Spatial Planning Practices in Nepal – A Rural and Regional Perspective

 Spatial Planning Practices in Nepal – A Rural and Regional Perspective

ABSTRACT

Planned development in Nepal is a recent phenomenon and may be traced to the beginning of Second World War. The concept of regional planning began during Party-less Panchayat system after the abolishment of autocratic Rana family regime. Although the initiatives for decentralization and regional administrative divisions of the country were in focus, the planning practices were primarily centralized, rural development based, focused on isolated sectors and spatially neutral. With restoration of democracy in 1990s, the planning practices of Nepal adopted decentralized, participatory, and bottom-up approaches with priority on spatially balanced development agenda adopting rural and regional development strategy. However, due to highly unstable governments and political movements, the implementation of those plans was not effective. With promulgation of federal constitution in 2015, the country adopted three level of independent and interdependent governments based on regionally balanced principles to ensure the equality, justice, peace, prosperity, and happiness. The planning authorities need to develop policies, frameworks and guidelines that promotes spatial interdependence among the different rural and urban territories based on new territorial planning and management perspectives.

Key Words: Spatial Planning, Nepal, Planning Practices, Periodic Planning

Nepalese Context of Rural and Regional Inequalities:

Figure 1: Trend of Rural Population Growth in Nepal (Macrotrends, 2020)

Nepal, a middle-sized country in South Asia with approximately 30 million population, has undergone major transformations related to social, economic, and political spheres over the last few decades. The country went through a decade-long armed-conflict beginning from the mid-1990s, followed by another decade of political transition from more centralized unitary multi-party democracy to federal democratic republic. It is now on the decisive path of peace, prosperity, stability, and inclusive development. Being predominantly a rural country with diverse socio-economic, topographic and climate conditions.  The graph on the right shows the number of people living in rural area is rising but overall percentage is decreasing. Until 1960, 96.52% people were living in rural areas while by the end of 2019, the percentage is still very high i.e. near to 80% (Macro Trends, 2020). Hence, it is important to understand and analyze the Nepalese spatial planning practices from rural and regional development perspective.

Figure 2: Trend of Population Below Poverty Line

Historically, Nepal has been facing regional variations of poverty and inequalities. The graph on the right side depicts that in overall the % of population below poverty line has decreased from 41.8% in 1995/96 to 25.16% in 2010/11. However, the variation of poverty in rural and urban areas is significantly different. The rural-urban gap is in decreasing trend, but it is not sufficient.  

Table 1: Regional Variation of Poverty in Nepal (Gurung, 2006)

Traditionally, rugged geography, poor resources, and remoteness were considered as major causes of poverty due to which Mid-Western and Far-Western regions were the extreme and rampant poverty-stricken area.  The table 1 depicts that in 2004, out of the total population, MWDR has a large number of people suffering from poverty (i.e.46.3 %); it is followed by FWDR (45.9 %) while WDR was the least poverty stricken area with 36.7% people living in poverty. In terms of rural and urban dynamics, 42% poverty people are under poverty (Gurung, 2006).

However, the recent multi-dimensional poverty index and human development report published by national Planning Commission shows the different nature of regional variations of poverty and human development. As shown in the Map 1 below, Karnali Province located in western mountain region has the highest multi-dimensional poverty while Province 2 located in Eastern Terai region has the second highest multi-dimensional poverty (MPI, 2018; NHDR, 2020). This situation breaks the traditional thinking of geographical remoteness as a major cause of poverty.

Balanced regional development has been one of the agendas of the Nepal government since the Fourth Plan, covering fiscal year (FY1970–FY1975). However, the progress has been limited—regional disparity is much more prevalent, intense, and severe in rural areas and the mountain zone (Gurung, 2006). But the regional development approach seems to be an effective to some extent to identify the poverty pockets and develop location specific policies and plans (Dahal, 2007). It is important to understand the Nepalese planning practices from the rural and regional development perspective.

Map 1: Human Development Index (NHDR, 2020) and Multi-dimensional Poverty in Nepal (MPI, 2018)

Trajectory of Nepalese Planning Practices:

Planned development in Nepal may be traced to before the second World War when Rana family government announced development of twenty-year plan. In 1949, the Rana Prime Minister, Shri Mohan Shamsher, established National Planning Committee for the purpose of creating fifteen-year plan for the development of the country. In 1952, Ministry of Planning and Development was founded to support the government in planning and development while in 1955, King Mahendra issued a royal proclaimed for ‘necessity of a five-year plan for Nepal for attaining national sufficiency and establishing a welfare state. Nepal’s historic first five-year plan was produced in 1956. The table below summarizes all the periodic plans developed with perspective of rural and regional development (Okuda, 1973).

Table: Summary of Periodic Plans in Nepal

Periodic Plan	Key Features Related to Rural and Regional Development
First Plan (1956-1961)	-   The first plan aimed to support social and economic development so that all elements of the population can unite with confidence and enthusiasm -   The central purpose of the programme is to raise production, employment, standards of living and general wellbeing throughout the country, thus opening out to the people opportunities for a richer and more satisfying life -   The plan recognized the weak capacity of human resources, low administrative capacity, lack of authentic statistics to be used in planning purpose -   The plan did not recognize the regional developed issues however proposes some area specific projects like ‘Rapti Valley Multi-Purpose Project’
Second Plan (1962-1965)	-   Regional development approach was introduced first time -   The country was divided into several development and administration regions -   The plan primarily focused on rural agriculture development and infrastructures for future growth -   Land resource management was considered as primary intervention for alleviating poverty
Third Plan (1965-1970)	-   The plan was focused on the road and transportation development to link mountain, hills and terai region in the national development process -   Divided the country into three watershed regions like Koshi, Gandaki and Karnali with an aim of attaining the balance regional development
Forth Plan (1970-1975)	-   The plan was a milestone in the regional planning and development -   It introduced the growth pole hypothesis.  Four growth poles and several growth centers were identified to reduce the regional disparity -   Regional planning has been closely linked to the road construction and the circulation of goods, people and services among the mountain, hill and terai
Fifth Plan (1975-1980)	-   The plan was designed to increase national revenue by widening the foundation and boundary of development, by utilizing the resources in the particular region -   The regional development was proposed to bring uniformity in the income by increasing income of most of the population based on the social justice in maintaining economic and social unification -   The plan introduced the concept of Integrated Rural Development Programme (IRDP) to improve the quality of socio-economic standard of people
Sixth Plan (1980–1985)	-   The plan focused on the regional development through integration of rural infrastructure development i.e. agriculture, small-scale industries, horticulture, livestock, conservation of the natural resources as well as the infrastructure and services in the rural areas -   The regional development planning emphasized not only the integration between north and south but focused on the east and west integration through the development of roads and other infrastructure -   Integrated Rural Development Programme (IRDP) was given more emphasis
Seventh Plan (1980–1985)	-   The plan proposed following three dimensions of regional structure as part of regional development plan:          i.  Establish development centers and service centers in each development region         ii.  Prioritized development of regional level plans at different levels / tires i.e. Development Region, Sub-Region and District,       iii.  District Development Plans were formulated under the decentralization policy conforming to regional development plan -   The decentralization and regional development policy were integrated -   Empowerment of the local governments was considered important approach -   Districts were considered the third tier of development region. -   Although the plan set milestone, the implementation was not effective
Eighth Plan (1992-1997)	-   The plan was highly inspired from people’s democratic movement of 1990 and gave more priorities to the rural and regional development through decentralization and empowerment of the local bodies -   The plan was designed on the base of three-core objectives- (a) sustainable economic growth, (b) poverty alleviation and (c) reduction of regional imbalances -   The objectives of the regional development were:          i.  To increase regional and national production and reduce regional imbalance         ii.  To integrate rural development process with the national mainstream by focusing development of rural and backward areas. -   Priorities were given on the extension of rural roads, health, and education -   During the period expansion of the road networks, rural electrification, establishment of the health post and schools in rural villages, extension of infrastructure and service facilities in the rural areas, establishment of rural development banks, natural resources conservation through the extensive community forestry were some important achievements -   But without appropriate mechanism and programs to coordination among different regional units (intra and interregional interaction), the regional development policies became quite ineffective
Ninth Plan (1997-2002)	-   The plan was designed with the aim to reduce the level of poverty in the country. Balanced regional development was considered as an important aspect. The implementation of the Agricultural Perspective Plan was the major means to alleviate wide-spread poverty in rural areas -   The plan focused on the regional development through the three tiers of hierarchy i.e. development region, sub-region and districts -   This plan for the first time felt the need of regional offices, people’s participation, area-specific programs, and analysis of resource potentiality for regional development. They were not mentioned in the previous plans. -   Many programs were proposed in order to reduce the regional imbalance in the country. Optimum mobilization of the regional resources, identify the potentiality and capacity of the resources at regional level, area specific program, NGOs mobilization, people participation in the development process, development of infrastructure and service facilities, coordination and integration mechanism for the regional development and proposed regional offices for the formulation, mobilization, monitoring and evaluation of district level programs were very important aspects in the context of regional development . -   But, after 1996 the targeted policies and plans in the regional level have failed and have not been fully implemented due to extreme political instability.
Tenth Plan (2002-2007)	-   This plan set the main objective of the long-term development is to free the nation from the clutches of existing poverty, and to establish a cultured, modern, and competent society -   The plan has focused on the balanced regional development through the utilization of the potential resources in different regions. -   The plan aimed for local development to minimize poverty by making available local people, particularly the people of socially and economically backward areas, caste, nationalities groups an access to services and benefits made locally available -   The plan adopted four strategies: i) high, sustainable, and broader economic growth, ii) social sectors and rural infrastructure development, iii) targeted programs, iv) good governance -   The plan also adopted twelve priority sectors: i) agriculture development, natural resources management and biodiversity, ii)  rural infrastructure development and rural energy, iii) population management, social services and basic social security, iv) tourism, water resources, information technology, industry and commerce, v) human resource development and women empowerment, vi) targeted programme to uplift the excluded and marginalized groups, vii) strengthen local bodies, NGOs and CBOs, viii) Thrust on area wise development and remote areas, ix) use of better high-tech technology in rural areas, x) reform and assurance of good governance, xi) protection and conservation of environment, xii) development of national and regional infrastructure  -   Three core regional strategies have been prepared to reduce the regional imbalances. These core strategies were:          i.  Increasing people's participation in the social and political decision-making processes         ii.  Interregional economic relations among the rural, urban and backward regions through the infrastructure development particularly transport and communication.       iii.  Allocating resource in view of reducing regional imbalance
Eleventh Plan (2007/08-2009/10)	-   The plan was developed to mainstream people’s aspiration after second historic people’s movement in 2006 and aimed to utilize the opportunities emerged after end of decade long armed conflict -   Three years interim plan was developed and implemented -   The major objectives of the plan were to reduce poverty, unemployment, and inequality for social and economic transformation. -   The plan focused on target program to the marginalized people, social mobilization, infrastructure development, strengthening to local bodies, regional development, reconstructing local infrastructure, and reformation of local governance for rural development and change -   The plan adopted six key strategies: i) to give special emphasis on relief, reconstruction and reintegration, ii) to achieve employment-oriented, pro-poor and broad-based economic growth, iii) To promote good-governance and effective service delivery, iv) to increase investment in physical infrastructures, v) to give emphasis on social development, vi) to adopt an inclusive development process and carry out targeted programs -   The plan proposes special targeted programs for areas falling in the shadow of development and social section which are far below living in extreme poverty, inequality, and exclusion -   The plan emphasized the need of new regional development policy but did not elaborated much
Twelfth Plan (2011-2013)	-   The plan aimed to upgrade the Nepalese economy from least developed to developing within two decades with priority in abolishment of different discrimination and inequalities  -   The objective of the plan was to establish sustainable peace and contributing in poverty eradication through employment generation centered inclusive and equitable economic growth -   This plan prioritized six strategies: i) with public, private and cooperative partnership initiatives for employment generation focused and poverty eradication oriented sustainable and wider economic growth, ii) development of physical infrastructures to support future federalism  and growth across provinces, iii) promote inclusive and equitable development for sustainable peace, iv) social and economic transformation of society, v) foster result based development and good governance practices, vi) mainstream support for private and cooperative sector and industry, trade and service -   The plan developed result framework and key indicator targets disaggregated geographic regions
Thirteenth Plan (2013/14 -2015/16)	-   The plan aimed to upgrade Nepal in developing country from least developed country by 2022 -   Reducing economic and human poverty was one of the major goals of the plan -   The plan adopted six strategies to achieve its goals. These strategies are: i) partnership of public, private and cooperative sector for wider, inclusive and sustainable growth, ii) development of infrastructures to promote regional balance, iii) improving access to social services, iv) promoting good governance, v) empowerment of targeted groups, areas and sections of society, and vi) promote climate change adaptation in development  -   The plan prioritized balanced regional and provincial development through integrated province development plans, identify and promote sectors of competitive advantage, prioritize investment in least developed areas -   The economic progress during the period was not satisfactory however social development and infrastructure development was satisfactory. -   Agenda of social participation, inclusion and representation of marginalized groups in governance was satisfactory
Fourteenth Plan (2016/17-2018/2019)	-   First plan developed after promulgation of new constitution of Nepal in 2015 -   This plan aimed in rolling out the recent constitutional provisions and mandate of progressive, self-reliant, sustainable, and just society with welfare-based economy -   The plan prioritized the agenda of employment promotion and just resource distribution with three pillars public, private and cooperative partnership -   The areas priorities for public investment are i) enabling environment for citizens to exercise fundamental rights and entitlements, ii) addressing energy crisis, iii) road and other network infrastructures iv) agriculture development and employment generation v) investment in sectors producing immediate economic growth, vi) social development (health, education, WASH), vii) recovery and reconstruction from earthquake, viii) regional balanced and inclusive development -   In result framework, the plan adopted five strategies: i) production growth, ii) infrastructure development, iii) human development, iv) good governance, v) interdependent issues (includes regional balance)
Fifteenth Plan (2019/20 – 2023/24)	-   The first plan developed with long-term vision of ‘Prosperous Nepal Happy Nepali’. The national vision has been targeted to succeed by addressing the people’s expectations from comprehensive socio-economic transformation, achievement of high economic growth, insurance of coordinated distribution and redistribution with complete justice -   The plan aims to upgrade Nepal in developing country from least developed country by 2022, to upgrade the country in the level of middle earning by 2030 and developed country by 2043 -   The plan has adopted the foundation of transforming Nepal into socialism-oriented welfare state with prosperous economy and social justice -   In result framework, the plan prioritized 10 result areas: i) high and equitable national income, ii) human capital formation and use of opportunities, iii) accessible infrastructures and intense interconnection , iv) high and sustainable production and productivity , v) improved and dignified life, vi) safe, civilized and just society, vii) clean and balanced environment, viii) good governance, ix) Strong democracy, and x) national unity, security and pride

 (Source: Dahal, 2007; NPC, 2020; Limbu, 2019)

 

Figure 3: Trajectory of Periodic Planning in Nepal (Author)

The trajectory of Nepalese Periodic Planning can be summarized in diagram 3 below.  Based on the nature of political system and planning principles adopted, the trajectory of planning practices can be categorized into four different phases namely: i) Before 1950, ii) 1950 – 1990, iii) 1990 – 2015, iv) 2015 onwards.

 

i)    Before 1950:

Before 1950s, the country was being ruled under autocratic regime of Rana family. Around the end of the regime, immediately before and after of Second World War, the country began to think about on long-term planning.  In 1949, the Rana Prime Minister, Shri Mohan Shamsher, established National Planning Committee for the purpose of creating fifteen-year plan for the development of the country. It can be said that the thinking of regional and rural development issues was not even conceptualized until end of the regime.

ii)  1950 – 1990:

The real conceptual thinking of planned development was started in the country after 1950 and during first periodic plan was developed in 1955-56 to bring about systematic change in the underdeveloped socio-economic condition (Acharya, 2008). The constitution of 1962 created a four-tier system of development committees (Panchayats). These includes 4,000 village and town committees (Gaun Panchayat), 75 District committees (Jilla Panchayat), 14 Zonal committees (Anchal Panchayat), and the National committee (Rastriya Panchayat).  At each tier, Panchayats were supposed to serve as working committees of the respective assemblies (Sabha). However, the latter mostly played advisory roles. Subsequently, five development regions were also created. However, since district offices of line ministries reported directly to their head offices in Kathmandu, zonal and regional tiers were not strong (MoFAGA, 2019).

Third plan gave prominence to regional aspects in the national development plan by dividing the country into three watershed regions like Koshi, Gandaki and Karnali with an aim of attaining the balance regional development. While Fifth Plan (FY1975–FY1980) adopted a 4-point regional policy as specified in the original strategy paper. These were: (i) reduction of inter-regional disparity, (ii) integration of the national economy, (iii) breaking the vicious circle, and (iv) elimination of imbalances among projects (NPC, 1975).  It was the first periodic plan to estimate resource allocation by development regions (Gurung, 2006). However, there was no integration of the socioeconomic projects/programs along the growth axes.

With creation of Ministry of Panchayat and Local Development in 1980, the Decentralization Act of 1982 was enforced, and which strengthened the role of district level by giving it responsibility for preparing and implementing annual and multi-year (periodic) plans. While this was essentially a top-down planning process, it allowed some user-level participation in project implementation and monitoring, through the institution of User Committees (MoFAGA, 2019). The Seventh Plan (1985-1990) envisaged the concept of rural-urban linkage as a strategy to achieve the objectives of urban-based rural development policy (MOUD, 2016).

iii) 1990 – 2015:

During the period, the planning practices shifted from more centralized, and top-down approach to more decentralized participatory and bottom-up approach. The agenda of equity, inclusion and regional balance heightened with country moving into new political system. However, during this period in Nepal, the political volatility and instability developed from frequent change of government disturbed the smooth implementation of different periodic plans developed. Furthermore, the armed conflict in the country raised the awareness among the population and civil society to take actions on issues related to poverty, inequality, exclusion, and marginalization based on gender, caste, ethnicity, religion, and region.

People’s democratic movement in 1990 established the parliamentary democratic system in Nepal and gave more priorities to the rural and regional development through more decentralization and empowerment of the local bodies. Policies, which aim to the empowerment of the local people and local government in the development process, were formulated to bring about a balanced regional development. During this period, the 1990 constitution gave new impetus to local self-government, in particular, in implementation of the constitutional promise of popular participation through decentralization, with amendments to the District Act, Village Act, and Municipality Act in 1991-92, allowed for local democratic elections to take place in 1992. The three Acts were later consolidated into the Local Self Governance Act (LSGA) of 1999. The previous Village Panchayats turned into 3,915 Village Development Committees (VDC), town Panchayats turned into 58 Municipalities, and the District Panchayats turned into the 75 District Development Committee (DDC) (MoFAGA, 2019).

The Eighth Plan (1992-1997) also continued the need for developing urban and rural areas complementary to each other. With its goal to achieve sustainable development, poverty alleviation and reduction of regional disparity, the Eighth Plan called for the establishment of national urban system and market-oriented urban sub-systems. It emphasized sectoral investments to promote self-reliant social, economic and market services in rural areas through road connectivity to facilitate rural-urban linkages for balanced regional development (MOUD, 2016).

This phase of the Nepalese planning practices set historical benchmarks in addressing poverty, inequalities, regional disparities, environmentally friendly and sustainable development.  Ninth and Tenth periodic plan were the historic periodic plans that primarily focused on eradication of poverty but less effectively implemented due to political instability and armed conflict.

iv) 2015 onwards:

The new Constitution of Nepal came into ef­fect in September 2015, with aspirations of sustained peace, good governance, devel­opment and prosperity. It has been implementing a republican, inclusive, competitive multiparty democratic federal system with three tiers of government: fed­eral, provincial and local. It guarantees inclusive socio-political and economic development and a wide range of basic and fundamental rights, including rights to equality, justice, property, free­dom of religion, a clean environment, ed­ucation and rights against discrimination. The constitution further upholds the right to food, education, equality, environment and health, employment and social securi­ty, among others. The constitution provides us with an ef­fective and strong foundation for the main thrust of the SDGs i.e. ‘Leaving No One Be­hind.’ It upholds and promotes the agenda of social justice, inclusion, and a rights-based approach, including 33 percent of wom­en representation in the parliaments (NHDR, 2020).

As this is the very beginning of the new political system, only two periodic plans are formulated till date. The 14th periodic plan was the first plan developed after promulgation of new constitution of Nepal in 2015. This plan aimed in rolling out the recent constitutional provisions and mandate of progressive, self-reliant, sustainable, and just society with welfare-based economy. The plan prioritized the agenda of employment promotion and just resource distribution with three pillars public, private and cooperative partnership. The 15^th Plan of Nepal has adopted 8 strategies to achieve its goal. Among them, ‘Good Governance, Provincial Balance and National Unity’ is one of them in which (NPC, 2019).   

This phase has created enormous opportunities to tackle the regional disparities, inequalities, exclusion, and marginalization through introduction of evidence-based policies and spatial plans integrating diverse sectors. There is need of new paradigm of thinking and practice of spatial planning in context of rural and regional planning.  

Regional and Rural Development Planning: Transition to New Paradigm

Regional planning is a tool that would provide the regional development framework for the balanced and integrated national development. Many countries of the world are preparing regional development frameworks that can be used to minimize the regional inequalities based on the existing resources, local knowledge, infrastructure, and service available in the areas. Spatial dimension of planning approach came from the less well integrated economies where regional differences of production and welfare have been found (Dahal, 2007).

In Nepal, the idea of regional development came in 1960s during the preparation of second periodic plan (1962-1965). Subsequently, the country was divided into 3,474 Panchayats, 75 Districts and 14 Zones with the view to promoting development activities at the grassroots level. Nepal was divided into three ecological regions (mountain, hills, and terai), five administrative regions (eastern, central, western, mid-western and far western) and 15 different sub-regions.  These division of regions has been done mainly for understanding the different social, economic, and ecological condition of Nepal which could be useful to prepare and implement the national plans and policies for development to reduce the regional disparity. The main purpose of the regional division in Nepal is a balanced and integrated national development. Regional development approach fulfills three basic objectives, first, identification of poverty and backward areas, second, analysis of the existing and potential resources and third, formulation of the relevant development strategies (Shrestha, 1998).

After the promulgation of the Constitution of Nepal in 2015, and its firmer grounds for political stability as well as guarantees of fundamental rights and empowerment, the national agenda has been to usher in a new era of prosperity and human well-being (NHDR, 2020). This new constitution transformed the political, administrative, and regional division of the country. As shown in the figure 4 below, the previous administrative division of country transformed from 3467 local government units to 753 local levels, 75 districts to 77 districts, five development regions to seven provinces. 

Figure 4: Comparing Old and New Spatial Planning Units Nepal

Figure 5: Planning Levels, Constitutional Mandate, Planning Authorities (Nepal Gazette, 2015)

The constitution assigns important functional responsibilities to provincial and local governments and mandates that they have significant autonomy in deciding how services will be delivered. To date, the new system is characterized by a combination of devolution of some powers to PLGs and retention of others by the federal government. The three levels of governments (federal, province and local) are independent and interdependent with their own constitutional authority, mandate, and responsibility. As shown in the figure below, the constitution has specified different degree (individual and concurrent) power under the schedule 5, 6 7, 8 and 9.   

Figure 6: Interrelation among federal, province and local level (left) and 7-step local planning process (right) (NPC, 2018; LDTA, 2018)

In relation to the planning authorities, after the declaration of new constitution with federal democratic republic, the degree of devolution of political power increased and opened the opportunity for new planning authorities i.e. National Planning Commission at national level, Province Planning Commission at regional level, and Integrated Planning Committee at Local level with support of sectoral ministries and line agencies. Furthermore, ‘National Natural Resource and Fiscal Commission’ support which ensure the fairness, equality, equity, and justice in resource sharing to minimize the regional inequality and disparities. To facilitate the planning in context of implementing aspiration of new constitution, National Planning Commission has developed new periodic planning guideline to support province and local government in periodic plan. The diagram 6 depicts the interrelation among federal, province and local level periodic planning. Through this guideline, National Planning Commission promotes the adoption of national priorities, programs, and targets to be incorporated into the province and local periodic plans which minimizes the degree of independency of local and province planning process.

However, this guideline contradicts the bottom-up and participatory planning principles adopted in local planning process (as presented in the diagram 6) where, federal and province levels can only provide the ceilings of resources and directives related to planning not imposing the national priority agenda into local plans. Of course, there should be synchronization and complementarity among all three levels of periodic plans but by following the guideline issued by NPC (for both provincial and local periodic planning), it is difficult to maintain such a balance.  

The table below (table 2), depicts the different sectors identified in the periodic planning guidelines at different level (federal, province and local) developed by National Planning Commission. Analyzing the table it can be seen that there is partial-coherence on sectoral focus from federal level to province and local level but these sectoral priorities are difficult to be spatially integrated, coordinated and responsive to  rural and regional development.

Map 2: Rural and Urban Categories of Local Governments

Table 2: Sector Identified in Planning Guidelines of Different Level (NPC, 2018a; NPC, 2018b; NPC, 2020)

Emergence of New and Complex Ruralities with New Opportunities (NACOR)

As happening across globe, the rural-urban dynamics in Nepal is rapidly changing. Although being country of rural dominance, the country has been moving to urban oriented development policies, principles, and plans. This can be understood from the name of the local level governments itself.  The previously named Village Development Committees (rural areas) are now named as Rural Municipality. Where, municipality refers to the urban nature of settlement, services, and other characteristics. But the rural municipalities are completely rural in nature.  The Map 2 depicts the rural urban situation of local governments in Nepal. 

Figure 8: Settlement in Birendranagar Municipality, Surkhet, Karnali Province (Source: Google Earth Web, 2020)

Figure 7: Settlement Characteristics of Chandannath Municipality Jumla (Source: Google Earth Web, 2020)

Table 3: Comparing three municipalities with different features (OAG, 2020; Thuli Bheri, 2018; Municipal Profiles, 2017)

Figure 9: Municipal Center of Thuli Bheri Municipality, Dolpa

The figure 7, figure 8 and figure 9 represent the core area of three different municipalities (one in Jumla, one in Surkhet and one in Dolpa) with different population size, topography, local resources, and opportunities. But the current categorization of local levels by the government considers both local levels as same urban areas and issued same guidelines for the development of the local periodic plans.

Comparing these three municipalities (Table 3), it can be clearly seen that there is diverse socio-economic and geographic condition in which rural features are more prevailing than urban features. This diverse and rural predominance in urban municipalities needs tailor-made planning practices to enhance sustainable rural-urban linkages however the current planning guidelines do provide the opportunity to develop such context specific local plans.

Conclusion and Discussion:

Nepal is a country with majority of population in rural areas. The uneven distribution of development outcomes has been persistently creating rural-urban and regional disparities within the country. Six decade long planned development practice of Nepal lately adopted the regional and rural development strategy during 1980s.  The Government’s efforts for regional development have not been effective mainly due to an inadequate policy framework to implement the concept. Also, there is lack of integrated and coherent policy framework for regional development based on a thorough assessment of regional conditions and policies and programs are still fragmental and unfocused.

With promulgation of new constitution in 2015, many of the local government units with rural features are now classified as less urban (Rural Municipalities) and more urban (Municipalities, Sub-metropolis, and metropolis) areas. However, there is no sharp distinction between rural and urban areas in Nepal as they are intertwined, interrelated, and interdependent in spatial, economic, cultural, social, and financial aspects. In contrast, the recent periodic planning guidelines issued by National Planning Commission are more general in nature, focused on different sectoral issues in isolation to each-other, and are less oriented towards regional development and spatial planning perspective. But, in terms of resource allocation for development intervention and planning priorities, National Natural Resource and Fiscal Commission (NNRFC) has been putting effort to minimize the regional disparity through allocation of resources in an equitable and just manner. It is challenging, especially when the administrative capacities of provincial and local governments to deliver and manage services are not yet well developed, and where the federal government has little experience with managing an intergovernmental system.

Nepal has set a long-term vision of a ‘Prosperous Nepal, Happy Nepali' centers on human development, and aims to transform Nepal into a developed country in 25 years, as envisioned in the current 15th Five-Year Plan. Nationally, there is consensus that structural transformation of the econo­my, promotion of equitable society, broad-based participation in all national activities and sustainable use of natural resources are key to rapid progress and sustainable de­velopment. However, to reflect this aspiration in practice socio-economic planning is not coordinated and integrated with spatial planning at regional or sub-regional level with due consideration to functional hierarchy of settlements.

With emerging rural and urban features, Nepalese planning principles and practices has opportunity to develop spatial plans that fulfill territorial functions under a national system of cities and human settlements, promoting rural-urban linkages, ensuring sustainable management of resources within and across territories for balanced and sustainable development. There is need of developing concrete spatial planning frameworks to guide the upcoming plans developed at different levels, especially at local level, to contribute to inclusive, balanced and sustainable development.

 

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