1. On the Article The State of Bureaucratic Representativeness and Administrative Culture in Nepal Presented by Group :3 Nitu Kumari Gupta Md. Akhtar Mamun Date : 10-04-2016 Welcome to the Presentation

2. About the Author Ishtiaq jamil Associate Professor Department of Administration and Organization, The university of Bergen, Bergen Norway Rameshwor Dangal Ministry of General Administration, Government of Nepal, Kathmandu Nepal

3. Abstract The objective of this article is to highlight on the demographic composition of the Nepalese bureaucracy with the demographic of the general population, and,threaafter,map the administrative culture in Nepal. The presence of retainer bureaucracy in Nepal is deeply rooted in the form of chakari i.e. the concept of appeasing one’s senior and afno manche The article is based on two type of data: Secondary Data collected mainly from Nepalese Public service Commission to show the trend of bureaucrats recruited in civil services and primary data were collected on the basis of survey of 86 bureaucrats from different ministries to cover the dimension of administrative culture in Nepal

4. Key Words of the Article Bureaucratic Representativeness Administrative culture

5. Nation : Nepal Population : 27.8 million Language : Nepali (44.6%) Maithali 11.7% Ecological Division: Mountain (15%), Hill (68%), Terai (17%) land area Religion: Hindu (81.34), Buddhist (9.04), Islam (4.39), Kirat (3.05), Christian (1.42), others (0.46) Demographics of Nepal

6. Dimensions of Exclusion in Nepal: Social category status GenderCasteLanguageReligionGeo/political DominantMen/BoysBramhin/ Chettris NepaliHinduPrabatiya: Hill Dweller SubordinateWomen/GirlDalitOtherNon- Hindu Madhesi: Plain Dweller Source: GSEA Report, 2006

7. Caste Hierarchy created by civil law of Nepal (Source: Bennet et al., 2006)

8. Demograpraphic Representatives in Nepalese Bureaucracy On the basis of Regions: ( 2000/01-2002/03) Region% of Population % of Nepal Bureaucrats 2000/01 % of Nepal Bureaucrats 2001/02 % of Nepal Bureaucrats 2002/03 Eastern23312027 Central35144326 Western203130 27 Mid- Western 1216315 Far-Western10845

9. Demograpraphic Representatives in Nepalese Bureaucracy On the basis of Parental Occupation : ( 2000/01-2002/03) Parental Occupation % of Population % of Nepal Bureaucrats 2000/01 % of Nepal Bureaucrats 2001/02 % of Nepal Bureaucrats 2002/03 Agriculture 76 9998 96 Civil Services NA 11 2 Others NA 01 2

10. Demograpraphic Representatives in Nepalese Bureaucracy On the basis of and Gender : ( 2000/01-2002/03) Gender% of Population % of Nepal Bureaucrats 2000/01 % of Nepal Bureaucrats 2001/02 % of Nepal Bureaucrats 2002/03 Male49959057 Female5151043

11. Demograpraphic Representatives in Nepalese Bureaucracy On the basis of Religion: (2000/01-2002/03) Religion% of Population % of Nepal Bureaucrats 2000/01 % of Nepal Bureaucrats 2001/02 % of Nepal Bureaucrats 2002/03 Hindu 819998 96 Buddhist 1101 3 Others 811 1

12. Demograpraphic Representatives in Nepalese Bureaucracy On the basis of caste background: (2000/01-2002/03) Caste background % of Population % of Nepal Bureaucrats 2000/01 % of Nepal Bureaucrats 2001/02 % of Nepal Bureaucrats 2002/03 Brahmin13765653 Newar16181221 Chhetri6286 Dalit13101 Others5232419

13. Administrative culture in Nepal  Power and authority relations : High power Distance Organizational resources not equal for seniors and juniors. Rules and regulations not applied universally.

14. Administrative culture in Nepal Cont…..  Ascription versus achievement Culture: Based on membership in a group,caste,religion,age, gender, and social status Favorism to higher authority (Here, ‘who told’ is most valuable than ‘what he told’. While achieved status refers to doing, ascribed status refers to being (Trompenaars, 1993:92). (chakari,chaplusi,and afno mancha )

15. Administrative culture in Nepal Cont…..  Political responsiveness: The attitude of bureaucrats to politics and politician is not positive( less trust) Neutrality politics  Social Responsiveness Dual attitude toward the citizen Collectivistic norms are strong in Nepalese bureaucracy.(Chakari, chaplusi (flattering and pleasing the boss), afno manche (own people), Elitist are favored.)

16. Nepalese Perspective After the amendment of civil service act in 2007, 45 per cent of the total seats in an open recruitment process are reserved for the underrepresented groups which are divided among those groups in the following ways: Women: 33 % Ethnic groups: 27 % Madhesis: 22 % Dalit: 9 % Disabled: 5 % Marginalized region:4 %

17. Nepalese Perspective cont….. Total No of civil servant: 81,657 No of female: 14,117 (17.29 %) Secretary: 1 (Officiating Secretary) Joint Secretary: 24 Under Secretary: 146 Section Officer: 1017 Non Gazette 1st: 1892 Non Gazette 2nd: 1922 Non Gazette 3rd: 127 Classless: 1535 Personnel of health service: 7444 Source: Naya Patrika National daily (03/21/2015) reference: Department of Civil Personnel Records

18. Number of Civil Servants by Region RegionNumber Percentage Percentage total population Eastern 13039 16.34 21.92 Western 12331 15.45 18.58 Far - western 6602 8.27 9.55 Central 37987 47.50 36.49 Mid-Western 9775 12.25 13.46 Total 79734 100 Source: Department of Civil Personnel Records, MoGA, Jan, 2014

19. Existing Positions by Level and Sex LevelMalePercenta ge FemalePercentag e TotalPerce ntage Gazetted15,98389.01,97111.017,95410022.4 Non Gazetted 32,68778.88,77421.241,46110051.8 Classless19,17592.71,5187.320,69310025.8 Total67,84584.712,26315.380,108100 Source: MoGA (Jan, 2014)

20. Gender Status in Civil Service: Table shows the male female ratio in civil service of Nepal as per data given by Nijamti Kitabkhana, (the Personnel record office of the Government of Nepal): Source:Nijamati Kitabkhana, 2013 Year Female MaleTotal 2008877411.097036888.9179142 2009871311.966412588.0472838 2010974913652258774974 20111077313.846707586.1677848 20121167914.676792885.3379607

21. Bangladesh Context Critiques Shortcomings Learning Points Challenges of Nepal Conclusive Remarks Presentation Outline

22. Bangladesh Context Bureaucratic Representativeness

23. Quota Reservation for direct recruitment by BPSC BCS Quota System (1997) CategoryQuota (%) Merit (Outside District quota)45% Freedom Fighters/Offspring of Freedom Fighters 30% Women10% Tribal People05% Others (Common People of the Districts) 10% Total100%

24. Quota Reservations for recruitment in Bangladesh Categories of Quota For Class I Services (percentage) 197219761985 (Class I and II) Merits204045 Freedom Fighters30 War affected Women 10 District Quota4020 Freedom Fighters30 Women10 Tribal5 Other General Candidates 10 Total100

25. Total Manpower in Civil Service MaleFemaleTotal 8243612236441048005 78.66% 21.34%100% MaleFemaleTotal 823641359595959 85.83%14.17%100% Class-1 Officers in Civil Service

26. Women in BCS BatchPercentageBatchPercentage 1973-18 th 21.05% 1977-20 th 21.2% 1979-21 st 21.2% 1981-22nd21.7% 19826.7%24 th 22.90% 198410.6%25 th 24.72% 198513.1%26 th 33.87% 198613.9%27 th 25.30% 9th9.7%28 th 30.59% 10th14.8%29 th 31.63% 11 th 13.7%30 th 31.43% 13 th 16.6%31 st 31.96% 15 th 19.6%33 rd 34.34% 17 th 21.9%34 th 34.79% Total 15.51%

27. Bangladesh Female Bureaucrats in PA PostTotalFemalePercentage Secretary74068.10% Addl. Secretary 366359.56% JS822495.96% DS12971279.80% SAS150122915.26% AS128523518.29% Grand total538568112.65%

28. Bangladesh Female Bureaucrats in PA

29. Religious & ethnic group in BCS  Total population 160 millions. Muslims 89.7% Hindus 9.2% Buddhists 0.7% Christians 0.3%  10% candidates from religious and ethnic minorities are getting BCS job.

30. Representatives in Bangladesh Bureaucracy On the basis of Religion

31. Division wise participation in Bangladesh Bureaucracy

32. Bangladesh  British Period (1765-1947) ICS Steel Frame  Pakistan Period (1947-1971) CSP- elitist generalist corps  Bangladesh Period (1971 to date) Military intervention in politics Power and authority in command, Prestige and esteem

33. Bangladesh  Bureaucratic Autonomy – institutionalized entity.  Bureaucracy-society obligations Dualistic characteristics of bureaucracy – clientelism vs. egalitarianism Influence of legal rationalism  Penchant of Orthodoxy  Bureaucratic-Political Nexus Lack of constitutional bureaucracy- question of neutrality Politicization of bureaucracy

34. High power distance and inequality ‘Yes boss’ type relationship and flattery Centralization of power Very low in individualism and comparatively very high on collectivism Culture of ‘Tadbir’ Fairly high uncertainty avoidance index Moderately high on masculinity Corruption Nepotism, favoritism, abuse of authority, patronage. Administrative culture in Bangladesh according to Hofstede

35. Critiques Demographic features to indicate inequality are based on the theoretical concept of J Donald Kingsley (1944). Researchers are trying to view Nepalese society on the frame of Kingsley. In actual, the religious inequality is given more priority where as regional inequality is not studied in the research. This study focused only on the relationship between societal culture and administrative culture. It doesn’t explore all relevant dimensions The research is based on interviews conducted with few higher civil servants and people. It has not represented the views of assistant civil servants who comprise 90% of the Nepalese civil service. Views of general citizens, are also not well documented.

36. The research was carried out within limited time. The data was mostly based on secondary sources and personal experiences of the researcher. Data presented in this research are qualitative and analysis is based on the interpretation of the researcher. Does more number of male, Hindu and Brahman indicate Nepalese bureaucracy is gender biased, religion biased and caste biased? Ups and downs (change) in politics and its effects on bureaucracy is not reflected.

37. Critiques cont…. New approach of young bureaucrats is not reflected in the research. The representation of Madhesi community is also missing in the study. Changing issues specially New Public Management and effects of globalization are two vital points dropped in this study that have significant influence on PA as well as common people.

38. Shortcomings Opinion of women bureaucrats Opinion of young bureaucrats Participation of civil society Opinion of media and other pressure group Political change issue Opinion of politicians

39. Learning points States/organizations are culture bound and culture matters. Politicization of bureaucracy cannot fulfill citizens’ demands. Trust in political leaders is a vital factor in bureaucracy. Representatives/participation from all regions, religions, castes are badly needed for a participatory universal type of bureaucracy. Gender discrimination should be minimized for establishing a balance in bureaucracy.

40. Learning points cont……. Bureaucrats must cooperate to the government with rules and laws, but avoid political involvement. Bureaucracy must address the situation of high power distance and high uncertainty avoidance with changing environment. Problems of highly collectivism and masculinity should be minimized in bureaucracy for a universal environment.

41. Learning points cont……. Give idea about the dimension of culture and intensity. Create scope to study culture of developed countries like Japan and develop own culture. Direct ways to overcome the obstacles of developing own culture. Create base for further research in same field for better results.

42. Challenges of Nepal First, shaping and reform administrative culture. Second, changes in public administration to maintain its identity as well as fulfill needs of development and citizens.

43. Others Challenges Restructuring the entire state and the government, new system of governance. Professionalization of politicians as well as bureaucrats. Handle “trust deficit” of public attitudes in bureaucracy. Mitigate demand for “cleanliness" and transparency in the administration

44. Others Challenges cont… Sharing expertise, power and information with partners and stakeholders. Adapting innovative and partnered approaches to policy development and service delivery. Facing the challenges of an ever-changing nature.

45. Conclusion Dr. Babu Ram Bhattarai in his first budget of the Federal Democratic Republic of Nepal says that “ We still have to travel a long journey’ …. and “the first step begins a thousand mile’s journey and let this first journey towards that long journey be begun with reform in the civil service system of the country.”