Can investment in local governance bring sustainable change? Lessons from Nepal’s Karnali Province.

Nepal’s federalisation was a bold step towards decentralisation which aimed to bring decision making closer to the people.  The three-tier governance system – federal, provincial, and local government – aspires to promote democratic governance, empower citizens, and ensure efficient service delivery. 

But is it delivering on its promise in Karnali Province, which, despite being the largest province by area in Nepal, has one of the sparsest populations and struggles with high poverty rates and limited access to basic services? 

For instance, children have to walk 1.5 to 2 hours to reach school; people living in a rural municipality have to walk up to two days to receive their social security allowances; there are many instances where citizens have had to return from health facilities without receiving treatment because the facilities either ran out of medicine stock or did not have required equipment; and only a few schools are disability-friendly and have a separate toilet for girls. 

A house at the base of a hill in Karnali

Karnali Province, a land of breathtaking landscapes and cultural richness, struggles against these odds due to its remote and rugged geography. The isolation and harsh terrain make effective service delivery seem like an uphill battle – both literally and figuratively. 

The key to efficient service delivery: Strengthening local governance

What does local governance really mean?

At its heart, effective local governance involves:

1. Accountability: Decision makers being accountable to citizens
2. Transparency: Ensuring the free flow of information to enhance trust and democratic processes
3. Participation: Actively involving citizens in planning and implementing local development initiatives

Federalisation: A promise of change? 

We were commissioned by UNDP to assess the status of basic service delivery in the region. Our findings revealed inefficient service delivery through public institutions, dissatisfaction among youths, and a lack of inclusivity for marginalised communities. 

What are the reasons behind the shortcomings in service delivery, and how can we address them effectively?

We collected data from 21 Local Governments (LGs) and visited five LGs in Karnali Province for an in-depth study. Here is a summary of findings related to effective local governance. 

Accountability: Who is responsible?

1. The legal framework allows District Coordination Committee(DCC), Provincial Government(PG), and Federal Government (FG) to only suggest improvements to LGs, not to enforce them. This leaves many recommendations overlooked.
2. Limited resources and expertise weaken the ability of oversight bodies to hold implementers accountable. For instance, most LGs failed to resolve complaints raised in their Judicial Committees.
3. A weak reward and punishment system demotivates staff. This leads to task shifting and unfulfilled responsibilities. 

Transparency: The missing information

1. Information about basic service delivery through LGs is not reaching all citizens. We found that citizens were often unaware of where to seek services and how to access them from LG. Imagine not knowing where to go for critical health or social services! In addition, citizens reported that information about programmes being implemented by LGs is not communicated in a timely manner.
2. Ministry of Federal Affairs and General Administration, Government of Nepal, supported LGs to develop their websites. However, these websites lack basic information like plans, budgets, and organograms. Only one LG has published its Medium Term Expenditure Framework, and just four have detailed profiles available online.

Participation: A frangmented effort

1. Cooperation among government tiers is often ad hoc with support sought informally rather than through institutional mechanisms. 
2. Capacity building activities for LGs through FG and PG are often limited to one-time events with no mechanisms to ensure long term effectiveness. 
3. Local planning process fails to include marginalised groups (persons with disabilities, elderly people, single women, adolescents, and children), elected representatives mention staff shortages and lack of proper guidance as major barriers.
4. Coordination gaps within LGs hinder implementation of programmes. For instance, the presence of elected representatives from different political parties within LGs results in coordination gaps.

Turning challenges into opportunities

While there are challenges in service delivery, they also provide opportunities to innovate and create scalable solutions. By building on local successes and tailoring these practices to broader contexts, change can be achieved. Below are some inspiring initiatives from local governments in Karnali that showcase potential for replication. 

• Improving accountability: Initiatives such as Jumla DCC’s practice of publicly recognising high-performing staff not only enhances their morale but also sets a benchmark for performance.  Similarly, Soru Rural Municipality’s enforcement of attendance policies to tackle staff absenteeism can serve as a model for improving accountability. Scaling these practices could involve integrating digital attendance systems and establishing regular performance reviews. 

From past to present: The former District Development Committee building now serves as the office of the District Coordination Committee and the Health Insurance Board, striving to bridge the gap in resources amidst the new federal structure.

• Enhancing transparency: Municipalities like Nalgaad and Dullu implemented citizen assistance calls to keep people informed about the availability and process of receiving basic services. This will help build trust and ensure inclusivity. Expanding this to other contexts could involve leveraging digital platforms or community groups to disseminate service-related information making public services more transparent and accessible.
• Increasing participation: Panchpuri Municipality’s "Breakthrough Action" project effectively engages community members to promote institutional child deliveries which successfully raised awareness about maternal health among families. This highlights the strengths of adopting participatory models to address diverse service delivery issues. Adopting such best practices will help local governments to foster community ownership and drive behavioural change

Imagine scaling these practices nationwide! Investing in local governance is, therefore, an investment in citizens and their ability to shape their future. It is about empowering communities to take ownership of their local development journey and to drive meaningful lasting change that is deeply rooted in local realities and culture.

Talcha Airport in Karnali: Renowned for its challenging conditions, yet a vital lifeline for travel and transportation in the region. 

The story of Karnali Province is a reminder that effective governance starts at the local level. By addressing gaps in accountability, transparency, and participation, we can bridge the divide between policy and practice. 

About the author:

Shaswat Acharya is an Assistant Consultant in our Nepal office. Currently working with Governance Practice, he focuses on understanding governance structure, national policy environment, and its status of implementation and gaps within service delivery in Nepal.