Support to National Policies

"... Decentralisation is the crux of democracy. We should all endeavour to bring it to practice without any hesitation..."

Former MLD Minister Mr. Amrit K. Bohara
addressing the National Coordination
Workshop for DDP in Kathmandu

Since 1990, an alternative vision of development has emerged, one that is people-centred, equitable and socially and environmentally sustainable. Sustainable Human Development (SHD), as the new concept was termed, deviated from the other concepts of development in that it stressed on the enlargement of people’s choices and opportunities through the formation of social capital to meet as equitably as possible the needs of current generations without compromising the needs of the future ones. Social capital is different than "physical" and "human" capital. Social capital refers to laws and regulations, respect for those laws, the willingness to abide by these laws, social checks and balances. It is the glue that binds together all the other capitals. Without social capital, physical and human capital cannot be maintained or used properly.

SHD represents development that does not merely generate growth, but distributes its benefits equitably; regenerates environment rather than destroying it; empowers people rather than marginalising them; and enlarges their choices and opportunities and provides for people’s participation in decisions affecting their lives. SHD is development that is pro-poor, pro-nature, pro-jobs, and pro-women, and pro-children.

This new development paradigm emphasises placing development at the service of people, rather than putting people at the service of development. In this perspective human development implies empowering people to make their own choices, regarding earnings, personal security, or political status. It also emphasises the relevance of local values and knowledge as guidelines and tools for making these choices. Development cannot be sustainable without an indigenous ability to generate ideas.

In order to achieve sustainable development, governments should build social capital so that the country can maintain, conserve and accumulate physical and human capital. At the national level it means strengthening civil society as well as bringing about governmental reforms. SHD can be achieved only when national political leadership provides an environment in which local choices and initiatives can thrive. Thus it implies the creation of a conducive environment through decentralisation of authority, reallocation of funds, structural reforms and empowerment of disadvantaged groups through social mobilisation. This involves the adoption of a holistic perspective of development that integrates action across multi-disciplines and sectors.

In 1998 HMG published its Policy Document on the Ninth Development Plan which outlines the attainment of high economic growth rate and poor-oriented equitable development as the two main strategies for achieving its objectives of poverty-alleviation. Acknowledging the fact that unemployment and poverty are still rampant in Nepal after four decades of development efforts, the government has now set targets on having a long-term (20-year) perspective plan on high economic growth rate, poverty alleviation, employment promotion and development of human resources. Thus by the year 2017, HMG plans to bring down the percentage of population living below poverty line from the current 42 percent to 10 percent. It will do so by empowering people economically and socially by integrating common people in the mainstream of the development process, and to achieve economic prosperity by alleviating poverty.

In order to ensure people’s participation in nation-building and to speeden development works, the Ninth Plan proposes to push forward a public administration system based on good decentralised governance – ‘accountability at every level of bureaucracy, transparency, skill, proper management of resources, participatory working procedures, poverty alleviation, development of human resources, formulation of appropriate policies, personal and collective rights and sense of security and the overall development of administrative capabilities.’

PDDP offers an excellent platform or entry channel for the incorporation of SHD ideas into the development plans of the districts, with overarching impact on the national development plans. Through SHD Action Research, PDDP works with the groups in civil society, VDCs, DDCs, and the central agencies in efforts to help formulate policies for SHD on vital issues such as poverty alleviation, employment generation, environment management and women’s development. Action research is also conducted on innovative methods and case studies of local efforts to enhance sustainable local development, as well as multi-sectoral issues.

The outputs for these research studies are case studies of successful practices in the respective thematic areas, which will assist NPC and MLD in the formulation/improvement of sustainable local development policies and guidelines for promoting development that gives priority to the poor, to the creation of jobs, to the advancement of women, and to the protection of environment.

PDDP contracts qualified consulting firms, scholars, and individual experts to conduct action research on the four thematic areas of SHD. Besides covering the four individual areas, some action research will also focus on the over-arching impacts of all these issues. Based on their observation in these districts, the experts prepare case studies on initiatives taken in these areas at the local level and recommend micro- and macro-level policies and interventions to be considered by the DDCs and NPC. The studies are presented in a consultative session in front of representatives of NPC, MLD, UNDP, Donor Agencies and the concerned Line Agencies. The suggestions and feedback from this session are incorporated into the studies before they are finally submitted to NPC and MLD for possible incorporation into national policies, and issuance of district-specific guidelines.

In order to provide an incentive to students the Programme also has made some provisions of research grants for graduate students. These grants are provided to students to conduct research in SHD areas in PDDP districts. Besides providing young graduates with the incentive to conduct research, and providing them with the opportunity to be exposed to national development efforts and policies, such research also provides PDDP feedback on the functioning of its various components and activities.

HMG’s Ninth Plan strategies, stresses the role of decentralisation and good participatory governance in helping the government achieve its target of poverty alleviation. PDDP, by providing feedback to the central policy makers, assists the government to formulate policies to help local authorities pursue sustainable and decentralised local development. The Programme lends a hand in institutionalising the decentralisation process in the country by orienting the policy makers and local development actors on the principles of participatory governance. It offers technical support to national institutions like the ADDCN to urge the government to push through policies on decentralisation. It organises National Seminars and workshops on participatory governance, arranges exposure tours and field visits for policy makers from the country and abroad so that they can draw inputs from local cases. The Programme also helps spread the message of participatory governance through the dissemination of related information.

The Local Governance Act which was ratified by the Parliament in 1998 received the Royal Seal in 1999. The Act, which incorporates the experiences of PDDP to a large extent, will pave the way for a truly decentralised local development process in Nepal, wherein all people, regardless of their class, caste, religion and ethnicity can enjoy the fruits of democracy through participation in the governance and decision-making processes. The Act will also help to streamline the institutional development of local bodies by devolving responsibility and authority at the local levels to formulate and implement local development plans. Enhanced local leadership means that now the local bodies will be able to decide for themselves on matters that affect their day-today needs and lives of the people. This will go a long way in making PDDP’s efforts at promoting decentralised local development more fruitful and effective.

In May UNDP fielded a 4-member Decentralisation Mission, comprising of Steven Glovinsky, Kristinn Helgason, Heline Genest, and Dr. Shyam Bhurtel. The Mission’s objective was to identify six pilot districts and to develop strategies to implement innovative provisions of the Local Self Governance Act, especially relating to the delivery of selected sectoral services of the DDCs and VDCs as well as local taxation.

The Mission also revised the Programme Documents of PDDP and LGP to incorporate the implementation strategies for these additional functions. The Mission visited Rupandehi and Kavre districts for assessment of district level situations.

On 26 February 1999, NPC, MLD and UNDP jointly organised a 1-day workshop in Kathmandu to conscientise the participants in participatory planning process adopted for the formulation of District Development Plan (DDP), and to explore practical solutions for further consolidating participatory development planning process. The workshop was participated by the Planning Chiefs of the Sectoral Line Ministries and the Director Generals of the Line Departments of His Majesty’s Government, members of Executive Committee of PDDP and LGP, NPC and MLD officials as well as Programme staff.

During the paper presentation session Dr. Jagadish C. Pokharel, Hon. Member of NPC, presented a paper on "Participatory District Planning Process and DDP," while Mr. Khem Raj Nepal, Joint Secretary of MLD presented a paper on "Issues in the implementation of Participatory Planning, Monitoring and Management of DDP." Later group discussions were held under three broad topics: "Issues to be addressed by the central level to solve the problems and hindrance encountered in effectiveness of the District Development Planning process;" "Coordination and understanding between local authorities and line agencies in implementing District Development Plan;" and " Suggestions for improvement of the existing management and organisational capacities of the local authorities for improved participatory development." The suggestions offered by the participants were reviewed and refined during the plenary session later in the evening.

Similarly senior officials of NPCS were also provided a brief overview of PDDP and its efforts towards decentralised local development. The briefing held at Singha Durbar on April 4, 1999 covered all the components and units of the Programme.

A 3-day Local Stakeholders’ Workshop on Local Development Fund (LDF) was organised by NPC/MLD/UNDP and United Nations Capital Development Fund (UNCDF) in Pokhara from 8-10 February. The objective of the workshop was to discuss on the concept of Local Development Fund and provide the opportunity to incorporate the views and priorities of the local level stakeholders into the design of the LDF. The UNCDF-financed LDF will be a funding mechanism integrated within the procedures and institutional arrangements already established under PDDP and LGP, and will be supportive of the same set of objectives. The LDF will finance investment in the public infrastructure and services, community infrastructure and human resources development.

PDDP's National Programme Director
Mandira Poudyal briefing MLD and ...

... and NPCS officials about the Programme

The workshop which was designed to build on the knowledge, strengths and weaknesses of the project stakeholders’ capacities and initiatives, was participated by 80 stakeholders from the field to the central levels. They included DDC and VDC officials, representatives from community organisations and district development advisors from selected PDDP and LGP districts as well as UNDP Programme Managers, and representatives of I/NGOs etc.

The suggestions received from the interaction during the Workshop would be incorporated into the Summary Concept Paper prepared by UNCDF before being finalised as a Project Document.

A SAARC-level workshop on "Linkages between Decentralisation and Poverty Alleviation" was organised by SAPAP/UNDP in Dhulikhel, Kavre from 5-8 October. Fifty participants from the SAARC nations (excluding Bhutan), as well from the Philippines attended the workshop. The participants deliberated on the contributions made by decentralised governance structures on improving well being at the local level. They exchanged experiences on the best practices for bringing about pro-poor reforms at the local level and also sought ways to establishment of a networking system amongst themselves so as to create a conducive environment for sustainable and participatory local development in the SAARC region.

During the course of the workshop the participants also visited some VDCs in the district to observe the differences between socially mobilised VDCs and others. They visited Kushadevi and Dhungkharka VDCs to observe the impact of VDP and also went to non-VDP VDCs Devbhumi Baluwa and Mahendra Jyoti.

The Consultative Workshop on Development and Transfer of Appropriate Technology into Village Development Programme (VDP) was organised by the National Planning Commission on 22 September 1999. The objective of the Session was to review and comment on the conceptual framework of Technology Transfer developed by PDDP; to identify the persons and agencies working for technology transfer in Nepal, and to initiate linkages with them. The session which was attended by representatives of related government line agencies, National Planning Commission, Academic Institutions, I/NGOs and UNDP, was chaired by Hon. NPC Member Dr. Jagadish C. Pokharel.

The participants suggested the importance of stressing on low-cost, home-bred technology, and the utmost importance to link increased productivity with the market, and to disseminate information about the availability of such technology. Some cautioned on taking care to see that such technological inputs are not supply-driven, and also to pay attention to gender roles and responsibilities such that technological inputs do not add extra burden on just men or women.

Mr. Madhav K. Raut of the Central Department of Geography, Tribhuvan University, has completed his Masters’ Degree requirements by submitting a dissertation based on his research in Katuwachaupari VDC in Parbat. The Evaluation Study on "Social Mobilisation to Promote Self-Governance: a Case Study of Katuwachaupari VDC" presents a detailed description and analysis of VDP in the village. Among the major findings the author writes, "Social Mobilisation philosophy has been successful in directing the basic development services to the target population (poor) and it could be one of the effective poverty alleviation strategies in the country. So keeping in view the extent of rural poverty in Nepal, it is urgent that such a programme should be expanded to cover a larger proportion of the poor all over the country.

Mr. Yuvaraj Neupane, a student of the Economic Department of Tribhuvan University who had received research grant from PDDP, recently presented his findings and thesis on "Employment Promotion in Dang" to his faculty and PDDP representative. The other two grantees from the Departments of Sociology and Geography who had also received small research grants from PDDP also finalised their research studies. Both these Reports were finalised and then published.

The Research & Training Unit established at ADDCN with PDDP’s support has been conducting various orientations and training for the local authorities around the country. In 1999 ADDCN, with financial assistance from PDDP, facilitated a series of 5-day workshops on Strategic Planning in PDDP as well as non-PDDP districts. During the workshop, the participants brainstormed about their district’s visions, goals and objectives and chalked out their periodic and annual planning strategies.

A Local Initiative Forum (LIF) of UNDP-supported programmes has been established to share experiences and explore the collaboration potential for improved functional linkages and synergy. LIFs have also been operational at the local level. Tanahun DDC, for example, has been conducting LIF meetings amongst represenattives of UNDP-supported programmes like PDDP, REDP and RUPP. The meeting held in August , for example, focussed on the need to have District Level Community Mobilisation, and the need to build linkages amongst the support staff of the various programmes.

Realising the importance of information dissemination for conscientising policy makers as well bureaucrats, as well as an important tool for resource mobilisation, PDDP has expended considerable efforts at disseminating information related to the Programme. Realising, also, the importance of the vernacular to reach the Nepali-speaking populace in the settlements, VDCs, DDCs and the Centre, PDDP has laid stress on publishing its materials in Nepali.

All the materials published have been widely distributed to the PDDP-partner villages, districts, the central level stakeholders, and donors in Nepal and abroad. The publications in Nepali have been distributed mainly to the district, village and central level stakeholders.

In 1999 the PDDP Bulletin and its Nepali version Jibika featuring progress made by the Programme in the districts and the villages were published and distributed widely. PDDP published and disseminated its 136-page Annual Report "1998: The Year in Review." PDDP also published its Nepali calendar for 2056 Bikram Era featuring the scenes of some of its Programme districts.

Local Communication Efforts: Many DDCs have started regular publications of their Bulletins in Nepali. Achham, Baglung, Baitadi, Banke, Bhaktapur, Chitwan, Dadeldhura, Dang, Kaski, Kavre, Myagdi, Nawalparasi, Nuwakot, Parbat, Pyuthan, Rupandehi, Syangja and Tanahun DDCs have been producing regular bulletins. These Bulletins are produced by the DDC staff with the Programme Officers doing the bulk of the writing, editing and layout. The PO of the Information Section of the DDC along with the R/DDAs were provided training on the elements of development communications and the basic publication tools like layout, design, reporting, writing, editing, photo-cropping etc. earlier in the year to assist the DDCs’ communications efforts. (also see details on Training)

The passage of the Local Self-Governance Act, 1999, has given a major impetus to the promotion of decentralised local governance in Nepal. The Act has provided extensive authority and responsibility to DDCs and VDCs at the district and village levels respectively. The authority of the local authorities can only be exercised if the capacity of these bodies is enhanced. The new Act and its Regulations, when fully implemented will have substantial impact on the role of the state and local authorities in Nepal. Among the implications for the DDCs and VDCs are expected to be: (1) substantially increased revenues, (2) greater responsibilities for the services presently carried out by sectoral line agencies, (3) development of periodic plan and plan implementation, and (4) policy feedback to and from the High Level Monitoring Committee.

To meet these greatly expanded responsibilities, DDCs and VDCs will require substantial capacity-building efforts. While PDDP-supported districts have shown increased capability in planning, information management, resource utilisation and developing effective implementation mechanism in the districts under local ownership and accountability, more concerted efforts are required to consolidate, sustain and build on what has been achieved thus far. The enhanced capacities of the DDCs will be helpful for the local authorities to consolidate on their present capacity and in exercising the increased authority provided by the Act. The central government will have to play a supportive role in this direction.

The Regulations accompanying the Act need to be further streamlined so as to remove any ambiguities and inconsistencies which will hinder true devolvement and decentralisation of development into the hands of local authorities. In this the local authorities, both at the district and village levels, need in depth orientation provisions and mandate of LSGA and its Regulations. They may even have to be supported to formulate by-laws.