Umish Prasad Mainali’s Surgery of Civil Administration (Suneko Sasan Bhogeko Prasasan) is a sharp critique of Nepal’s bureaucratic system, which has argued that political and administrative leaders repeatedly failed to learn lessons from the history of the country. Drawing on a bank of historical anecdotes and contemporary examples, the book dissects the persistent problem of politicization, conflict of interest, and inefficiency in the civil service.
Having headed the Public Service Commission (Lok Sewa Aayog) of Nepal as its Chairman, Mainali writes with insider authority, though the text sometimes relies more on hearsay rather than rigorous citations. His no-nonsense prose eschews the convoluted bureaucrats’ jargon to make the book accessible and a good read for the general audience.
One of the major debates is over the “cooling-off period” as the Federal Civil Service Bill tries to weigh up the value of service expertise of a civil servant against possible gains from personal interests. Mainali cites blatant conflicts of interest, such as Chief Secretaries resigning before retirement and then getting plum political positions within a few months. This not only erodes the efforts of any serious intent by the government to make use of senior officers and their vast experience for national gain but also encourages public distrust of government employees and dissatisfaction among them towards political leaders for the overall ineptitude of the administration.
Historical Legacy: “Chakari” System and Reforms of an Early Administration
The book traces the roots of administrative malaise in Nepal to the “Chakari” system under the Rana regime where appointments were made based on flattery and not merit. And though the Interim Government Act of 1951 introduced a “Public Commission,” the arbitrary practice of hiring and firing called “Pajani” persisted well into the democratic transition. Notable historical highlights include:
First Budget of Nepal: Presented on February 4, 1952 (Magh 21, 2008 BS), Finance Minister Subarna Shamsher Rana presented the budget without technical jargons in lucid Nepali but was based on estimates in the absence of historical data on actual expenditures.
The Public Service Commission: Under the 1959 Constitution, its name was changed to “Lok Sewa Ayog”; King Mahendra suspended it briefly in 1960 to allow appointments and dismissals without any check.
He says the credit for modernization of the system through replacing the royal Sanad Sawal orders with formal legislation goes to early reformers like Tanka Prasad Acharya. Similarly, B.P. Koirala emerges as a man of principle who initially barred civil servants from involvement in political affairs-the famous anecdote about disciplining an employee for a “Jai Nepal” greeting presupposed to be supportive is an oft-repeated story.
With unprecedented boldness, he even forced his appointees to take PSC exams, and several failed-a yardstick unthinkable today, when employees are hired on contract in universities or local governments.
The Politicization of the Civil Service: A “Great Blunder”
Mainali points out a turning point error-the decision of political leaders to enlist the participation of civil servants in movements. That boomeranged, making the bureaucracy a tool of politics. And this “noose” has been stifling governance ever since.
Excerpts from the book:
Strictness of B.P. Koirala: He enforced non-partisanship. But it was to last.
Turmoil after 1990: Interference mounted with the restoration of democracy. The 1994 minority government of UML packed secretaries from the previous Congress regime, only to see Congress retaliate once it came back to power. The pattern turned the “permanent government” of civil servants into a precarious and temporary one.
Spread to Security Forces: Politicization infected the Nepal Police, where transfers at the level of Inspector General, among others, are based on political favors rather than legal norms. For instance, Achyut Krishna Kharel replaced Dhruva Bahadur Pradhan.
Royal influences are mixed: King Mahendra is faulted for PSC bypasses but lauded for land reforms and national integration. His “Palace Inquiry Centre” acted as a supreme oversight body, while the “Go to the Village” (Gaun Farka) campaign-modeled on Chinese Communist strategies-consolidated control. King Birendra advanced decentralization and regional development, revitalizing areas like Surkhet and Dipayal.
Contemporary Issues: Advisors, PAs, and Transitional Challenges
The book criticizes the recent growth in redundant advisors at the Prime Minister’s office, many of whom have been found merely hanging around Singha Durbar without any role clearly defined. The Ministers’ Personal Assistants are powerful entities that interfere in transfers, promotions, and contracts, often dictating terms to the secretaries.
During the Maoist insurgency and King Gyanendra’s 2005 putsch, the civil servants suffered from “fear psychosis” arising out of violence and abductions. Yet, the bureaucracy proved resilient during political transitions, including arranging the establishment of Maoist combatant camps.
Mainali’s effort is a timely “surgery” that Nepal’s ailing administration underwent to expose how unbridled politicization and self-interest are threaten to destroy public service. Though some of the claims depend upon anecdotal “re” or hearsay, clarity, and historical depth make this book worth reading for anybody interested in Nepal’s governance. It serves as a warning, urging the leadership to finally learn from experience before the system collapses under its own weight.
