The last part of the book consists of four-page long acknowledgements and equal space for the detailed resume of the writer. The book is a welcome product of long and sustained research and study of documents including many hitherto unknown matters. Santosh Dhital 'Khaderi' is among people of the new generation who have really helped the author in this respect.
Three persons who have distinguished themselves in the field of public administration, civil service, public policy and good governance have written forewords. A senior bureaucrat with long innings in top level positions like Secretary in the government and Executive Director of Nepal Administrative Staff College Gorakshya Bahadur Nhuchhe Pradhan, has given a practitioner's perspective.
Professor Prachanda Pradhan has given succinct analysis of the work from both theoretical and research points of view. Dr. Hiramani Ghimire who had a short spell in government service before he switched over to the arena of research on policy aspects and good governance, has added value to the book through his analytical comments.
Two more persons who have spoken about the book in the form of flyers on the back page include a senior civil servant and social development expert Padma Mohini Mathema and a young researcher Santosh Dhital 'Khaderi' who is quoted by the author from time to time specially with reference to Indian administrative team. Tham Nath Ghimire, a senior journalist, is the editor who has made painstaking efforts to bring out the publication.
The book can broadly be discussed under four major sections despite being divided into ten chapters. The first part is introduction and a broad but comprehensive review of reforms, changes and evolution of Nepal's administrative system from 1951 to 1992 in the backdrop of Rana administration of well over a century that are given coverage in chapter two.
It encompasses a wider spectrum of administration that started with the arrival of Indian advisers to the assumption of office by Girija Prasad Koirala as the second elected Prime Minister. Those who are interested to know the role of external advisers from India and the West including the United Nations would greatly benefit from the extensive coverage given to them.
Dhungel has given details of all administrative reports including those of Buch Commission, Vedananda Jha- and Dr. Bhekh Bahadur Thapa-led commissions, pay commissions and administrative reforms commission with Kul Sekhar Sharma as the vice-chairman.
The second portion relates to contents from Chapters third to seventh covering various ministries and organizations and commissions involving the author in one way or the other. This section can well be described as his own administrative memoirs. The third portion encompasses Chapter eight dealing with likely future prospects of Nepal's civil service, and Chapter nine with concluding remarks.
The fourth portion is, indeed, the last chapter written as postscript that discusses relations between federal structure that the country pursued in accordance with the Constitution of 2015, and civil service. It is lamentable that the central personnel agency in the form of General Administrative Ministry has more or less been obliterated and pushed to play distantly second fiddle under the composite Ministry of Federal Affairs and General Administration.
On the debit side, there are some proof mistakes that are inevitable in any undertaking of such a huge proportion. Besides, some documents included in the book are not that legible. Likewise, the reader may wonder at the inclusion of a plethora of introductory cards of the author during his secretarial tenures in different organizations and even entry cards to the parliamentary secretariat that could have been avoided.
Except such minor lacunae, there is absolutely no doubt that Dr. Dhungel has made a yeoman's service in terms of producing what can be called an in-depth encyclopaedia of Nepal's civil service written from a practitioner's perspective. I congratulate the author for his noble endeavours.
(Dr Bhattarai is a former foreign secretary, ambassador and author.)
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